After enlargement: Insider, outsider, newcomer, neighbour

Insider, newcomer, new neighbour: The European Neighbourhood Policy after enlargement

Europe as Empire II: Borderlands

0.1 OverviewSome questionsWhat is European Neighbourhood Policy?Who is involved?On what fields?Is it effective?Who benefits?

The lectureEurope as Empire II: BorderlandsENP and enlargementAimsActorsPolicy instruments: The golden carrot of accession?Special Partnerships

1. Europe as Empire II: Borderlands1.1 Europe as Empire: Barroso

I think the EU is an empire!But what does that actually mean...?1.2 Europe as Empire?

Dimension, enlargement

Not made through force

No centre, which is imposing a dictat1.3 TimelineENLARGEMENT ROUNDS OVER TIME1.4 Impact of enlargement on the EU: Growing heterogeneityFounding membersParadigm: Unification through uniform and equally binding regulationsLimited number of continental European member statesSimilar level of socio-economic development Negotiable antagonisms due to complementary economic and social structures After 7 enlargementsParadigm: United in diversityGrowing numbers of members Growing heterogeneity of members Increasing incapacity for uniform integrationIncreasing difficulties to find uniform, fit-for-all regulations that are equally binding for all members

1.5 Deepening and widening I Vertical institutionalisation = DeepeningMembers = Widening1.6 Deepening and widening II DeepeningWideningLowHighHighDeep and exclusive EUDeep and inclusive EULowMinimal and exclusive EUMinimal and inclusive EUA European Empire ?1.7 Possible forms of an EU-EmpireDeep and inclusive: Westphalian superstateRelatively high socio-economic homogeneityClear hierarchical structure with one centre of authorityCentralised legal, administrative, economic regimeDistinction between members and non-membersHard and fixed external border lines

Minimal and inclusive: Neo-medieval empireSocio-economic discrepanciesDisassociation between authoritative allocations, functional competenciesVarious types of political unitsCentre and peripherySoft-border zones in flux

1.8 Emperial border landsHoly Roman Empire

MarchesThe Frankish word marka and the Old English word mearc both come from Proto-Germanic *marko (Old Norse mrk "borderland, forest"[1] and derived form merki "boundary, sign"[2]), denoting a borderland between two centres of power.Marches was a medieval and early modern European name for a border areas of a realm where different laws applied, for defence of the border against hostile incursions, or to regulate border trade or both.1.9 Core and periphery

The Eurosphere

2. Relations with no-longer-so-remote countries

European Foreign policy, Neighbourhood Policy, EU enlargement2.1 A European foreign policy?The EU presents a confusing image to the outside world. It is:More than an international organization But less than a stateStates will go their own way in many areas In areas such as trade negotiations, third parties must deal with the EU as a wholeLeaves outside actors wondering whether they should still think of the 25 member states separately, or should instead think of the European Union as a single large blocLack of focus, long-time absence of policy leadership caused frustration in many countries outside of the EU

2.2 European foreign policyBefore the 1990sDifficulties to coordinate foreign policy: No historical model, no structures, no real willingness (?)External relations apolitical in natureReluctance to interfere with the domestic systems of other countriesThe EUs relationship with its immediate neighbourhood was mainly framed by its enlargement and pre-accession policiesA Common Foreign and Security Policy?Origin in the 1970s: Governments started to exchange ideas and information -> European Political Cooperation EPCDevelopment cooperation (with former colonies)Europe as an economic power: The EU has built a complex network of multilateral and bilateral trading networks and agreements (some based on proximity with Eastern Europe and Mediterranean states)

2.3 European foreign policy before and after enlargementGeopolitical changes 1989, 1990, 1991The end of the Soviet Union, new insecurities in Europe and abroadThe Gulf War 1991, Balkan Wars show limitations of European foreign policyMaastricht Treaty: Common Foreign and Security Policy, European Defence Policy (?)Enlarging to 28 members, the European project entered a crucial geopolitical stageAfter enlargements of 2004, 2007Foreign policy becomes increasingly important in the enlarged EU :Its presence will be weightier, because its size and borders have expandedNew members feeding in their external concernsEnlargement illustrated the EUs ability to influence its environment Political and economic reforms in the candidate countries, stabilising new democracies, fostering economic growth and solving regional disputes

Widening and deepening: It may be that the EU will find it harder to be an effective international actor because of internal dissensions and institutional deadlock

2.4 Origins and beginnings of the European Neighbourhood PolicyOrigins of the ENPEastern enlargement considered as the EUs most successful foreign policy Pre-accession strategies with applicant countriesEurope Agreements Agenda 2000 programme (1997)Responsibility for coordinating western economic aid -> PHARE programme for economic restructuringCreation of the European Bank for Reconstruction and Development channelling public money from the EU, US, Japan into development of free-market economicsEuropean Investment Bank: LoansTrade and cooperation agreementsHelp to upgrade university departmentsBeginnings of the ENPA number of new states will want to continue the enlargement processWestern BalkansTurkeyLimits of enlargement: Ukraine, Belarus, Russia, Moldova, Kaliningrad, North AfricaNew EU members will feed in their views into the CFSPBaltic States, Poland, Romania, Malta, CyprusBut: Conditionality! -> Not every country can become EU member!

2.5 Development of the European Neighbourhood Policy Europe Agreements Hungary and Poland, Bulgaria, the Czech Republic, Romania and Slovakia, the Baltic states. Step beyond associate membershipDesigned to integrate Eastern European economies as quickly as possible Removal of barriers of trade in industrial and agricultural goods, and of barriers to the movement of workers.

Agenda 2000Working programme for eastern states to make the transition and prepare them for EU membershipList of all measures that the Commission believed were needed to bring the eastern European states into the EUTraining of local specialists in fields such as law and administration Yearly reports on the progress each country made towards aligning their national laws2.6 Lessons of the enlargementEnlargementEastward enlargement has taught the EU valuable lessons in how to manage relations with neighbouring countries that aspire to join the EUBut membership is not a foreseeable prospect for the enlarged Unions neighboursEnlargement shifted the EU borders closer to the limits of Europe, leaving outside a number of states that are unlikely to ever become candidates for formal membership

ENPENP partly in response to the imminent enlargement and the fact that the EU was about to share borders with a number of new and no-longer-so-remote countriesThe idea behind the ENP is not totally new to EU foreign policy: Throughout the last two decades, the internal process of integration has been accompanied by the progressive extension of the EU as an established zone of prosperity, stability and securityThe ENP has at its origins in, a shared ethos with, and instruments similar to those of EU enlargement policy!

BUT: No enlargement perspective!3. Objectives3.1 Strategic and intermediate objectivesIntermediate objectivesEU offers benefits and preferential relations for progress made by the partner countries in political and economic reformStrengthen and develop existing regional and sub-regional cooperationCreating a stable regional environment for European integration, and to mitigate challenges to EU security and stabilityCooperation with partners to reduce poverty, to create an area of shared prosperity, deeper economic integration, intensified political/cultural ties, cross-border cooperation, shared responsibility for conflict prevention

Strategic objectivesStrategic approach to the post-enlargement situationStructured relationship with countries that neighbour the EU, deeper political and economic relationship between the EU and its neighboursSupporting democracy, rule of law, market economyThe long term goal is to move towards an arrangement whereby the Unions relations with the neighbouring countries ultimately resemble the close political and economic links currently enjoyed with the European Economic Area3.2 External governance through conditional integration without membershipWider EuropeSituation After enlargementNo more buffer zone for illegal immigration, drug traffic etc.Feeling of exclusion felt by new neighbours The EU will need to pay more attention to external border controls and international security Vision to stabilise the so-called near abroad to the service of the European Unions security and prosperity by a ring of friendsDesire to exert greater influence over the new neighboursAttempt to mitigate potential instabilityPrevention of the emergence of failed or rogue states New cordon sanitaire against drug trafficking, illegal migration etc.

Ring of friends

16 countries: Morocco, Algeria, Tunisia, Libya, Egypt, Israel, Jordan, the Palestinian Authority, Lebanon, Syria, Armenia, Azerbaijan, Georgia, Moldova, Ukraine, Belarus.

3.2 Two different partnershipsMediterranean PartnershipEC/EU Mediterranean Policy stretches back to the 1970s (Barcelona Process); Spain and France opposing eastern enlargement, demanding similar structure for the Mediterranean. Plan by Nicholas Sarkozy to bring together all Med. costal states, revitalising and strengthening cooperation across the Med. basin, outside the EU framework, reshape French and European foreign policy; French initiative received critique from all sides New Franco-German proposal: Barcelona Process plus In the end the two governments reluctantly agreed to open up for membership talks with eastern countries in return for a commitment towards the Mediterranean regionNew impetus for the Barcelona process: 1) Upgrading political relations between EU and Partners; 2) Increasing co-ownership of the process with a co-Presidency, 3) Regional and sub-regional projects relevant to the citizens of the regions. 4) A number of initiatives dealing with energy, environment, civil protection, transport currently being discussedEasternPartnershipProposal presented by Poland and Sweden on 26 May 2008; War in Georgia summer 2008 encouraged to accelerate work Formal launch: Eastern Partnership Summit May 2009Intention to reinvigorate the relationship between the EU and Eastern Europe, the CaucasusMultilateral framework for four policy platforms: 1) Democracy, good governance, stability; 2) Economic integration, convergence with EU policies; 3) Energy security; 4) Contacts between people;Each of the participants is offered the prospect of an Association Agreement with the EU but with no prospect of future EU membershipAssociation Agreements provide for the creation of individual deep and comprehensive free trade areas with each partnership country, which, in turn, could be joined together to form a Neighbourhood Economic CommunityWidening and deepening: It may be that the EU will find it harder to be an effective international actor because of internal dissensions and institutional deadlock:

New EU members such as Poland did not want to see their accession lead to the erection of new barriers to countries with which they have cultural, social, and economic links

Growing geographical spread of the European Union leading to dissent among members

Break!5. Policy instrumentsThe golgen carrot of accession?5.1 Be like us, but not one of us!The New OfferThe ENP opens up the prospect of a free-trade area between the EU and her neighbours. Naturally, economic cooperation and development cannot be separated from politics and security issues. Change in neighbouring countries is sought by way of incentives set out in return of reformsEU ties any re-evaluation of the bilateral relationship with a neighbouring partner country to progress in certain areas Numerous incentives offered in return for the effective implementation of political, economic and institutional reformsConditionality in practiseThe ENPs instruments established and applied successfully in the relationship with the Central and Eastern European candidate countries Modelled most directly on the pre-accession contextConditionality method: Incentives for compliance with EU values and parts of the acquis There was nothing new in the ENP except packaging (Commission official)

The goal of accession is certainly the most powerful stimulus for reform we can think of. But why should a less ambitious goal not have some effect? (Romano Prodi)

The ENP does ... promote enlargement - albeit only at the level of selected policy areas and without access to the core decision-making bodies of the EU (Schimmelfennig)5.2 Incentives: Improved political cooperation, further economic integration, and increased financial assistance Internal marketExpansion of regulatory structures, reduction of trade barriersPerspective of lawful migration and movement of personsInstruments for investment promotion and protectionAdditional funding for reconstruction and developmentIncentives in the area of transport, energy and telecommunication

Social exchangeVisa-free regimesConflict prevention and crisis management; judicial and police cooperationIntegration into research programmesEnhancement of mutual understanding, dialogue, free exchange of ideas, development of a civil society, student and professional exchange programmes, governance and human right training. Intensified cooperation to prevent and combat common security threats (terrorism, organised crime, nuclear and environmental hazards etc.)

5.3 InstrumentsMain Instruments:Action PlansPartnerships Association Agreements (which in the past have been precursors of the accession process)Unilateral reports (regular country reports) akin to progress reports used during accession process

Financing:European Neighbourhood and Partnership Instrument (ENPI, introduced 2007)ENPI replaces all other existing programmes such as INTERREG, PHARE, CARDS, TACIS, MEDA Neighbourhood Investment Facility5.4 Action PlansMain instrument of the NEP; backed by financial and technical assistance.List of different priorities for engagement and reforms the partner country should undertakeRoad map and guidance for reform, comprehensively identifying the different areas which need to be tackledVery similar to the Europe Agreements used within the enlargement policyExample EU-Moldova Action Plan: Lists more than 300 reforms across a whole range of sectors from political institutions to the economy and highlighting the most important prioritiesDeveloped for each individual partner country, defined by common consent, thus varying from country to country Cover periods of three to five yearsFocused on several priorities: Commitment to shared valuesA more effective political dialogueEconomic and social development policy (legislative and regulatory approximation to the Internal Market)Trade and Internal Market (approximation to the Internal Market, regulatory convergence, market opening)Justice and Home Affairs (border management)Connecting the neighbourhood (Safety and security of energy supply, transport links and the environment, information and communications technology, research and innovation)People to people, programmes and agenciesEU offers expert advise, financial assistance programmes, monitoring and evaluations on progress achieved4. Actors4.1 ActorsEU internMajor parts of the Commissions personnel resources were simply shifted from the enlargement to the ENP corner (J. Kelly)Several key officials now working on the ENP have a distinct enlargement background, and most teams working on the preparation of one specific candidate have been retained and assigned together to deal with one of the ENP countriesFrom a practical point of view, the lack of regroupment on the lowest level of individuals involved in the process of implementation might have reinforced the strategic reliance oft he ENP on models and solutions associated with the enlargementWith partner countryCooperation or Association Councils held with each partner, bringing together representatives of the partner country, the member states, the Council Secretariat and the European Commission)

7. Special Partnerships7.1 ENP vs. Near Abroad: The EU, Ukraine, and RussiaSoft power

Hard powerEuropeans need to understand that the question of accession is about strategic security interests, not the mere enlargement of the internal market for cucumbers and screws. Enlargement policy is in EUs self-interest. (Joschka Fischer, former German foreign minister)

Further ReadingReferences, sourcesReferencesJ. Kelly (2006) New Wine in Old Wineskins. Promoting Political Reforms Through the New European Neighbourhood Policy, Journal of Common Market Studies, 44 (1).Lavenex and F. Schimmelfennig (2006), Relations with the Wider Europe, Journal of Common Market Studies, Annual Review, 45(1), pp. 143G. Meloni (2007), Whos My Neighbour?, European Political Economy Review, 7, pp. 24-37.

DocumentsCommunication from the Commission, Wider Europe Neighbourhood: A New Framework for Relations with our Eastern and Southern Neighbours, COM(2003) 104 final, Brussels, 11 March 2003: exclude states with a membership perspective, embracing Moldova, Ukraine, Belarus, Southern/Eastern Mediterranean (North Africa, Middle East)Communication from the Commission, European Neighbourhood Policy, Strategy Paper, COM(2004) 373 final, Brussels, 12 May 2004Commission of the European Communities (2008), Communication from the Commission, Barcelona Process: Union for the Mediterranean COM(2008) 319 final, Brussels, 20 May 2008European Council (2008), Presidency Conclusions, Brussels European Council, 19/20 June 2008, Brussels

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