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

1. Europe as Empire II: Borderlands Insider, newcomer, newneighbour: The European NeighbourhoodPolicyafter enlargement

2. 0.1 Overview Some questions The lecture Europe as Empire II: Borderlands ENP and enlargement Aims Actors Policy instruments: The golden carrot of accession? Special Partnerships • What is European Neighbourhood Policy? • Who is involved? • On what fields? • Is it effective? • Who benefits?

3. 1. Europe as Empire II: Borderlands

4. 1.1 Europe as Empire: Barroso But whatdoesthatactuallymean...? I thinkthe EU is an empire!

5. 1.2 Europe as Empire? • Dimension, enlargement • Not made through force • No centre, which is imposing a dictat

6. 1.3 Timeline ENLARGEMENT ROUNDS OVER TIME

7. 1.4 Impact of enlargement on the EU: Growing heterogeneity Founding members After 7 enlargements Paradigm: United in diversity Growing numbers of members Growing heterogeneity of members Increasing incapacity for uniform integration Increasing difficulties to find uniform, fit-for-all regulations that are equally binding for all members • Paradigm: Unification through uniform and equally binding regulations • Limited number of continental European member states • Similar level of socio-economic development • Negotiable antagonisms due to complementary economic and social structures

8. 1.5 Deepening and widening I Vertical institutionalisation = “Deepening” Members = „Widening“

9. 1.6 Deepeningandwidening II Widening Deepening A European Empire ?

10. 1.7 Possible forms of an EU-Empire Deep and inclusive: Westphaliansuperstate Minimal and inclusive: Neo-medieval empire Socio-economic discrepancies Disassociation between authoritative allocations, functional competencies Various types of political units Centre and periphery Soft-border zones in flux • Relatively high socio-economic homogeneity • Clear hierarchical structure with one centre of authority • Centralised legal, administrative, economic regime • Distinction between members and non-members • Hard and fixed external border lines

11. 1.8 Emperial border lands Holy Roman Empire Marches The Frankish word marka and the Old English word mearc both come from Proto-Germanic*marko (Old Norsemörk "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.

12. 1.9 Core andperiphery The Eurosphere

13. 2. Relations withno-longer-so-remote countries European Foreignpolicy, NeighbourhoodPolicy, EU enlargement

14. 2.1 A European foreignpolicy? • The EU presents a confusing image to the outside world. It is: • More than an international organization • But less than a state • States will go their own way in many areas • In areas such as trade negotiations, third parties must deal with the EU as a whole • Leaves 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 bloc • Lack of focus, long-time absence of policy leadership caused frustration in many countries outside of the EU

15. 2.2 European foreignpolicy Beforethe 1990s A Common Foreignand Security Policy? Origin in the 1970s: Governments started to exchange ideas and information -> European Political Cooperation EPC Development 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) • Difficulties to coordinate foreign policy: No historical model, no structures, no real willingness (?) • External relations apolitical in nature • Reluctance to interfere with the domestic systems of other countries • The EU’s relationship with its immediate neighbourhood was mainly framed by its enlargement and pre-accession policies

16. 2.3 European foreignpolicybeforeandafter enlargement Geopoliticalchanges 1989, 1990, 1991 After enlargementsof 2004, 2007 Foreign policy becomes increasingly important in the enlarged EU: Its presence will be weightier, because its size and borders have expanded New members feeding in their external concerns Enlargement illustrated the EU’s ability to influence its environment Political and economic reforms in the candidate countries, stabilising new democracies, fostering economic growth and solving regional disputes • The end of the Soviet Union, new insecurities in Europe and abroad • The Gulf War 1991, Balkan Wars show limitations of European foreign policy • Maastricht Treaty: Common Foreign and Security Policy, European Defence Policy (?) • Enlarging to 28 members, the European project entered a crucial geopolitical stage • 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

17. 2.4 Origins and beginnings of the European Neighbourhood Policy Origins of the ENP Beginningsofthe ENP A number of new states will want to continue the enlargement process Western Balkans Turkey Limits of enlargement: Ukraine, Belarus, Russia, Moldova, Kaliningrad, North Africa New EU members will feed in their views into the CFSP Baltic States, Poland, Romania, Malta, Cyprus But: Conditionality! -> Not every country can become EU member! • Eastern enlargement considered as the EU’s most successful foreign policy • Pre-accession strategies with applicant countries • Europe Agreements • Agenda 2000 programme (1997) • Responsibility for coordinating western economic aid -> PHARE programme for economic restructuring • Creation of the European Bank for Reconstruction and Development channelling public money from the EU, US, Japan into development of free-market economics • European Investment Bank: Loans • Trade and cooperation agreements • Help to upgrade university departments

18. 2.5 Development oftheEuropean NeighbourhoodPolicy Europe Agreements Agenda 2000 Working programme for eastern states to make the transition and prepare them for EU membership List of all measures that the Commission believed were needed to bring the eastern European states into the EU Training of local specialists in fields such as law and administration Yearly reports on the progress each country made towards aligning their national laws • Hungary and Poland, Bulgaria, the Czech Republic, Romania and Slovakia, the Baltic states. • Step beyond associate membership • Designed 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.

19. 2.6 Lessonsoftheenlargement Enlargement ENP ENP 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 countries The 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 security • Eastward enlargement has taught the EU valuable lessons in how to manage relations with neighbouring countries that aspire to join the EU • But membership is not a foreseeable prospect for the enlarged Union’s neighbours • Enlargement 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 • The ENP has at its origins in, • a shared ethos with, • and instruments similar to those of • EU enlargement policy! • BUT: No enlargement perspective!

20. 3. Objectives

21. 3.1 Strategic and intermediate objectives Intermediate objectives EU offers benefits and preferential relations for progress made by the partner countries in political and economic reform Strengthen and develop existing regional and sub-regional cooperation Creating a stable regional environment for European integration, and to mitigate challenges to EU security and stability Cooperation 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 objectives • Strategic approach to the post-enlargement situation • Structured relationship with countries that neighbour the EU, deeper political and economic relationship between the EU and its neighbours • Supporting democracy, rule of law, market economy • The long term goal is to move towards an arrangement whereby the Union’s relations with the neighbouring countries ultimately resemble the close political and economic links currently enjoyed with the European Economic Area

22. 3.2 External governance through conditional integration without membership Wider Europe Ring offriends • Situation After enlargement • No 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 Union’s security and prosperity by a ring of friends • Desire to exert greater influence over the new neighbours • Attempt to mitigate potential instability • Prevention of the emergence of failed or rogue states • New “cordon sanitaire” against drug trafficking, illegal migration etc. 16 countries: Morocco, Algeria, Tunisia, Libya, Egypt, Israel, Jordan, the Palestinian Authority, Lebanon, Syria, Armenia, Azerbaijan, Georgia, Moldova, Ukraine, Belarus.

23. 3.2 Two different partnerships MediterraneanPartnership Eastern Partnership Proposal presented by Poland and Sweden on 26 May 2008; War in Georgia summer 2008 encouraged to accelerate work  Formal launch: Eastern Partnership Summit May 2009 Intention to reinvigorate the relationship between the EU and Eastern Europe, the Caucasus Multilateral 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 membership Association 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 Community • 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: • 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 • EC/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 region • New 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 discussed

24. Break!

25. 5. Policyinstruments The golgencarrotofaccession?

26. 5.1 Belike us, but not one of us! The „New Offer“ Conditionality in practise The ENP’s instruments established and applied successfully in the relationship with the Central and Eastern European candidate countries Modelled most directly on the pre-accession context Conditionality method: Incentives for compliance with EU values and parts of the acquis „There was nothing new in the ENP except packaging” (Commission official) „The goalofaccessioniscertainlythemost powerful stimulusforreformwecanthinkof. But whyshould a lessambitiousgoal not havesomeeffect?“ (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) • The 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 reforms • EU 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 reforms

27. 5.2 Incentives: Improved political cooperation, further economic integration, and increased financial assistance Internal market Socialexchange Visa-free regimes Conflict prevention and crisis management; judicial and police cooperation Integration into research programmes Enhancement 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.) • Expansion of regulatory structures, reduction of trade barriers • Perspective of lawful migration and movement of persons • Instruments for investment promotion and protection • Additional funding for reconstruction and development • Incentives in the area of transport, energy and telecommunication

28. 5.3 Instruments • Main Instruments: • Action Plans • Partnerships • 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 Facility

29. 5.4 Action Plans • Main instrument of the NEP; backed by financial and technical assistance. • List of different priorities for engagement and reforms the partner country should undertake • Road map and guidance for reform, comprehensively identifying the different areas which need to be tackled • Very similar to the Europe Agreements used within the enlargement policy • Example 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 priorities • Developed for each individual partner country, defined by common consent, thus varying from country to country • Cover periods of three to five years • Focused on several priorities: • Commitment to shared values • A more effective political dialogue • Economic 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 agencies • EU offers expert advise, financial assistance programmes, monitoring and evaluations on progress achieved

30. 4. Actors

31. 4.1 Actors EU intern Withpartnercountry Cooperation or Association Councils held with each partner, bringing together representatives of the partner country, the member states, the Council Secretariat and the European Commission) • “Major parts of the Commission’s 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 countries • From 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 enlargement

32. 7. Special Partnerships

33. 7.1 ENP vs. NearAbroad: The EU, Ukraine, andRussia Soft power Hard power “Europeans 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 EU‘s self-interest. (Joschka Fischer, former German foreign minister)

34. Further Reading

35. References, sources References Documents Communication 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 2004 Commission of the European Communities (2008), Communication from the Commission, Barcelona Process: Union for the Mediterranean COM(2008) 319 final, Brussels, 20 May 2008 European Council (2008), Presidency Conclusions, Brussels European Council, 19/20 June 2008, Brussels • J. 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. 143 • G. Meloni (2007), ‘Who’s My Neighbour?’, European Political Economy Review, 7, pp. 24-37.

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