UEunrioopnean
Institute for
Security Studies
European Security
and Defence Policy
THE FIRST 10 YEARS (1999-2009)
Edited by
Giovanni Grevi,
Damien Helly and
Daniel Keohane
Contributors Sabine Fischer Eva Gross Daniel Korski Michael Merlingen
Esra Bulut Benedikt Franke Damien Helly Xymena Kurowska Luis Peral
Caty Clément Richard Gowan Isabelle Ioannides Dov Lynch Kirsten E. Schulze
George Dura Giovanni Grevi Daniel Keohane Claudia Major Thierry Vircoulon
In January 2002 the Institute for Security Studies (EUISS) became an autonomous
Paris-based agency of the European Union. Following an EU Council Joint Action of 20
July 2001, modified by the Joint Action of 21 December 2006, it is now an integral part
of the new structures that will support the further development of the CFSP/ESDP. The
Institute’s core mission is to provide analyses and recommendations that can be of
use and relevance to the formulation of the European security and defence policy. In
carrying out that mission, it also acts as an interface between European experts and
decision-makers at all levels.
The European Union Institute for Security Studies . Paris
Director: Álvaro de Vasconcelos
© EU Institute for Security Studies 2009. All rights reserved. No part of this publication
may be reproduced, stored in a retrieval system or transmitted in any form or by any
means, electronic, mechanical, photocopying, recording or otherwise without the prior
permission of the EU Institute for Security Studies.
Published by the EU Institute for Security Studies and printed in Condé-sur-Noireau
(France) by Corlet Imprimeur, Graphic design by Metropolis (Lisboa)
European Security and Defence Policy:
the first ten years (1999-2009)
Esra Bulut, Caty Clément, George Dura, Sabine Fischer, Benedikt
Franke, Richard Gowan, Giovanni Grevi, Eva Gross, Damien Helly,
Isabelle Ioannides, Daniel Keohane, Daniel Korski, Xymena Kurowska,
Dov Lynch, Claudia Major, Michael Merlingen, Luis Peral, Kirsten E.
Schulze, Thierry Vircoulon
Preface by Álvaro de Vasconcelos
Edited by Giovanni Grevi, Damien Helly and Daniel Keohane
Institute for Security Studies ISBN 978-92-9198-157-1
European Union QN-80-09-910-EN-C
43 avenue du Président Wilson
75775 Paris cedex 16
tel.: +33 (0)1 56 89 19 30
fax: +33 (0)1 56 89 19 31
e-mail: [email protected]
www.iss.europa.eu
Director: Álvaro de Vasconcelos
Acknowledgements
The editors wish sincerely to thank a number of people for their support during
this project. Firstly, we wish to thank the contributors to this book, without their
coo peration it would not have been possible. We also wish to thank the numer-
ous EU officials, national diplomats and operations personnel who gave up their
valuable time for interviews or to give comments on drafts, and who would prefer
to remain anonymous. Many thanks also to Álvaro de Vasconcelos, the Director
of the EUISS, for his support, and to various EUISS colleagues – these include
Gearóid Cronin for his language editing, Hanno Ranck for graphic design, and
Marie Antonini-Alvarez for research help. Finally, for their extensive help with re-
search, we wish to thank Charlotte B lommestijn, Project A ssistant, and the follow-
ing interns at the EUISS: Monika Brzoska, Katrin B uchmann, Igor Garcia-Tapia,
Kasper Gimsing, Pol Morillas, Florina-Laura Neculai and Marta Z ajaczkowska.
Any factual errors are, of course, our responsibility.
Paris, October 2009
Contents 9
Preface 13
Álvaro de Vasconcelos 17
19
Introduction 21
23
Giovanni Grevi, Damien Helly and Daniel Keohane 53
59
Part One 69
71
1. ESDP institutions 90
115
Giovanni Grevi 117
Framing institutional reform 127
The institutional architecture 139
The planning process 147
The Lisbon Treaty: continuity and innovation
2. ESDP resources
Giovanni Grevi and Daniel Keohane
Military resources for ESDP
Civilian resources for ESDP
3. ESDP partnerships
ESDP and the United Nations
Richard Gowan
ESDP and NATO
Daniel Keohane
ESDP and the OSCE
Dov Lynch
ESDP and the African Union
Damien Helly
Part Two 159
161
4. EUPM (Bosnia and Herzegovina) 173
181
Michael Merlingen 187
201
5. Operation CONCORDIA (fYROM) 211
221
Eva Gross 231
243
6. Operation ARTEMIS (RD Congo) 255
265
Damien Helly 275
287
7. EUPOL PROXIMA / EUPAT (fYROM) 299
Isabelle Ioannides
8. EUJUST THEMIS (Georgia)
Xymena Kurowska
9. EUFOR ALTHEA (Bosnia and Herzegovina)
Daniel Keohane
10. EUPOL Kinshasa and EUPOL RD Congo
Thierry Vircoulon
11. EUJUST LEX (Iraq)
Daniel Korski
12. EUSEC RD Congo
Caty Clément
13. Support to AMIS and AMISOM (Sudan and Somalia)
Benedikt Franke
14. AMM (Aceh, Indonesia)
Kirsten E. Schulze
15. EUBAM Moldova-Ukraine
George Dura
16. EUPOL COPPS (Palestinian territories)
Esra Bulut
17. EUBAM Rafah (Palestinian territories)
Esra Bulut
6
18. EUFOR RD Congo 311
325
Claudia Major 339
353
19. EUPOL Afghanistan 369
379
Luis Peral 391
20. EUFOR Tchad/RCA 403
Damien Helly 413
414
21. EULEX Kosovo 415
416
Giovanni Grevi 417
421
22. EU SSR Guinea-Bissau 443
Damien Helly
23. EUMM Georgia
Sabine Fischer
24. EU NAVFOR Somalia
Damien Helly
Conclusion: the next steps for ESDP
Giovanni Grevi, Damien Helly and Daniel Keohane
Annexes
Estimates of Member States’ contributions to military ESDP operations
Estimates of Member States’ contributions to ongoing civilian ESDP operations
ESDP operations at a glance
About the authors
Bibliography
Abbreviations
7
8
Preface
ESDP: A reality check
2009 was the ‘year of ESDP’ at the EUISS with the release of two publications
marking the first ten years of the European Security and Defence Policy. The
EUISS set out to produce two books: one – this volume – consists of a retrospec-
tive examination of the last ten years, including a detailed account and analysis
of each individual ESDP mission, while the other, What ambitions for European
defence in 2020?, seeks to define what should be the ambition for European de-
fence in the coming decade.
European Security and Defence Policy: the first ten years (1999-2009), which has in-
volved the in-house research team almost in its entirety and drawn in further
contributions, has brought to light, with the methodological persistence and
thoroughness of the archaeologist, working layer by layer, stone by stone, all
past and current ESDP missions’ achievements and shortcomings. It examines
in depth virtually all issues relevant to ESDP, its institutions and their work-
ings, the available resources and their use, as well as the way it relates to other
international organisations, mainly the UN, NATO, the OSCE and the Afri-
can Union. With this multi-authored volume, the EUISS is now able to offer a
manual of ESDP, that will hopefully serve as a reference book for the use of all
those interested in the development of European security and defence policy, in
both its civil and military aspects.
What is striking is not so much that the main policy conclusions drawn from
both exercises should practically be the same. What is rather more striking is
that by looking closely at twenty-three EU missions one by one, from the first
mission in Bosnia to the naval operation off the coast of Somalia, a larger pic-
ture emerges of the future contours and development of ESDP. ESDP is al-
ready maturing, and indeed in different ESDP missions elements of its future
shape can already be inferred. Building on the last ten years’ best practice, as
the present study suggests, will allow for substantially enhanced effectiveness
9
European Security and Defence Policy: the first ten years (1999-2009)
in the ten years to come, and make it easier to reverse the three major deficits both
EUISS volumes identify in parallel: the political deficit or the Common Foreign and
Security Policy (CFSP) gap, insufficient coherence and inadequate capabilities.
Examining the EU monitoring mission in Georgia, Sabine Fischer demonstrates
that an enormous gain of efficiency is achieved by integrating a mission into a well-
defined strategy under ‘strong leadership’ unanimously backed by Member States.
EU action to prevent a dangerous escalation of war on its doorstep was decisive also
because it was swift, and part of the reason for this timeliness relates to unity of pur-
pose. The need to bridge the political deficit is a main recommendation for the next
ten years. The EU mission in Georgia proves that it is quite possible to overcome the
political gap that has weakened the impact of other EU missions. Looking at the
current mission in Kosovo, Giovanni Grevi concludes that more thinking needs to
be devoted ‘to the connection between foreign policy and ESDP’, and expresses the
hope the Lisbon Treaty will indeed help bridge the gap.
Advantages in terms of coherence that can be gained by unifying EU external ac-
tion emerge just as clearly from the detailed analysis of the various missions in the
Balkans, where many European Commission projects are also being implemented
alongside ESDP operations. As Eva Gross states, highlighting the EU’s excellent
record as a crisis management actor in the former Yugoslav Republic of Macedonia
(FYROM), the ‘linear application and devolution from a military to a civilian ESDP
mission followed by Community programmes’ was crucial to the success of the EU’s
intervention there. This is true even though, as has often been observed, strong
inter-pillar coordination has in many cases been lacking, including in the Balkans.
The double-hatted EU representation to the African Union in Addis Ababa is a fore-
taste of things to come. Damien Helly points out that it ‘is seen as a very successful
experience so far’, and one that must certainly be carefully studied in the process
of establishing the European External Action Service. But the need for coherence
does not merely refer to the ability to give a common thrust to EU diplomacy, but
perhaps more decisively to the necessity to ensure that national policies are part of it
as well. Examples of the failures of coordination between EU Members States both
among themselves and within the Union are catalogued far too frequently in these
pages, Afghanistan being a case in point. The Union needs to overcome the coher-
ence deficit without weakening EU legitimacy for the sake of effectiveness.
10