General Secretariat of the CouncilGeneral Secretariat of the Council

The Politics & Institutions

of EU Crisis Management

Quentin Weiler

First Secretary for Political Affairs, EU Delegation to Pakistan

1 February 2014

Outline of PresentatOutline of Presentationion

I. EU external relations after LisbonI. EU external relations after Lisbon

II. II. Institutional structures in practiceInstitutional structures in practice

III. III. Q & AQ & A

CFSP and CSDP in contextCFSP and CSDP in context

CFSP / CSDP (ex-2CFSP / CSDP (ex-2ndnd pillar) pillar)(Common positions on foreign policy issues, civilian/military (Common positions on foreign policy issues, civilian/military crisis management, sanctions policy, non-proliferation)crisis management, sanctions policy, non-proliferation)

External relations wider than CFSP/CSDP:External relations wider than CFSP/CSDP:

- Development, Trade, Humanitarian Aid, Enlargement Development, Trade, Humanitarian Aid, Enlargement

- External aspects of internal Policies (climate change, External aspects of internal Policies (climate change, energy…)energy…)

EUEU COMPREHENSIVE APPROACHCOMPREHENSIVE APPROACH

What is new with Lisbon Treaty?What is new with Lisbon Treaty?

President of the European CouncilPresident of the European Council

High Representative for Foreign Affairs and High Representative for Foreign Affairs and Security Policy Security Policy

European External Action Service (EEAS)European External Action Service (EEAS)

EU Delegations (139 in the world)EU Delegations (139 in the world)

Double or Triple Hatted?Double or Triple Hatted?

HRVP

Chair FAC

What’s the difference?What’s the difference?

Presidency Presidency – FAC, PSC and Working Group – FAC, PSC and Working Group Chairs, agenda setting, statements and Chairs, agenda setting, statements and declarations, external representation, EU declarations, external representation, EU DELs representing locally DELs representing locally

+ Council Secretariat+ Council Secretariat – preparation of – preparation of documentsdocuments

+ Commission+ Commission – supervision of external – supervision of external relations instrumentsrelations instruments

= EEAS= EEAS

ContinuityContinuity

VisibilityVisibility

CoherenceCoherence

What does the Lisbon Treaty bring?What does the Lisbon Treaty bring?

European Council

RELEXCIVCOM

Regional and thematic Working Groups

eg. COEST, COARM, COWEB, COLAT...

General Affairs External Relations Council (GAERC)

(+ Defence and Development Council)

Coreper II(highest permanent representatives)

PSC

(ambassador level)

Council Decision-making bodies (Pre-Lisbon)

PMG

Ch

air

ed a

nd

ste

ere

d b

y r

ota

tin

g

Pre

sid

en

cy

MS

+ C

omm

issi

on r

epre

sent

ativ

e

European Council

RELEX

Rotating pcyCIVCOM

Regional and thematic Working Groups

eg. COEST, COARM, COWEB, COLAT...

Council of Ministers (FAC)

(Foreign, Defence, Development Min.)

Coreper II(highest permanent representatives)

PSC

(ambassador level)

PMG

Ch

air

ed a

nd

ste

ere

d b

y r

ota

tin

g P

res

iden

cy

MS

+ C

omm

issi

on r

epre

sent

ativ

e

Perman

ent

Chair

Perman

ent

Chair*

Perman

ent

Chair*

Perman

ent

Chairs

*

*coming from EEAS

Council Decision-making bodies (Post-Lisbon)

““RELEX family”RELEX family”

Développement

Coopération internationale,aide humanitaire etréaction aux crises

Commerce

Elargissement etvoisinage

EEAS service provider EEAS service provider for the two Presidentsfor the two Presidents

European CouncilEuropean

Commission

European External Action Service

Corporate BoardCorporate Board

Deputy Secretary GeneralDeputy Secretary

General

Chief Operating Officer

Executive Secretary General

Pierre Vimont David O’Sullivan

Maciej PopowskiHelga Schmid

Catherine Ashton

HR and EEAS foreign policy priorities

NeighbourhoodNeighbourhood

Relations with strategic partnersRelations with strategic partners

Setting up of the EEASSetting up of the EEAS

Iran Nuclear Talks – E3+3

Serbia-Kosovo

deal

Supporting democracy & reforms

HR and EEAS successes

Tackling piracy

and stabilization

of Somalia

HR and EEAS failures

Lack of visibility Lack of visibility

Missed opportunitiesMissed opportunities

Lack of definition of EU's Lack of definition of EU's strategic interestsstrategic interests

CFSP tools / CFSP tools / instrumentsinstruments

Public positions on International situation / events: Public positions on International situation / events:

- Statements (HR alone or on behalf of the EU)- Statements (HR alone or on behalf of the EU)

- Council Conclusions + Press releases after FAC- Council Conclusions + Press releases after FAC

Legal acts authorising EU action: ‚Decisions‘ Legal acts authorising EU action: ‚Decisions‘

- Sanctions (currently Iran, Syria, Belarus, etc.)- Sanctions (currently Iran, Syria, Belarus, etc.)

- Non-proliferation (support to AIEA, NPT, etc.)- Non-proliferation (support to AIEA, NPT, etc.)

EU Special Representatives (currently 10)EU Special Representatives (currently 10)

Diplomatic (confidential) Instruments:Diplomatic (confidential) Instruments:

- Political Dialogue (from HR to officials’ level) - Political Dialogue (from HR to officials’ level)

- Demarches (e.g. non recognition of Abkhazia)- Demarches (e.g. non recognition of Abkhazia)

Common Security and Defence PolicyCommon Security and Defence Policy

Civilian missions Civilian missions (first one in BiH in 2003): (first one in BiH in 2003):

→ → 23 up to date / 11 ongoing23 up to date / 11 ongoing

→ → HQ in Brussels (CPCC)HQ in Brussels (CPCC)

→ → Financing: CFSP budgetFinancing: CFSP budget

Military operationsMilitary operations (first one in DRC in 2003 (first one in DRC in 2003):):

→ → 7 up to date / 4 ongoing 7 up to date / 4 ongoing

→→ HQ in one of the 5 pre-identified (DE, EL, FR, IT, UK)HQ in one of the 5 pre-identified (DE, EL, FR, IT, UK)

→ → Financing: Athena mechanism for common costs (based Financing: Athena mechanism for common costs (based on GDP) and voluntary contributions from Member Stateson GDP) and voluntary contributions from Member States

→→ Battle Groups (1500 troops): in principle 2 on stand-by Battle Groups (1500 troops): in principle 2 on stand-by (currently EL + RO, BG and LT)(currently EL + RO, BG and LT)

Civilian missionsCivilian missions

2000

• Police trainingPolice training• Strengthening the Rule Strengthening the Rule of Lawof Law

• Civilian administrationCivilian administration

• Civil protectionCivil protection

1992•Tasks of combat forces in crisis management, including peace-making; •Humanitarian/Rescue tasks;•Conflict prevention and peace-keeping tasks.

2011

• Joint disarmament operations;• Military advice and assistance tasks (e.g. DDR and SSR); • Post-conflict stabilisation tasks.

Military operations: 'Petersberg tasks'Military operations: 'Petersberg tasks'

EU's External financial instrumentsEU's External financial instruments

Bilateral instrumentsBilateral instruments

→ → Instrument for Pre-Accession Assistance (IPA)Instrument for Pre-Accession Assistance (IPA)

→ → European Neighbourhood Instrument (ENI)European Neighbourhood Instrument (ENI)

→ → Development Cooperation Instrument (DCI)Development Cooperation Instrument (DCI)

→ → European Development Fund (EDF)European Development Fund (EDF)

Thematic InstrumentsThematic Instruments

→ → Instrument for Stability (IfS): Instrument for Stability (IfS):

- - short-term component: crisis responseshort-term component: crisis response

- - long term component: trans-regional threatslong term component: trans-regional threats

→→ European Instrument for Democracy and Human European Instrument for Democracy and Human Rights Rights (EIDHR)(EIDHR)

→→ African Peace Facility (APF)African Peace Facility (APF)

General Secretariat of the CouncilGeneral Secretariat of the Council

What happens in a case of crisis?

CrisisCrisis breaks out: breaks out:

– information gatheringinformation gathering: using all channels: using all channels

– political track:political track: PSC and/or CouncilCouncil

– operational trackoperational track: evaluation of options and : evaluation of options and PSC to consider PSC to consider

actionaction

PlanningPlanning a Crisis Management mission: a Crisis Management mission:

- Crisis Management Concept (CMC) with several - Crisis Management Concept (CMC) with several options (from military to civilian engagement)options (from military to civilian engagement)

1 – Routine phase

2 – Outbreak of crisis and drafting of option paper

3 – Endorsement of one/several options

4 – Formal decision to act and drafting of framework documents

5 – Implementation of the measures

6 – Review of the implemented measures

Crisis management proceduresCrisis management procedures

General Secretariat of the CouncilGeneral Secretariat of the Council

After adoption of the CMC, After adoption of the CMC, EEAS to EEAS to draft further draft further Planning Documents:Planning Documents:

- CONOPS (discussed in WGs, PSC, FAC)- CONOPS (discussed in WGs, PSC, FAC)

- OPLAN ([drafted with HoM], WG, PSC, FAC)- OPLAN ([drafted with HoM], WG, PSC, FAC)

Contacts with Contacts with host countryhost country: letter of invitation, status of : letter of invitation, status of mission agreement (SOMA)mission agreement (SOMA)

Parallel legal track: Parallel legal track: DecisionDecision (Relex/Coreper/ FAC) (Relex/Coreper/ FAC)

Force generationForce generation Conference -> deployment Conference -> deployment

Crisis management proceduresCrisis management procedures

Deliverable: Option paper

I. Executive Summary

II. Political and security situation– Facts (situation and existing EU engagement)– EU approach (political interest, legal framework, key objectives)

III. Options available through the various EU instruments – Political initiatives (UN, EUSR…)– Development and security cooperation (DCI, EDF, AFP, IfS, etc…)– Humanitarian aid– Crisis management

IV. Crisis management concept (CMC)– EU objectives (why a deployment would be relevant)– Options (incl. envisaged measures, risks, objectives, end state, etc…)

V. Evaluation of options and recommendation

PreamblePreamble– Citation (legal basis – Art 28 in case of crisis Citation (legal basis – Art 28 in case of crisis

management mission)management mission)– Recitals (“whereas” part, listing reasons, key Recitals (“whereas” part, listing reasons, key

documents, relevant international legal acts..)documents, relevant international legal acts..)

ArticlesArticles– Mission, Objectives, TasksMission, Objectives, Tasks– Chair of command, political controlChair of command, political control– Financial arrangementsFinancial arrangements– Participation of third statesParticipation of third states

Deliverable: Decision

General structure (Title, Preamble, General structure (Title, Preamble, enacting Terms)enacting Terms)

PreamblePreamble– Citation (legal basis – Art 28 in case of crisis Citation (legal basis – Art 28 in case of crisis

management mission)management mission)– Recitals (“whereas” part, listing reasons, key Recitals (“whereas” part, listing reasons, key

documents, relevant international legal acts..)documents, relevant international legal acts..)

Deliverable: Decision

- Outburst of conflict between Georgia and Russia (7 August)

- Reaction of the Presidency – six points plan (12 August)

- State of play political and security situation (PSC 12 August)

- Council conclusions and mandate for option paper (GAERC 13 August)

- Discussion on Option paper (PSC 19 August), recommendation on

option paper (PSC 27 August) launching of an explanatory mission

(PSC 29 August)

- Detailed discussions of the CMC (CivCom 22 and 26 August)

- Parallel contacts in NY (UN), Vienna (OSCE), Brussels (NATO) and

with third partners (US, Russia…)

Case Study – Georgia Case Study – Georgia

General Secretariat of the CouncilGeneral Secretariat of the Council

Case Study – Georgia Case Study – Georgia

Immediate ActionImmediate Action: enhancing situational awareness, : enhancing situational awareness, humanitarian access, deployment of technical humanitarian access, deployment of technical experts, liaison with OSCE and UN, experts, liaison with OSCE and UN, reinforcement of EUSR office.reinforcement of EUSR office.

Option 1Option 1: : support to UN and/or OSCE lead on support to UN and/or OSCE lead on monitoring and/or interposition/protect effort monitoring and/or interposition/protect effort

Option 2Option 2: : EU civilian Monitoring Mission EU civilian Monitoring Mission

Option 3Option 3: : EU inter-position/protect mission (EUFOR)EU inter-position/protect mission (EUFOR)

non-CSDP EU Support Measuresnon-CSDP EU Support Measures: longer term peace : longer term peace process; civil protection assistance; further process; civil protection assistance; further range of stabilisation measures incl. range of stabilisation measures incl. confidence building measuresconfidence building measures

- Political roadmap at highest level (European Council 1 September)

o Support to six-point plan

o Support for appointment of an EUSR

o Support for CSDP deployment

- Adoption of planning documents and transmission of Decision to Council (PSC 10

and 12 September)

- Launching of the mission and appointment of the Head of Mission. Mandate:

monitoring compliance six points plan, stabilization, confidence building monitoring compliance six points plan, stabilization, confidence building (GAERC

15 September).

- Launching of the Geneva talks on situation at border (Launching of the Geneva talks on situation at border (15 September15 September))

- Force generation conference (16 September)

- Appointment of an EUSR for the crisis in Georgia (GAERC - 25 September)

- Start deployment of the mission (29 September)

- Donor conference in Brussels (29 September)

Case Study – Georgia Case Study – Georgia

- Launching of operation EU NAVFOR ATALANTA on the fight against piracy off the coast

of Somalia (GAERC – November 2008)

- Signing of MoU with Kenya and the Seychelles for the transfer of arrested pirates

(February 2009) and later with Mauritius (March 2011)

- Launching of IfS projects (€3.5M + €8M ) in support of judicial and penitentiary systems of

Kenya, Seychelles and Mauritius (May 2009) and in support of security and safety of

essential maritime routes (June 2009)

- Launching of operation EUTM Somalia for the training of the Somali army in Uganda (April

2010)

- Adoption of "Adoption of "Strategic Framework for the Horn of AfricaStrategic Framework for the Horn of Africa" (" (November 2011November 2011))

- Appointment of an EUSR for the Horn of Africa (January 2012)

- Launching of mission EUCAP NESTOR on the strengthening of capacities of regional Launching of mission EUCAP NESTOR on the strengthening of capacities of regional

coast guards in the Horn of Africa (coast guards in the Horn of Africa (July 2012July 2012))

- "New deal for Somalia conference" in Brussels: EU biggest donor with €500M to Somalia

and €420M to AMISOM since 2008 (June 2013)

Case Study – Somalia Case Study – Somalia

Questions?Questions?