一个联合起来的联盟一个更强大的欧洲(英)-国际事务研究院-2022.3.pdf
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1、This project has received funding from the European Unions Horizon 2020 research and innovation programme under grant agreement N.959143.This publication reflects only the view of the author(s)and the European Commission is not responsible for any use that may be made of the information it contains.
2、JOINTResearch PapersRiccardo Alcaro,Pol Bargus and Hylke DijkstraA Joined-Up Union,a Stronger Europe.A Conceptual Framework to Investigate EU Foreign and Security Policy in a Complex and Contested WorldNo.8March 2022JOINT Research Papers No.8 2AbstractFractious domestic debates,the fragmentation of
3、regional politics and growing interstate competition all affect the capacity of the EU to forge a joined-up and sustainable foreign and security policy(EUFSP)in crises and conflicts.The problem is amplified by EUFSP governance structures,which have evolved irregularly,with a multiplicity of actors r
4、esorting to an increasingly diverse array of policy instruments when engaging with external players on multilateral,regional and bilateral levels.The potential for improved action depends on the capacity of EU institutions and member states to work within the multi-dimensional perimeter of the EUFSP
5、 governance system to create the conditions to mitigate the effects of intra-EU contestation,regional fragmentation and multipolar competition.A Joined-Up Union,a Stronger Europe.A Conceptual Framework to Investigate EU Foreign and Security Policy in a Complex and Contested World*Riccardo Alcaro is
6、JOINT Coordinator and Research Coordinator and Head of Global Actors programme at the Istituto Affari Internazionali(IAI).Pol Bargus is a Research Fellow at the Barcelona Centre for International Affairs(CIDOB).Hylke Dijkstra is Associate Professor at Maastricht University.Riccardo Alcaro,Pol Bargus
7、 and Hylke Dijkstra*3-A Joined-Up Union,a Stronger EuropeIntroductionChallenges to the foreign and security policy of the European Union(EU)have been mounting in recent years.The emergence of nationalist forces within member states often espousing Eurosceptic views has complicated efforts to reach i
8、ntra-EU consensus on international security matters.1 The collapse or severe weakening of state authority in the EUs neighbourhood(and beyond)has created interconnected and ever more complex challenges extending into policy areas outside the traditional remit of diplomacy and military policy.2 Perha
9、ps most importantly,systemic shifts in the international order such as the oscillating global engagement of the United States and the growing assertiveness of Russia and China have hampered the ability of the EU and its member states to shape multilateral rules and have compelled them to rethink the
10、ir role along new patterns of multipolar interactions.3Fractious domestic debates,the fragmentation of regional politics and growing interstate competition all affect the capacity of the EU and its member states to reconcile security priorities and allocate the needed resources to pursue these.Both
11、individually and in connection with one another,these three factors constitute the volatile domestic,regional and international context in which the EU and its member states currently operate.Intra-EU contestation and regional fragmentation have clear hindering effects on the effectiveness of EU for
12、eign and security policy.Multipolar competition has certainly generated momentum for a stronger global role of the EU,as attested to by the Unions robust response against Russias aggression in Ukraine,yet in most cases the Union has suffered from the effects of increasing great powers rivalry.1 Mari
13、anna Lovato,“The Internal Contestation of EU Foreign and Security Policy:A Literature Review of the Implications of Intra-EU Contestation on Crises and Conflicts”,in JOINT Research Papers,No.1(September 2021),https:/www.jointproject.eu/?p=516.2 Agns Levallois,“Regional Fragmentation and EU Foreign a
14、nd Security Policy”,in JOINT Research Papers,No.3(November 2021),https:/www.jointproject.eu/?p=639.3 Assem Dandashly et al.,“Multipolarity and EU Foreign and Security Policy:Divergent Approaches to Conflict and Crisis Response”,in JOINT Research Papers,No.6(December 2021),https:/www.jointproject.eu/
15、?p=697.4-A Joined-Up Union,a Stronger EuropeAll this invokes the fundamental question of how EU foreign and security policy governance structures can be made more joined-up and sustainable in the face of these constraints.The problem is amplified by the peculiar nature of such governance structures,
16、which have historically evolved irregularly,with a multiplicity of actors resorting to an increasingly diverse array of policy instruments when engaging with external players on multilateral,regional and bilateral levels.Indeed,the term“EU foreign and security policy”(EUFSP)can no longer be limited
17、to the formal output of institutionalised foreign policymaking processes,be they the Common Foreign,Security and Defence Policies(CFSP/CSDP)or other external actions carried out by EU institutions.The national foreign policies of member states are a constitutive part of EUFSP,at least insofar as the
18、y drive or complement EU efforts.4 EUFSP actors make use of various policy tools spanning such different policy areas as diplomacy,security-related policies(including operations abroad)and policy sectors that do not traditionally fall into the remit of foreign and security policy(trade,migration,cli
19、mate etc.).5 This enlarged concept of EUFSP defines the broad framework(EU and extra-EU)within which the Union and its member states handle security matters and engage with external partners.6EU foreign and security policy is thus inherently characterised by multi-dimensionality:it is multi-actor,be
20、cause it involves EU institutions and member states as distinct drivers of action;multi-sector,because it spans across multiple policy areas;and multi-layered,as it unfolds through different partnerships with external players as well as through sustained actions,carried out by EU institutions and me
21、mber states.Consequently,a more joined-up EUFSP involves synergies between the foreign policies of EU institutions and member states,integration of instruments across external and internal policy domains,as well as building 4 Pernille Rieker and Mathilde Tomine Eriksdatter Giske,“Conceptualising the
22、 Multi-Actor Character of EU(rope)s Foreign Policy”,in JOINT Research Papers,No.2(October 2021),https:/www.jointproject.eu/?p=538.5 Kristi Reik et al.,“Not Yet Fit for the World:Piecemeal Buildup of EU Military,Cyber and Intelligence Assets”,in JOINT Research Papers,No.4(November 2021),https:/www.jo
23、intproject.eu/?p=648;Kristina Kausch,“Collateral Damage:How EU Internal Policies Shape Crises and Conflict Abroad”,in JOINT Research Papers,No.5(December 2021),https:/www.jointproject.eu/?p=689.6 Dylan Macchiarini Crosson et al.,“Multi-Layered Actions?Sustaining Partnerships in the EU Integrated App
24、roach to Conflicts and Crises”,in JOINT Research Papers,No.7(December 2021),https:/www.jointproject.eu/?p=835.5-A Joined-Up Union,a Stronger Europemechanisms for coordination with external players over long-term periods of time.A more joined-up EUFSP is also the condition for a sustainable EUFSP,whi
25、ch indicates the relative continuity of policy positions combined with an inbuilt capacity for adjusting objectives and instruments to changing circumstances.An area in which the potential for a joined-up and sustainable EUFSP can be meaningfully investigated is the involvement of the EU and its mem
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