Re-Humanizing the Migration Crisis through Images

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Five months ago most European citizens were unaware of the number of refugees seeking to reach the richest EU Member States like Germany, France, Sweden and the United Kingdom. The first wake up call for Europe was after the Lampedusa tragedy costing the lives of more than 300 refugees on October 3rd, 2013. Europeans were shocked, as the world was, to wake up with hearing such tragedy taking place at their doorstep. From 2013 to 2015, the issue of mass-migration from Syria, Eritrea, Somalia and other countries in the region left the front pages and the minds of Europeans, but had remained extremely present in the world of experts and the International Organization for Migration was calling for actions. The second wake-up call, which marked the beginning of the seriousness of the crisis, was the shipwreck killing an estimated 900 migrants on April 19th, 2015 off the coast of Italy.

The migration crisis, aside from geopolitics and economics, is quite interesting for several reasons. Movements in policy-recommendations and policy-making by European leaders seem to have occurred in relation with direct materialization of the crisis through very powerful (in the negative sense of the term) images. Below are the most marking pictures that were featured on front pages of global newspapers. For the last four months, images of misery, death, pain, innocence have illustrated the failures of European leaders on the international stage, brought back humanity (which has been missing for too long), and the moral responsibility of all Europeans – leaders and citizens included – (read here a superb piece by Judy Dempsey).

Death at Sea – From the Lampedusa tragedy (2013) to today

Credit: Reuters
Credit: Reuters

_82478162_82478156

Credit: Reuters
Credit: Reuters

Crossing Eastern Europe

Photo: AP
Photo: AP
Sources: The New York Times and Associated Press
Sources: The New York Times and Associated Press
Credit: AP
Credit: AP

 

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Getting to Germany

Source: AP
Source: AP
Source: AP
Source: AFP/Getty Images

The Picture that Re-Humanized the Migration Crisis

Credit: Reuters
Credit: Reuters

The last picture showing the lifeless body of Aylan Kurdi, a 3 year old Syrian boy, lying on a turkish beach has moved world citizens and European leaders (the New York Times published a powerful story about this image). Since the EU meeting in June, the EU (even though President Juncker and HR Mogherini have been active on the issue, but hardly visible) and its Member States have failed to agree on receiving asylum seekers and implementing real policies.

The migration crisis lost all of its humanity because of the national rhetorics. But the picture of Aylan appears to have been the shock necessary for European citizens and leaders. Even David Cameron, British Prime Minister, whom had used very derogatory words in regards of migrants seeking to reach the United Kingdom (read a piece on the issue here), responded by claiming that the UK will try to do more in the short and long term as it has a “moral responsibility.” During an address to the House of the Commons, David Cameron has announced that the UK will be re-settling 20,000 Syrians over the four and half years. “We will continue to show the world that this country is a country of extraordinary compassion,” said Cameron “always standing up for our values and helping those in need.”  France and Germany have announced as well that they will be taking an additional 55,000 refugees over the next two years (24,000 for France and 31,000 refugees for Germany). François Hollande of France said that it was a “fundamental principle” of France to accept asylum seekers. But the British and French numbers are well below Germany’s.

In some way, the power of this picture has mobilized world public opinion and put pressure on European leaders to deliver at the up-coming EU interior and justice ministers meeting on September 14th. But an EU leaders meeting will be necessary afterwards to solidify the decisions. As the Eurozone crisis, the migration crisis highlights the lack of integration between a European asylum policy with 28 national migration policies. Until the European and national levels will either be merged or fully disintegrated, the migration and eurozone crises will not be fully solved.

If the world was not watching in May during the meeting setting the Agenda on Migration, it will be paying close attention in September. The EU and its Member States have to deliver by respect to European complex history and heritage, to European values, norms and principles, and by simple humanity.

Interview

Gabriela Esquivada of the Infobae contacted several experts, including myself, to reflect on the migration crisis, on its origins, its consequences and on European actions. Here is the link to the article (in Spanish): http://www.infobae.com/2015/09/06/1753338-por-que-medio-oriente-seguira-expulsando-refugiados

(Copyright 2015 by Politipond. All Rights Reserved. This material may not be published, broadcast, rewritten or redistributed without permission).
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The Unacceptable European Policies and Narratives towards Migrants

Sources: The New York Times and Associated Press
Sources: The New York Times and Associated Press

Too much has been said in dehumanizing the refugees coming to Europe in the name of simplification and nationalism (read here a previous analysis on the issue). The 71 refugees recently found dead in a truck in Austria is another horrific example of the tragedy taking place on European ground. Ensuing the discovery of the 71 corpses in the truck in Austria, UN Secretary General Ban Ki-moon, made a powerful, and yet short, statement about the migration crisis in Europe. “This is a human tragedy” he declared “that requires a determined collective political response. It is a crisis of solidarity, not a crisis of numbers.”

It seems that the Austrian case has motivated Germany, France and the United Kingdom in seeking for a European solution. A call for action from Berlin, London and Paris is important as they are the most powerful capitals in the EU and usually action occurs once the three of them have set the motion on. However, on the question of migration, they have diverging reasons: Germany is the largest receiver of asylum seekers and seriously needs assistance from its European partners; the United Kingdom is rethinking its European membership and Cameron appears to be in favor of maintaining the UK within the EU, so he cannot move to far right; France receives a large amount a refugees and is dealing with rising cases of terrorist attacks. For the three of them action will always look better from a domestic standpoint. Ultimately on September 14th, the EU ministers of interior will be meeting at an emergency summit.

Even though the three EU powerhouses have agreed on seeking for a common approach, other EU Member States have adopted anti-migrants measures that go against the normative and ethical standards established, agreed and promoted by the European Union.

Anti-European Measures?

With increasing numbers of migrants coming from the Middle East, North Africa, and Africa, several EU Member States have implemented radical measures in dealing with the large movement of migrants (read previous analyses here and here on the issue). Interestingly enough, these Member States are not receivers of migrants, but are transit countries on the way to the final destinations of Germany, the United Kingdom, France and Sweden. The measures implemented by Bulgaria, Hungary, France, and the Former Yugoslav Republic of Macedonia (an EU candidate country) are troublesome.

Source: Europol & BBC
Source: Europol & BBC

Bulgaria, one of the most recent EU Member States, is a transit country for most migrants coming from Turkey. Bulgaria deployed troops, which included tanks, to its border with Turkey and Macedonia. Such political move has raised some serious criticism from human rights groups. The Bulgarian Ministry of Defense argued that it was simply a “preventive” operation. A military solution to a human crisis is generally not the most appropriate option. Bulgaria has as well built a 160-km fence along its border with Turkey. And Slovakia only wants Christian refugees.

Hungary has received the most negative coverage and attention for its approach to dealing with the crisis. Hungary’s policies are directly aligned with the government led by Viktor Orbán. His narratives against migrants and even the EU have been quite virulent. “The

Photo: Attila Kisbenedek/AFP/Getty
Photo: Attila Kisbenedek/AFP/Getty

prime minister and many members of his cabinet have made it perfectly clear,” argued Marton Dunai of Reuters “saying things like, we don’t want thousands and thousands rampaging through the country every day.” As Bulgaria, Hungary is a transit state to richer EU countries, as it is “the gateway to Europe’s visa-free Schengen zone.” In order to lower the number of migrants crossing the country, the government has ordered the creation of a razor wire fence along its border with Serbia. This fence is more of a nationalist stunt than a wall blocking migrants in Serbia. Asked on the wall being built by Hungary, French Foreign Minister Laurent Fabius expressed his anger towards the Hungarian initiative. “I take a very dim view, a very dim view” said Laurent Fabius. “Hungary is part of Europe. Europe has values and these values are not respected by putting up wire fences.” The comments by Laurent Fabius have created a fraught between France and Hungary. Hungarian Foreign Minister, Peter Szijjarto, responded that “Instead of shocking and groundless judgements, one should instead concentrate on finding common solutions for Europe” and has even summoned the French Ambassador to Hungary.

Source: The Economist. 2015
Source: The Economist. 2015

France should as well be listed as a EU Member State not doing enough in the case of the migration crisis. The recent call by the French government for an emergency summit is a positive element, but for too long France has let camps grow in the suburbs of Calais, first with Sangatte and now with the Jungle. The current situation in the Calais camp demonstrates the lack of desire by the French government to deal properly with the 5,000 migrants trying to reach the other side of the English Channel. European Commission Vice President Frans Timmermans has announced that France will receive up to five million euros that “will be used to set up a camp that can provide humanitarian assistance to around 15-hundred migrants. The money will also go on transporting asylum seekers to other destinations in France.” France has not done enough in the last decade to create appropriate infrastructures in the region of Calais to accommodate the migrants.

The last case is the recent use of force by the Macedonian authorities. The Former Yugoslav Republic of Macedonia is not a EU Member State, but a EU candidate. As Bulgaria, they do not belong to the Schengen agreement and are transit countries. Macedonia is directly on the path to Hungary. In the last two months, Macedonia has recorded over 40,000 migrants crossing its country to either go to Serbia or Hungary. In August 21st, the Macedonia authorities used force against migrants. This event comes at a time wherein the Prime Minister has been facing serious domestic criticism as he is facing allegations of illegal wire-taps, corruption and authoritarianism.

 

Cartoon: Kountouris
Cartoon: Kountouris

Amalgams and Political Games

Extreme-right wing and mainstream parties throughout the Union have oversimplified the migration crisis in the name of short-termism and nationalism. The rise of nationalist parties throughout the EU framing the debate and ultimately fostering fear in the hearts of many Europeans and elected officials are transforming the debate on one of the most important problems facing the Union into an absolute aberration.

The amalgam that has been made, and is starting to hold in the collective memory, that migration translates into an increase of terrorist and criminal acts has to be rejected by the elected officials. The recent tragic event in the Thalys train from Amsterdam to Paris has nothing to do with the current migration crisis. But the link is continuously made and hammered by media and politicians that a belief with no empirical evidences, as most of the specialized literature on terrorism rejects, is being transformed into a fact. Elected officials, politicians in Europe and in the US are constantly reminding the audience of such belief.

Across the pond, the leading candidate for the Republican nomination, Donald Trump,

Photo: Scott Olson/Getty Images
Photo: Scott Olson/Getty Images

has completely shifted the debate on immigration from a social problem into a security problem using similar strategy. In the brilliant piece published in the New Yorker, Evan Osnos quotes Trump’s 1987 memoir, wherein he wrote “I [Donald Trump] play to people’s fantasies. I call it truthful hyperbole. It’s an innocent form of exaggeration – and a very effective form of promotion.” The words and narratives made by politicians like Donald Trump, Marine LePen, Nicolas Sarkozy, Vicktor Orbán, David Cameron, Geert Wilders are a constant reminder of the danger of radicalizing a debate as contentious as immigration. The case of Thalys, perpetuated by a Moroccan citizen Ayoub el Khazzani, clearly a terrorist act, has no connection with Syrian refugees fleeing a warzone between dictator Bashar Al-Assad, ISIS, and a multitude of factions.

“This may not matter to the National Front’s core electorate,” wrote top French expert François Heisbourg in an op-ed published in the Financial Times “but it does mean that mainstream policy has largely conceded defeat when it comes to values. Europe is better than this; so is France. Europe’s leaders need to live up to our responsibilities as humans and as neighbours, assume part of the burden, and talk straight to the electorate. Continued European and French fecklessness will only improve the far-right’s prospects of success, and deepen what is already an unprecedented crisis.”

Juncker called in a recent op-ed for “collective courage,” rather than solidarity. Now is the time to do so. The migrant crisis has underlined a paradox between national asylum policies and the schengen agreement of open borders. This crisis, like the Euro crisis, demonstrates the challenges that the EU and its Member States are facing in balancing out national priorities (protection of national sovereignty like fiscal policies, defense and immigration) and the deepening of the integration process. One of the recent tensions between the Member States and the EU has been about the Schengen Agreement. If conservative parties want to reintroduce border control, either to stop migrants or terrorists, the Commission refuses to touch at the border-free agreement calling it one of the greatest European accomplishment.

The migration crisis is highlighting another paradox in the European integration process between European and national interests. The tensions between the Member States and Brussels cannot continue any longer. Letting migrants die and be mistreated on European ground is an unacceptable reality.

(Copyright 2015 by Politipond. All Rights Reserved. This material may not be published, broadcast, rewritten or redistributed without permission).

‘Europe Did not Cause this Tragedy’

Photo: Massimo Sestini—Polaris
Photo: Massimo Sestini—Polaris

The Mediterranean sea is the most dangerous migrating route in the world. In 2014, the International Organization for Migration (IOM) concluded that 75% of the total migrant-related deaths in the world lost their lives in the Mediterranean sea. Unfortunately, many experts predict that 2015 could be one of the deadliest years in modern history. This prediction was confirmed with the tragic event in mid-April with the death of an estimated 900 migrants with only 28 survivors.

“unless Europe acts to reform its failed policy on migration” writes the editorialist of the New York Times of April 21st, “this could be the deadliest year yet for the thousands of people who fled to Libya from conflict-torn regions across the Middle East and Africa, only to find themselves in a deadly pincer.” After years of inactivity and avoidance of this problem, the Member States are now facing human and political crises requiring rapid and substantial solutions. Blaming the EU for such failed policy would be an error, as according the Treaties, the Member States are the ones in charged of the security of their borders. The protection of the territory depends on the Member States, not on the EU. In this current crisis, the Member States have three options: first, to patch a problem with a short-term policy; second, to do nothing; third, to empower the EU. In any case, the Europeans are now facing a dilemma.

How can the EU identify itself as a normative power with that many people trying to reach its coasts for a better life? And, how can the EU bring a serious solution on the table when so many EU Member States are dealing with the rise of extreme-right wing parties – for many xenophobist and racist – domestically?

The Central Route to Europe

The crisis in Libya is serious for two reasons. Since the fall of the Qaddafi regime in 2011, led by an Euro-Atlantic coalition, the country has spiraled into a civil war. The civil war has created a power vacuum in the middle of North Africa offering the exit point for many Northern and Central Africans leaving their home countries because of political violence, war, dire economic conditions, terrorism with the hope to reach the European continent for a better life. Libya has become the transit country for most of illegal migration. In addition to unchecked migration, the civil war and lack of government have offered a new ground to the Islamic State (IS). IS has emerged in the country directly threatening neighboring countries, which includes Europe.

The migrants leaving their countries have changed over the years. They were once the

Source: Le Monde
Source: Le Monde

poorest and the most desperate. Today’s migrants are composed of individuals belonging to the middle class with a predominance of women and children. Some come from Middle East countries devastated by war like in Syria, Iraq and others from further South such as Mali, Gambia, Senegal, Sierra Leone, Ivory Coast, Eritrea and Somalia. The price of the trip has increased and cost between €2,000 and 6,000 per person. Migrants can ask for asylum in a European country unless they set foot on European ground. Such law empowers the smugglers. Once in Europe, their lives remain extremely difficult.

If Libya is the exit point of Africa, Italy is one of the entry points of Europe. Since the Arab Spring, Italy has been on the front line of illegal mass-migration from the Middle East and North Africa (MENA). For years the numbers of migrants seeking asylum in Europe has considerably increased. The Central Mediterranean Route, from Libya to Italy, has seen a serious increase of illegal migrants from 40,000 in 2008 to 170,000 in 2014 (see here the different routes to Europe).

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As reported in the New York Times by Jim Yardley, “after a year in which more than 3,200 people died and more than 130,000 were rescued by Italian naval and coast guard ships. Humanitarian groups estimate that nearly 500 people have already died at sea this year, compared with about 50 in the same period last year.” The Mediterranean has become a large cemetery at the doorstep of Europe. The number of death at sea is increasing. So far this year, it has been estimated that more than 500 migrants have died as opposed to 47 in the same period of 2014. Additional Lampedusas may very well become routine considering the recent numbers.

From Mare Nostrum to Triton

In order to control this illegal migration, but mostly in reaction to the Lampedusa catastrophe costing the lives to 232 migrants in October 2013, the Italian launched a program in October 2013, Operation Mare Nostrum, in which the Italian navy was used in order to stop boats transporting illegal migrants. Because of the continuous rise of migrants and an increase in the cost of the operation (around $9.7 million per month), the Italians have been calling for support from their European counterparts in sharing the burden on costs and materials as all European nations are directly or indirectly confronting the problems of illegal migrations. Ultimately the Italian cancelled Mare Nostrum because of financial constrains considered too costly within the dire Italian economic context.

In November 2014 Mare Nostrum ended and let the spotlight to a small European program, Triton, under the supervision of Frontex, the European immigration agency. Triton is much smaller in scope, in geographical coverage (operates only within 30 nautical miles of European shores), and in financial terms (represents 1/3 of Mare Nostrum’s budget). Additionally, Frontex depends on the supports and contributions of Member States in order to receive material and human capabilities. Last but not least Triton’s mission is not to replace Italy’s work on protection of its territory but assists it when needed. As per the European Commission’s memo of October 2014 “Triton is intended to support the Italian efforts, and does not replace or substitute Italian obligations in monitoring and surveying the Schengen external borders and in guaranteeing full respect of EU and international obligations, in particular when it comes to search and rescue at sea.” Frontex coordinates, Italy leads.

Table: Comparative Analysis of the Mare Nostrum with Triton

©Politipond                                                                                                                                                                                                         Sources: Ministero della difesa. Mare Nostrum Operation. Accessed online at http://www.marina.difesa.it/EN/operations/Pagine/MareNostrum.aspx [accessed on April 21st, 2015]; Yardley, Jim and Bilefsky, Dan. 2015. “Migrants Blame Captain of Capsized Boat.” New York Times. April 22. ; European Council on Refugees and Exiles. 2014. “Mare Nostrum to End – Frontex operation will not ensure of migrants in International waters.” ECRE Weekly Bulletin. October 10. European Commission. 2014. “Statement by EU Commissioner Cecilia Malmström on operation Triton.” Brussels. October 7.; European Commission. 2015. “Fact Sheet – Questions and Answers: Smuggling of Migrants in Europe and the EU Response.” Brussels. January 13.

The table clearly demonstrates the fundamental distinction between Mare Nostrum and Triton in terms of mandate. Triton’s mandate does not make the operation a search and rescue mission, but simply a border management operation. Additionally, the capabilities provided to Frontex are based on the contribution of the willing Member States. Frontex facilities the work of the Italian navy. Frontex’s hands are clearly tied.

European Union’s Responses and Actions

European reactions and responses will depend on the complex paradigm: balancing humanitarian responsibilities against budget constraints and widespread public sentiment against immigration. Ensuing the catastrophe, most European officials and heads of state and government expressed their emotions. In addition, President of the European Council, Donald Tusk, called an emergency European summit meeting for Thursday, April 23rd to address the issue. The problem of illegal migration and lack of EU unity was addressed in a report eight years ago wherein the EU acknowledged a “disunity within the E.U. over which obligations arise from E.U. fundamental rights, international human rights and refugee law, and how these obligations relate to the law of the sea.”

Matteo Renzi of Italy and his counterpart Joseph Muscat of Malta declared during a joint conference after the weekend that “What happened on Sunday was a game changer. There is a new realization that if Europe doesn’t act as a team, history will judge it very harshly, as it did when it closed its eyes to stories of genocide — horrible stories — not long ago.” The President of European Parliament, Martin Schulz, made a similar argument when raising two questions: “How many more people will have to drown until we finally act in Europe?” “How many times more do we want to express our dismay, only to then move on to our daily routine?”

Frederica Mogherini, Chief of EU Foreign Affairs, declared once again ‘‘We have said too many times ‘Never again.’ Now is time for the European Union as such to tackle these tragedies without delay.’’ French President François Hollande called for more material capabilities “more boats, more aerial surveillance and a much tougher fight against traffickers.”

Prior the extraordinary European summit meeting, the President of the European Council highlighted a list of overarching questions: How to stop the human traffickers, whom put the migrants’ lives at risk? How to step up European combined efforts for rescuing people in need? How to better help the EU Member States most affected? and, how to step up European cooperation with countries of origins and transits?

Days before the summit, during a joint meeting of Foreign and Interior Ministers with HR Mogherini, Migration, Home Affairs and Citizenship Commissioner Avramopoulos presented a 10 point plan of the immediate actions in the Mediterranean region. During the emergency meeting of Thursday, the European heads of government agreed on a list of points:

  • First, the High Representative (HR) is now charged of the mission to “propose actions in order to capture and destroy the smugglers’ vessels before they can be used.”
  • Second, Triton’s budget has been tripled and is now at the same level than Mare Nostrum and Member States have committed more material resources (no numbers though).
  • Third, increase cooperation with origin and transit countries, especially Libya.

These agreements seem quite shallow considering the complexity of the problem. The Commission is scheduled to deliver its Europe Agenda on Migration due on May 13, which in Juncker’s words “We will be ambitious. We will be bold.” The destruction of boats and an increase of budget are only a quick fix to a regional problem requiring state-building, economic and trade cooperations, security sector reforms, additional humanitarian and aid assistance, and even military interventions.

Solidarity, Responsibility and Norms

“With no coherent policy and woefully insufficient financing,” writes the New York Times “lives are needlessly being put at risk, and the European Union’s humanitarian values are exposed as meaningless.” The continuous dying of migrants at the doorstep of fortress

Photo: Matthew Mirabelli/Agence France Presse - Getty Images
Photo: Matthew Mirabelli/Agence France Presse – Getty Images

Europe is forcing the EU and its Member States to reflect on three dimensions: solidarity; responsibility; and normative action. Solidarity is the core component of a social contract and an Union like the EU. Unfortunately with the financial crisis and the rise of populist movements throughout the Union, this core value has been lost in translation.

“The E.U. has been struggling to respond to the crisis because governments think it is too expensive,” Mr. Pascouau said, and “the debate on immigration has become toxic because of the rise of the far right.” Sweden, Poland, Austria need to be as concerned as mediterranean Member States about the rise of illegal migrants and their deaths in vein. Most migrants do not stay in Spain, Italy or Greece, they are trying to reach France, the United Kingdom, Germany and Sweden. In this case, solidarity can be represented under two dimensions: material, human and financial aspects; and a reform of the European immigration policy.

Solidarity does not only imply European solidarity, but global solidarity. During an interview with NPR with François Crepeau, the U.N. special rapporteur on the human rights of migrants, argued in having the Global North (North America and the EU) absorbing immigrants. He argues that the best solution in resolving the massive illegal influx of migrants is through the integration of these migrants in each country of the Global North over a 5-10 years period by giving them visas in order to build a life. Crepeau claims that by offering them a legal solution/exit they would wait in their home countries for a way out rather than risking their lives and burning all their savings. The EU-28, especially European citizens, needs to accept such option and implement it and then find a common agreement with the US and Canada. Unfortunately this option seems off the table as Jean-Claude Juncker, President of the Commission, declared after the extraordinary summit that his “proposal for legal immigration was not supported” in order to secure resettlement across Europe for 10,000 refugees.

Responsibility, Member States ought to demonstrate their commitment to the Treaties and accept their own responsibility in the deaths. So many Member States are blaming the EU for these catastrophes, when in fact the Member States are to be blamed. Even though the blame game is counter productive, Member States and domestic political parties ought to have serious national discussion about the rise of illegal migrants from Africa. The arguments of closing the borders, ending the Schengen agreement and passing the buck to neighbors are unacceptable. Member States have to increase spending and cooperation either at the European level or even on bilateral basis.

Normative action seems to have died in the Mediterranean sea. The EU and the EU-28 need to materialize the self-proclamation of soft power through actions. Even if one cannot expect the EU to solve the migration problems coming from Africa, the EU and its Member States have to demonstrate a willingness to work with African partners. During an interview with a French expert on European defense in 2010, he argued that the Common Security and Defense Policy (CSDP) was developed in order to solve the most pressing

The Economist
The Economist

crises in Africa. He claimed that if the Europeans were not doing as much as possible in order to solve political cronyism in Africa, terrorism, and contribute on stabilizing the region with substantial economic incentives, the European continent would be flooded by massive waves of migrants. This expert was 100% correct.

Five years ago the EU and its Member States could have implemented preventive measures. Today the EU and its Member States are confronting a serious crisis requiring massive human, capabilities and financial contributions, a European reform of the immigration policy and a serious commitment to cooperation at the European level all this under dire economic situation and unfriendly domestic electorate. The EU ought to liberalize immigration policy and open up legal routes for migrants. The EU and its Member States have quite a challenge in front them.

Last but not least, the most shocking line was made President Tusk right after the Council meeting, “Let me be clear. Europe did not cause this tragedy. But that does not mean we can be indifferent.” Was the summit about finger-pointing or about solving one of most pressing issues facing Europe? Such comment clearly illustrates Europe’s mindset in addressing this crisis.

(Copyright 2015 by Politipond. All Rights Reserved. This material may not be published, broadcast, rewritten or redistributed without permission).

A Book Review – The EEAS and National Foreign Ministries

eu-jigsaw-picture

“Conceptualizing EU foreign policy has been a contested matter, reflecting the sui generis nature of the EU as an international actor, and does not lend itself to single interpretative approaches” (Balfour 2015, p.42).

What is the relationship between the European External Action Service (EEAS) and national diplomacies? “Are the ongoing changes pushing towards greater coherence and effectiveness of EU foreign policy or, on the contrary, towards re-nationalization?” (p. 9). These are the overarching research questions of this recently published edited volume, The European External Action Service and National Foreign Ministries. Convergence or Divergence?, under the supervision of Rosa Balfour, Caterina Carta and Kristi Raik.

9781472442437.PPC_PPC Template

Structured in two parts, EEAS and National Foreign Ministries, convincingly analyzes the making and shaping of foreign-policy making between the Member States (MS) and the European Union (EU). The first part lays out the current global context wherein the Europeans are operating, and seeks to look inside the EEAS, its establishment, its staffs, role and the evolution of the relationship with Ministries of Foreign Affairs (MFAs). In the second and much longer section composed of eight chapters, each one of them reflects on a or several Member States and on how their national diplomacies are being shaped by or are shaping the EEAS. The Member States selected for this edited volume are, by order, the United Kingdom, France, Germany, Spain and Italy, Portugal and the Netherlands, Sweden and Poland, Greece and Slovenia, and the Czech Republic, Estonia and Finland.

The Evolution of EU Foreign Policy

From the creation of the EU to today, the making of a EU foreign policy has been progressing from an intergovernmental cooperation to becoming a complex ‘service,’ as the EEAS is neither an agency nor an institution, mixing intergovernmentalism and supranationalism (see p.42-4). The 2009 Treaty of Lisbon solidified formal intergovernmentalism in the decision-making, while including supranational dimensions into the CFSP (foreign policy) and the CSDP (defense) (p. 2).

Credit: EEAS
Credit: EEAS

“The relationship between EU foreign policy structures and national diplomacies of the member state” write Balfour, Cart and Raik “is one of the key determinants of the EU’s ability for coherent and effective global action and of Europe’s position in the changing world order” (p.1). Richard Whitman makes a very compelling argument in drawing a complex picture of international relations in the early twenty-first century. Not only, as he writes, there are “changes in the structure of international relations” but as well “changes to patterns and practices in the flow of information” (p.17). European diplomacy is facing ‘outside in’ challenges due to the fragmentation of international relations (economic problems, new world order, intensification of globalization) and ‘inside out’ challenges in order to merging national with European interests.

EU & National Interplay in Foreign-Policy Making

The book’s contribution lays in looking and analyzing the complex interplay in the foreign-policy making between the EEAS and the national actors. The body of the overall arguments is based on the following three interplays (see the figure below):

  • downloading, a top-down process from the EU to the Member States – such process can lead to greater transfer of power to Brussels at the expense of the MFAs and Member States;
  • uploading, a bottom-up process from the Member States to the EU – such process is much more embedded in the inter-state bargaining power logic. MS are pushing for their national interests and preferences at the EU level. The EEAS is perceived as an over-shadowing presence over the MFAs;
  • crossloading, a mutual constitution leading to convergence – such process leads to an elite socialization at the EU level, wherein national and european interests and preferences become intertwined and ultimately converge.
Source:  Balfour, Carta, Raik. 2015. The EEAS and National Foreign Ministries. p. 8
Title: The EEAS and MFAs of the member states in the context of national, European and global structures.                          Source: Balfour, Carta, Raik. 2015. The EEAS and National Foreign Ministries. p. 8

Aside from the analytical framework based on uploading, downloading or crossloading, Whitman makes an important observation when claiming that EU MS often retreat to their national positions when responding to crises. And cooperation at the EU level usually takes place in the aftermath of conflict (p.30). This has been repeated on so many occasions.

MFAs, the EEAS and the World

The three leading EU MS, the UK, France and Germany, have all reacted differently to the creation of the EEAS. Daniel Fiott argues that the UK remains ambivalent about the EEAS.cameron-euro-5_2079690b London is clear on one aspect, “the EEAS must serve the interests of European Union (EU) member states: nothing more, nothing less” (p.75). Under Cameron, the UK has neither contributed to the growth of the EEAS nor the EU.

Fabien Terpan (read here a previous analysis on his article on the financing of CSDP operations) demonstrates that the position of France towards the EEAS is aligned with two core French foreign policy traditions: the Gaullist tradition (grandeur, independence, sovereignty) and the entrenchment of French interests with a deep European commitment. France has principally worked on uploading its national preferences. For the last of the Big three, Cornelius Adebahr argues that Germany is the strongest supporter of the EEAS and does not see it as overshadowing the German Foreign Office. The editors underline that France and the UK are “in a category of their own, […]. The EU, however, is not the only option for their foreign policy actions” (p.200) considering the weight and influence of their MFAs, their seats at the UN Security Council, NATO and other international institutions.

Considering the 11 other Member States selected, the authors underscore how these small, and middle-level powers see their role in the EU and how the EEAS is a way to increase their influence (Portugal and the Netherlands), while others (Poland and Sweden) seek to constantly upload their national foreign policies at the EU level. Considering the domestic context, Italy and Spain have welcomed the EEAS permitting them to maintain their foreign policy weight. Slovenia and Greece initially saw as well the EEAS as an opportunity to upload their priorities, which has gone in vein. In the case of Czech Republic, Estonia and Finland, they consider the EEAS an important instrument in order to reinforce their security from Russia.

The EEAS is a complex agency with different layers and formed on broad composition of staff with former DG RELEX staff, Secretary of Council’ staff and national staff (see chapter 3). It is headed by the HR/VP, Federica Mogherini, whom oversees the overall CFSP and EU foreign policy making process. It is the center of coordination in EU foreign policy making with a horizontal dimension (several EU institutions like the Commission, Parliament, European Council) and a vertical one (28 MFAs) (p. 46-7). Ultimately, “The EEAS epitomizes this hybridity,” writes Balfour “making foreign policy exposed to the strengths and weaknesses of ambiguity” (p.44).

Concluding Remarks

The EEAS and National Foreign Ministries is an important contribution to an under-studied topic. The methodology applied in order to look at the positions of the Member States (semi-structured elite interviews and process-tracing) permits to develop a compelling argument and confirms the expectations of European experts. The editors make a strong case in justifying their qualitative methodology by arguing that the explanatory power of normative and ideational variables is central in order to explain “change, adaptation and reform” (p.196).

This multi-layered foreign-policy making machine – EEAS+COM+EP+EC+EU-28 –

468109400incorporating a juxtaposition of intergovernmentalism and supranationalism into one unit illustrates the degree of complexity in order to foster a common European position on very contentious foreign policy issues like the recognition of Kosovo’ sovereignty, the Iranian nuclear negotiations, relationship with emerging powers like China, India and Brazil, and toughening the voice against Russia. In addition, this book is deeply relevant considering the global and domestic forces affecting the EU and the Member States. The EEAS was institutionally designed at a time of rapid changes and needs to find its voice and role.

The EEAS and National Foreign Ministries is a complete work and very accessible despite the complexity of foreign-policy making in the EU. This edited volume finally stands as a landmark for two reasons: first, each chapter responds to the overall research question, where so many edited volumes have failed to do so; second, it offers a roadmap for understanding European foreign-policy making. This volume lays out the machinery of the EEAS and MFAs, the next volume should look at the way the EEAS and the MFAs work on solving crises like the Arab Spring, war in Syria, Iranian nuclear negotiations, Israeli-Palestinian tensions, relations with each member of the BRICS among many others.

Politipond highly recommends this edited volume and would like to thank Ashgate for providing a complementary copy for review. The book can be bought on Ashgate’s website, here.

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