| The ongoing implementation of the EEAS |
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The Lisbon Treaty entered into force on 1 December 2009, which significantly altered the EU institutional landscape. One of the most important changes was the formulation of the EEAS, which began officially its work on 1st January 2011. One of the key priorities of the Lisbon treaty is to improve the efficiency of EU external policies in order to increase the EU’s global influence. The creation of the post of High Representative (HR) of the Union for Foreign Affairs and Security Policy and the EEAS to support the HR in his/her task followed this logic. Baroness Catherine Ashton has thus far filled this role. All these changes can be positive for developing countries and overall development cooperation if the High Representative and the EEAS follow the principles of the Lisbon Treaty; i.e. ensuring policy coherence for development and striving for poverty eradication. The scrutiny of the performance of Catherine Ashton as High Representative has made visible the different visions that exist within the EU about the role the High Representative and the EAAS. Ashton’s has faced significant criticism for her (in)ability to represent the EU in a coherent manner on a global level. In particular, the EU’s response to the North African revolutions has been perceived by many as somewhat fragmented. In May, the Belgian foreign minister Steven Vanackere attacked the HR publicly in this respect, fuelling the discussions on Ashton’s suitability for the respective post. Moreover, in a recent survey of NGO’s, government officials, students, think tanks and business by Burson Marstellar, Ashton was perceived as the Commission official who has performed the worst since the Lisbon Treaty came into force. It can be argued that the task of High Representative is near impossible in attempting to reconcile the foreign interests of 27 different (and sometimes difficult) parties. “What all of these ‘leadership crisis’ accounts have in common is an exclusive focus on personality — to the neglect of structures and circumstances”, stated Olaf Cramme from the Policy Network in June. Instead of continually criticising HR Ashton the debate should address “the potentials and limitations of the EU as a foreign policy actor”, its institutions as well as policy objectives. In order to improve its image, the EEAS should further draw attention to positive results and strengthen the delivery of its messages, the expert highlighted. In this context the way in which development policy is addressed within the organisation and in its work is still being worked out. Concerns have been expressed at what is seen as insufficient levels of development expertise and understanding within the EEAS, and the potential linkages and conflicts between foreign policy and development priorities. Recent reforms of the institutions instigated by the establishment of the EEAS leaves some ambiguity over responsibilities and roles. While DG DEVCO (a merger of DG DEV and DG EuropeAid) remains responsible for the EU’s development cooperation, geographical divisions previously held by DG External Relations and DG DEV have been transferred to the EEAS. A consequence is that the preparation of the EU’s development cooperation strategies for individual countries and regions will be formally undertaken within the EEAS, but with the Development Commissioner having responsibility. The Commissioner for Development and the High Representatives in her role as Vice President of the Commission will jointly present proposals for the country and regional strategies to the College of Commissioners. Adoption of these strategies lies with the College. It remains unclear as to where in practice overall responsibility for development policy within the EU is going to be situated. In responding to concerns expressed Ashton wrote to CONCORD in April, reiterating that development remains at the core of the EEAS, and its mandate is to guide development policy in a way that is coherent and consistent with EU principles, values and objectives. Ashton further highlighted the close cooperation between DG DEVCO and the EEAS, which is focused on making EU assistance “as effective, flexible, predictable and out-come oriented as possible”. The task of completing the establishment of the EEAS will take many more months, but the practice is already being defined. For the role that the EEAS plays on development the real test will come when the next round of strategy planning is undertaken to coincide with the use of the EU budget and European Development Fund from 2014. Sources:
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Six months into the work of the European External Action Service (EEAS) the task of building the new organisation is still ongoing. Appointments of EEAS staff into senior positions, both in the network of EU delegations around the world, as well as in key posts in Brussels is not yet complete. High Representative Ashton announced the appointments of 25 EU Ambassadors this week, as well as 3 new Brussels based Directors.
