The EU as a modest ‘force for good’: the European Neighbourhood Policy

Abstract

In 2004 the European Union launched its European Neighbourhood Policy (ENP) with a view to living up to its image as a 'force for good' in its dealings with neighbouring countries.1 The European Security Strategy of 2003 had aspired to create 'a world seen as offering justice and opportunity for everyone' and affirmed the EU's intention to work proactively towards this end.2 At first glance, the ENP appears to uphold this ambition to be a positive force in international relations rather well. The 2004 ENP strategy paper asserts that the EU wants to promote 'stability, security and well-being for all' by the use of incentives ('carrots') in lieu of sanctions ('sticks') and to foster cooperation in areas of mutual consent and interest.3 Moreover, the new financial instrument for the ENP came into force on 1 January 2007 and represents a noticeable increase in money allocated over previous EU aid programmes to these same countries. The policy thus appears remarkably balanced in its attention to interest and values, soft in respect of the absence of elements of coercion and rather generous in its offer of material assis tance. However, even at the end of 2006 there were already signs of a general ized 'ENP fatigue' among neighbouring countries, and in June 2007 the Union acknowledged this by embracing the German EU presidency's plan to revive the policy.4 What explains such lack of interest? While the causes are undoubtedly varied, we will argue here that part of the explanation lies in the failure of the EU fully to vindicate its assertion that the ENP is a positive-sum game. This article will examine the EU's claim to be a positive force for neighbouring countries by way of exploring its predisposition to ethical action. The first section will survey the current debate on ethics in the field of International Relations and provide a conceptual model for how to gauge the EU as a 'force for good'. The second section will look at how the Union frames its vision that the ENP