EU Delegations Research Articles

The EU’s longer arm abroad: the role of EU Delegations in crisis management

ABSTRACT Since the establishment of the EEAS as the EU’s diplomatic service and the transformation of the EU’s representation abroad into EU Delegations, the EU has been a pioneer in multilateral diplomacy and contributed to development in its wider neighbourhood. These bodies made a significant contribution to widening the EU’s diplomatic network and strengthening its position in foreign policy and external relations. However, EU Delegations play a minimal role in the EU’s crisis management efforts despite their presence on the ground and their useful recourses, which could, in fact, provide crucial assets to EU-led missions. While the EU has shown successes in diplomacy, its Delegations face the problems of multiple principals and non-exclusive delegation which risk undermining the EU’s overall capacities as a global actor. This article applies the PA model to illustrate these dual problems in the cases of the CSDP missions conducted in Mali and Ukraine.

EU digital public diplomacy in Southeast Asia during the COVID19 pandemic

ABSTRACT This article explores whether and how the EU projected a digital form of public diplomacy in Southeast Asia during the COVID19 pandemic through its vaccine policy. Using Twitter (now X) data from the EU delegations and ambassadors in Malaysia, Indonesia and Vietnam, and applying a post-Foucauldian epistemology, the article argues that a vaccine-focused EU digital public diplomacy sustained the central role of the EU and the projection of a normatively positive EU identity in the region.

EU delegations as intermediaries of perceptions of the EU: A view from the MENA region

ABSTRACT The European Commission in its 2015 study on the perceptions of the EU acknowledged that mutual perceptions held by actors in the international arena affect their expectations about the other’s behaviour and hereby guide the interpretation of the other’s actions. Knowledge of how and what image of the MENA countries and of the EU is conveyed by country delegations is important for understanding whether the information that influences EU foreign policy-making is representative, and of whom. EU delegations are an acknowledged source of knowledge that feed into EU policymaking, and proposals have even been made for strengthening their role. Based on interviews with heads of delegations/Ambassadors in 2021, four interlinked categories of concerns affecting the perceptions of the EU are identified: historical legacy; knowledge about and expectations towards the Union; competing values and aims; and the EU’s internal policy inconsistencies. The findings in the interviews are contextualized through an analysis of previous research on the perceptions of the EU. Further, the article discusses the role of delegations in EU policy-making and invites to take a critical view of Ambassadors´ ‘perceptions of the perceptions of the EU’.

Dialogic approach in the EU’s international cultural relations: joint EUNIC-EU delegation projects as heritage diplomacy

ABSTRACT Culture and cultural heritage have become central aspects in the European Union’s (EU) foreign policy that increasingly emphasizes dialogue and people-to-people connections as the basis for international cultural relations. This article explores 11 projects jointly facilitated by the European Union National Institutes for Culture (EUNIC) and EU Delegations in nine countries located in Europe, Africa, and South America as part of a strategic cooperation between the European Commission, the European External Action Service and EUNIC. We identify five modes of highlighting dialogue as a key element in the EU’s international cultural relations and discuss how the ideas of dialogue, cultural heritage, values, and diplomacy are entangled and interrelated in our data. The study underlines the core role of the cooperation between EUNIC and EU Delegations and shows how a dialogic approach determines the EU’s international cultural relations and at the same time interconnects its international and internal policy aims.

Learning in, about and from the field? Symbolic functions of EU knowledge production on Central Asia

ABSTRACT Examining the European Union’s (EU) engagement with Central Asia since the early 1990s, we see an increased commitment to context sensitivity. Arguably, in order to design ‘better’ interventions, the EU needs to know more about this region. This article explores three means of EU learning: in the field – through EU officials’ first-hand experience of working at EU Delegations in Central Asia; about the field – through programmed channels of external expert knowledge, and in particular think tanks; and from the field – during institutionalized consultations with multiple local actors, such as academics, journalists and non-governmental organizations. It is argued that despite this complex learning infrastructure, EU knowledge production on Central Asia has a predominantly performative character. Rather than leading to changes in its relations with Central Asia, new knowledge produced by the EU aims at legitimizing this organization’s pre-existing frameworks of engagement and practices of interactions with the region, and substantiating existing policy priorities.

European administration of consular protection

This paper seeks to review the evolution of consular protection management in the European Union. The process of Europeanisation has reached its current profile through three stages of evolution and we are likely to see further institutionalisation, with several available alternatives. The historical analysis outlines the rationale for a further process of Europeanisation in the light of changes in the legislative powers of the EU, exploring the nature of legal regulatedness and aligning it with the development of fundamental rights, and presents a prognosis for the next stage of development in the light of experience to date. The research findings, based on an analysis of normative rules of various origins, regulatory and binding, preparatory documents, official statistics and reports as primary sources, and literature on specific aspects of the subject, also suggest that an effective consular protection policy will require changes in the tasks and competences in the next development stage. The existing consular enforcement apparatus in the Member States should be better integrated with the network of EU delegations, at least for some of the specified consular protection tasks. This raises further regulatory issues, but it is undeniable that the Europeanisation of consular protection administration is moving in this direction.

THE PRACTICE OF APPOINTING EU AMBASSADORS: LA LANGUE EST-ELLE IMPORTANTE

Abstract. The study tries to discover to what extent knowledge of the local language of a diplomat’s host country, and language skills generally, are considered while selecting candidates for EU delegation heads in the European External Action Service. With this aim, the study examines possible correlations between languages spoken by the EU delegation heads and the official languages in their respective host countries. It is concluded that a correlation often exists between the language(s), and especially mother tongues, spoken by the EU delegation heads and the official language(s) in the countries to which they are posted and, thus, a candidate’s knowledge of the host country’s official language is usually taken into account in the selection of candidates for EU delegation heads, although this criterion seems to carry different weight for candidates from various EU member countries. Keywords: EEAS, heads of EU delegations, EEAS staffing policy, EU diplomacy, languages in diplomacy

The EU Delegation in Saudi Arabia and the GCC: Communication, Visibility and Culture

The paper examines communication and visibility (C&V) aspect in the operations of the EU Delegation in Saudi Arabia and the GFA Consulting Group. The author assumes that properly designed communication using adequate contents may significantly affect the EU external relations. To verify this statement, the twofold approach was used. First, through the lens of Soft Power and EU actorness, it looks into the theoretical dimension of the international relations and its possible links with communication process. Second, drawing on existing internal EU documents (Communication and Visibility in EU-financed External Actions – Requirements for Implementing Partners 2018 by the EU Delegation in Saudi Arabia, and Information and Communication Handbook for EU Delegations in the Third Countries and International Organizations, published in 20122) the paper offers analytical framework to explore the qualitative and quantitative nature of the online communication undertaken in social media platform both by the EU Delegation in Saudi Arabia and the GFA.

Disruptions in the ENP Cycle: EU Gender Policies in Tunisia from a ‘Decentring Perspective’

The article explores how policy actions generated by the European Neighbourhood Policy (ENP) are enacted in partner countries as the result of cooperation between their governments and EU headquarters and between local actors and EU delegations (EUDs). By borrowing insights from the literature on EU democracy support and on external perceptions of the EU, the article considers the implementation of EU gender policies in Tunisia through the analytical lens of the ‘policy cycle model’. It adopts a ‘decentring perspective’ privileging local actors’ needs, expectations and viewpoints, which reveals that major disruptions in the implementation of EU gender policies derive more from the organization’s bureaucratic rigidity than from the way policy is conceived. The EU does not properly address these disruptions, because of a mix of procedural constraints and political prioritization, which affect the functioning of the ENP cycle. This risks undermining desired outputs at the local level and questions the so-called EU ‘local turn’ that accelerated especially after 2011. The article concludes that the ‘policy cycle model’ can be a useful analytical tool to examine other ENP policies, especially if combined with a ‘decentring perspective’. ENP, gender policies, Tunisia, EU delegations, female civil society, policy cycle model, decentring perspective

The European External Action Service and EU Climate Diplomacy: Coordinator and Supporter in Brussels and Beyond

This article assesses the European External Action Service’s (EEAS’s) role in the evolution of EU climate diplomacy over the past decade and considers its future agenda. We distinguish between the EEAS headquarters and the EU Delegations/Offices in third countries. The EEAS headquarters has found a role as coordinator among the Council and Commission services as well as between ‘Brussels’ and the EU Delegations. What is more, the EU Delegations have engaged in various climate diplomacy activities and coordinate among Member State embassies. Despite its reliance on only a few staff members specialized in climate issues – both at the headquarters and Delegation level – the EEAS contributes to EU climate diplomacy formulation and implementation by providing a centralized venue for coherent geographic and thematic messaging and action. European External Action Service, EEAS, climate diplomacy, EU Delegations

The EEAS in Multilateral Fora: Impact on EU Coherence at the UN General Assembly

The European External Action Service (EEAS) should coordinate the Union external action and, thus, enhance coherence in the EU’s participation in multilateral fora. This article verifies the EEAS’ practical impact on EU voting cohesion and unity of representation in multilateral fora over its first ten years of existence, through an analysis of empirical data regarding the EU’s performance at the UN General Assembly. The data suggest that the EEAS has not had a significant impact on EU Member States’ voting cohesion. However, the EEAS has promoted unity in the EU’s international representation: indeed, EU delegations – which are part of the EEAS – have become the main Union representatives at the UN General Assembly and their representative role is unchallenged by EU institutions and Member States. Despite the persisting divisions in EU foreign policy, the EEAS is likely to ensure an effective Union representation in multilateral fora in the future. EEAS, international institutions, international organisations, diplomacy, coherence, coordination, cooperation, representation, votes, statements

The EEAS: Navigating EU Inter-Institutional Relations and Africa

The first ten years of the European External Action Service (EEAS) coincided with a time of considerable evolution in the global, European, and African landscape. This article explores the success of the EEAS strategic navigation of the EU’s inter-institutional and Member State relationships with Africa. Issues such as diplomatic relations, peace and security, and the Commission’s exclusive and shared competences in trade and development cooperation respectively are examined from the EEAS point of view. It highlights the strategic and practical constraints facing the EEAS that explain not only past challenges, but those that remain relevant for the future performance of the Service. It looks at issues in EEAS Headquarters (HQ) as well as within the EU Delegations and explores the relationship between the EEAS and EU external financial instruments. It concludes that given its relative youth, the EEAS did not perform badly despite the peculiar circumstances in which it found itself. Looking forward, the long and rather chequered history of EU–Africa relations could do with a better strategic touch, informed by clear insight regarding dynamics on the continent and the position and interests of African actors. This is an argument in favour of a more empowered EEAS at HQ and within Delegations. Africa, EEAS, DEVCO, Aid, Joint Africa EU Strategy (JAES), African Union, Geopolitical Commission, NDICI, European Commission, HRVP

EU Delegations in European Union climate diplomacy: the role of links to Brussels, individuals and country contexts

ABSTRACTThe European Union’s (EU) Delegations and Offices that represent the Union in 144 countries have evolved into important satellites, implementing EU external relations. Their activities are manifold and are implemented in various ways. Building on substantive interview data, this article provides the first expansive mapping of EU climate diplomacy practices of EU Delegations and explains the surprising variance therein. It shows that the intensity and quality of contacts between individual Delegations and individual (parts of the) Brussels-based institutions – most importantly DG Climate Action – in combination with individual Delegation staff members’ expertise and host country characteristics can explain the observed variation among EU Delegation activities. These factors can contribute to better understanding the nature of the EU as an international actor.

Eu External Representation Post-Lisbon: The Performance of eu Diplomacy in Belarus, Moldova and Ukraine

Summary The European Union (eu) today has quasi-embassies at its disposal in third countries — the eu delegations — which represent the Union’s eyes, ears and face. Following the Treaty of Lisbon, these delegations assumed the role of the rotating Presidencies and oversee the conduct of eu diplomatic affairs. In practice, this implies representing the eu and cooperating with eu member states’ embassies on matters not only relevant for aid and trade, but also for foreign and security policy. By employing performance criteria such as effectiveness, relevance and capability, this article uncovers the particularities of the practices of European diplomatic cooperation among eu delegations and national embassies in Belarus, Moldova and Ukraine. Drawing on fieldwork conducted in Minsk, Chisinau and Kiev from 2013-2016, the article explores practices of European cooperation abroad, shows how eu diplomatic actors identify a common approach and emphasizes certain capability issues faced by the eu in these countries.

Neither Fish nor Fowl. How eu Delegations Challenge the Institution of Diplomacy: The Cases of Moscow and Washington

Summary This article explores European diplomatic cooperation abroad since 2009 by studying diplomatic structures and practices in two key locations: Moscow and Washington, dc. It analyses the functions of European Union (eu) delegations as part of the hybrid eu foreign policy system and their way of engaging with the changing global patterns of diplomatic practice. The empirical analysis draws on extensive semi-structured interviews conducted in Moscow and Washington during 2013-2014. Our cases confirm the deeper institutionalization and intensification of European diplomatic cooperation abroad. The eu delegations increasingly assumed traditional diplomatic tasks and coordinated member states on the ground. The eu delegations’ ability to establish good working relationships with member states as well as the leadership of key individuals (notably eu ambassadors) were key factors in shaping how this new system fell into place, which shows the continued prevalence of hybridity in eu foreign policy-making.

The European Cooperation in the Southern Mediterranean: The Multilateralization of Bilateral Relations?

Summary This article focuses on institutionalized forms of diplomatic cooperation among European Union (eu) members in southern Mediterranean capitals. It argues that European diplomatic cooperation represents a thin form of multilateralization of member states’ bilateral relations with southern Mediterranean countries. By analysing diplomatic presence on the ground, it shows that the European Union delegations in the area are not only big, but also politically strong, and they interact with a large number of national diplomats. The article examines how eu delegations in the southern Mediterranean represent a diplomatic ‘site’, in which diplomacy occurs in the shape of information-gathering, representation and negotiation, including among eu member states. This does not amount to a single European diplomatic system, however, as coordination remains thin to date and the agenda-setting mechanisms for eu delegations’ work and for European diplomatic cooperation have not (yet?) been fully developed.

The quest for throughput legitimacy: the EEAS, EU delegations and the contested structures of European diplomacy

ABSTRACTThe European External Action Service (EEAS) and its EU delegations have developed the notion of “being of service to EU member states” in EU foreign policy making as their unique selling point for the past eight years. In this paper, we discuss how the EEAS and its delegation network sought to establish throughput legitimacy and why being considered legitimate is a particular concern for them. We trace the conflicting expectations of “roles” expressed during the Convention on the Future of Europe and the Lisbon Treaty and show how the EEAS and EU delegations responded to treaty implementation. Because the EEAS and EU delegations were treated as separate parts during the discussions of the time, we are able to compare how different levels of role contestation lead to different strategies for legitimacy construction in practice.

Implementation of EU Free Trade Agreements

The EU has a very active trade negotiating agenda, with new negotiations starting every year and being in preparation. Increasing number of free trade agreements (FTAs) are also being concluded. Against this background, and the fact that trade policy is attracting much more attention from the public that used to be the case still a few years back, effective implementation of EU trade agreements has become an important priority for the EU Trade policy. The EU needs to demonstrate that its trade agreements work in practice and deliver the negotiated benefits to EU operators. The EU FTAs currently in force are not identical in their scope and objectives, and this has to be taken into account also when looking into their implementation. EU FTAs can be divided in different groups on the basis of their scope and objectives. Since 2006 the Commission has been negotiating comprehensive FTAs which cover a wide range of areas including also inter alia services, investment, procurement, intellectual property rights, competition and trade and sustainable development. When speaking about FTAs, normally the main point of interest is to know whether the FTAs have led to an increase of trade flows between the partners in the areas of trade in goods, services and investment. In general it can be said that in large majority of cases, the trade in goods has increased during the period than the FTAs have been in force. In terms of services and investment, it is more difficult to see the link with the FTAs in developments in these areas. Preference utilization rates (PURs) of the EU FTAs have attracted a lot of attention since the Commission started producing them after the EU–Korea FTA started to be applied. In general, the PURs for EU operators are lower than those of our trading partners. New generation FTAs have a comprehensive structure of implementation bodies. A number of subcommittees and working groups covering different areas covered by the chapters of the FTA meet annually to address problematic issues. Sanitary and phytosanitary measures, restrictions in trade of agricultural products, enforcement of geographical indicators and public procurement have been areas most often discussed in these fora. Lack of awareness of the FTAs by EU companies and difficulties in understanding them is still a real issue preventing FTAs reaching their full potential. This has led the Commission to intensify its efforts to address better the awareness gap. In addition to the Commission, Member States and their business organizations have also a crucial role in disseminating information on FTAs to their stakeholders, in particular small and medium sized enterprise (SMEs), who often require information in a local language and locally in different regions. Close cooperation between Member States’ embassies and the EU delegations in the FTA partner countries has also been identified as a key factor to ensure effective implementation of the FTAs.

Embajadas y consulados compartidos. La práctica de España en la Unión Europea y en la Comunidad Iberoamericana

This paper is focused on the network of shared embassies and consulates between Spain and several European or Ibero-American States, as well as cases between Spain and EU delegations. The 1961 Convention and the 1963 Convention set the key international legal framework, and yet it can be stated that there is a progressive development of the law. Two Laws have recently been approved in Spain on foreign action and on treaties and other international agreements that can develop new forms of diplomacy, such as co-location. This practice has not yet been made public, although it has been declared of strategic interest by the Spanish Administration. In conclusion, it has been demonstrated the need to show and order this practice made up of international agreements.

Seeking Refuge in EU Delegations Abroad: A Legal Imbroglio Explored

A diplomatic mission abroad can assist an individual in (temporarily) escaping a host State’s jurisdiction within the latter’s territory, especially when this individual has a well-founded fear for the violation of his fundamental rights. In such cases, EU Member States have occasionally opened the doors of their diplomatic premises for urgent humanitarian reasons. This working paper investigates which legal framework would apply if one of the Delegations of the European Union’s worldwide diplomatic network were to offer shelter. It explores whether the EU – as an actor in international law and being founded on the values of respect for human dignity and human rights − may be legally obliged to uphold an extraterritorial non-refoulement principle in a diplomatic context. Finally, the paper studies delicate issues such as offering protection through diplomatic means, cooperation modes set up with EU Member States, and the processing of individual cases.