The reasons for the development of the Common Foreign and Security Policy

• The process of European integration has fostered an increased mutual understanding among member states and has brought into focus their common interests. These include not only economic and trade interests, but also the need to promote the values that constitute the cornerstone of democratic Europe.
• The need to coordinate the member states' foreign policy is also a direct consequence of the development of the European community's external action (common trade policy, agreements with third countries including association agreements, development aid) and of the growing interdependence between international affairs and economic and trade issues (as exemplified by the increased use of sanction regimes).
• The successive rounds of enlargement of the EU have widened the scope of its external relations (Commonwealth, Latin America, Mediterranean).
• The end of the cold war and of the bi-polar international system has given the EU new leeway and responsibilities on the international scene, including the primary responsibility of promoting stability in Eastern Europe.
• The Balkan crisis in the nineties further highlighted the need to develop the CFSP, in order for the EU not to be limited to a simple “free-trade area”. European public opinion could not reconcile itself to the concept of “an economic giant but a political dwarf”.
• It is now hoped that the launching of the euro will also contribute to the further development of the CFSP.

The main stages of the construction of the CFSP

1. The Davignon report (October 1970) is the founding document of the European Political Cooperation, the CFSP's predecessor. Its content was strengthened by the Copenhagen report in November 1973 (trimestral meetings of the Foreign Ministers and monthly meetings of the Political Committee, creation of the COREU network and of the working groups), the Paris Summit conclusions in December 1974 (introduction of the role of the Presidency in the development of relations with third countries) and the London report in October 1981 (introduction of the “troika” formula).
2. Title III of the Single European Act (1986) institutionalized fifteen years of “customary practice” and stipulates the creation of the Secretariat.
3. The Treaty on the European Union (TEU), adopted in Maastricht in December 1991, created a single institutional framework (the “European Union”), of which the Common Foreign and Security Policy constitutes the second pillar. In Maastricht, the member states stressed their willingness to strengthen the European identity on the international scene, notably through the implementation of the CFSP. The member states committed themselves to ensuring that their national foreign policies conform with the EU's common positions, and to coordinating their action in international organizations and at international conferences.
4. The next step was the adoption of the treaty of Amsterdam (June 1997), which amended the TEU and remains in force (while waiting for the ratification by member states of the Nice Treaty, which was adopted in December 2000). The Common Foreign and Security Policy (CFSP) is set out in article 11 of the TEU. The Union shall define and implement a common foreign and security policy, the objectives of which shall be to:
   
   • Safeguard the common values, fundamental interests, independence and integrity of the Union in conformity with the principles of the United Nations Charter
   • Strengthen the security of the Union in all ways
   • Preserve peace and strengthen international security, in accordance with the principles of the United Nations Charter, as well as the principles of the Helsinki Final Act and the objectives of the Paris Charter, including those on external borders
   • Promote international co-operation
   • Develop and consolidate democracy and the rule of law, and respect for human rights and fundamental freedoms.
5. Furthermore, the Treaty of Amsterdam includes the following new steps:
   
   • Creation of the post of the CFSP High Representative, as well as of the Policy Unit in the Secretariat
   • Institutionalization of the “constructive abstention” mechanism in order to facilitate the CFSP decision-making process
   • Creation of a new instrument called the “common strategy”.
6. The European Security and Defense Policy (ESDP) was first mentioned in Maastricht. Article 17 of the Treaty stipulates that “The common foreign and security policy shall include all questions relating to the security of the Union, including the progressive framing of a common defense policy, (…), which might lead to a common defense, should the European Council so decide.”

In Cologne, in 1999, the European Council concluded that “The aim is to strengthen the CFSP by the development of a common European policy on security and defence. This requires a capacity for autonomous action backed up by credible military capabilities and appropriate decision making bodies.” The European Security and Defense Policy (ESDP) is meant to give the European Union the means to play its role fully on the international stage and to assume its responsibilities in the fields of crisis prevention and management, in accordance with the principles of the UN Charter.

In developing an autonomous capability to launch and conduct crisis management operations, in response to international crises, the EU will be able to carry out the full range of the so-called “Petersburg tasks”, as defined in the Treaty of Amsterdam.

The above epitomize the development of ESDP, as conceived and set in motion from the European Council of Cologne to that of Laeken.

Institutions and organs of the CFSP

1. The European Council
   The European Council is the highest political body in the EU and consists of Heads of State or Government of the member states and the President of the Commission. It defines the principles and general orientations of the CFSP, including security and defense issues.
2. The Council
   The Council of the European Union (or the Council) is the EU decision-making body. It defines and implements the CFSP, on the basis of the general orientations of the European Council. As a rule, the CFSP is dealt with by the General Affairs Council, consisting of the ministers for foreign affairs of member states.
3. The Presidency
   The work of EU is directed and coordinated by the Presidency, which rotates among member states on a bi-annual basis. The Presidency has a pivotal role in the CFSP. It is the vanguard of policy initiatives, as well as being responsible for the implementation of decisions already taken. In the latter capacity, it states the positions of the Union on international issues, as well as in international organizations and conferences.

   The Presidency, the upcoming Presidency, the Commission and the SG/HR (see point 6 below) form the “Troika”, which represents the Union in political dialogue meetings with third countries.

4. The Commission
   Article 27 of the TEU states that “the Commission shall be fully associated with the work carried out in the common foreign and security policy field”. It has the same right of initiative as a member state. It takes part in the Troika-meetings with third states. The Commission is also responsible for the financial implementation of many decisions adopted under the second pillar (e.g. on demining).
5. The Secretary General of the Council / CFSP High Representative
   The SG/HR assists the Presidency in representing the Union. He contributes to the formulation, elaboration and implementation of political decisions. He conducts dialogues with third states on behalf of the Council when asked to do so by the Presidency.
6. The Parliament
   The contribution of the European Parliament role in the CFSP is the following:
   
   • It has control over funds originating in the Community budget.
   • It can submit questions and formulate recommendations to the Council, even though it does not participate directly, as yet, in the decision-making process.
   • The Presidency shall consult with the Parliament on the principal aspects of the CFSP and takes its views into account.
   • The Presidency and the Commission keep the Parliament informed on CFSP issues.
7. COREPER
   Council meetings are prepared by the COREPER (the Committee of Permanent Representatives to the EU). Before an issue is included in the agenda of the COREPER, it has been discussed in one of the several working groups and in the Political and Security Committee (see below). All items on the agenda of a Council meeting shall be examined in advance by COREPER unless the Council decides otherwise.
8. Political and Security Committee
   The Political and Security Committee (PSC) monitors the international situation in the areas covered by the common foreign and security policy and contributes to the definition of policies by delivering opinions to the Council at the request of the Council or on its own initiative. It also monitors the implementation of agreed policies, without prejudice to the responsibility of the Presidency and the Commission. The Committee meets in the mornings of days on which General Affairs Council meetings are held, to update the texts of the GAC conclusions and declarations. The PSC may occasionally meet in the format of Political Directors.

   Furthermore, the PSC is the focal point for crisis management. It maintains political control and strategic direction for crisis management operations. It is:

   • assisted by the Political and Military Group
   • advised by the EU Military Committee (EUMC) and by the Committee for Civilian Aspects of Crisis Management.
9. The General Secretariat
   The General Secretariat, under the leadership of the Secretary-General, High Representative (SG/HR), assists the Council and ensures the smooth functioning of the EU. Furthermore, the Secretariat plays an important role as “the institutional memory” of the CFSP. As each Presidency only serves for a very limited time, this role is extremely important.

   The Policy Unit performs the following duties under the direct authority of the SG/HR:

   • it monitors and analyzes developments on CFSP issues.
   • it identifies areas on which the CFSP could focus in the future.
   • it provides early warning of CFSP relevance including potential political crises.
   • it produces, at the request of either the Council or the Presidency or on its own initiative, policy papers which contain analyses, recommendations and strategies for the CFSP.

   Following decisions taken at Helsinki and Nice, the EU Military Staff (EUMS) has been established within the General Secretariat, to provide military expertise and support to the ESDP, including the conduct of EU-led military crisis management operations. Its mission is to perform early warning, early assessment and strategic planning for Petersberg tasks and to implement policies and decisions as directed by the European Union Military Committee.

10. The Relex Counsellors
    The “External Relations Counsellors” (RELEX) is another preparatory body, which has a special responsibility for inter-pillar coordination and for institutional, legal and budgetary issues related to the CFSP.
11. The European Correspondents
    The European Correspondents are the contact points between the CFSP Departments of the Foreign Ministries of member states.
12. The CFSP Working Groups
    The thirty CFSP Working Groups have either a geographic (Africa, Asia, Balkans, etc) or a thematic brief (UN issues, disarmament, human rights etc.). They consist of experts from capitals and make recommendations to the PSC on CFSP issues of their competence.

The CFSP instruments and methods

1. Within the framework of CFSP, the member states may take the following measures or decisions:
   
   • Common Strategies
     These are long-term, inter-pillar and multi-faceted policies, which confirm the priority allotted by the EU to a country, a region or a specific issue. The three Common Strategies that have been adopted to date by the European Council concern Russia, the Ukraine and the Mediterranean. They were meant to facilitate the smooth functioning of the CFSP, by ensuring a more frequent use of qualified majority voting in the decision-making process.
   • Common positions
     They are adopted by the Council and define the EU's positions on specific thematic or geographical issues.
   • Joint Actions
     These include the definition of the financial and other means that are needed to implement EU policies. Joint Actions adopted to date by the Council concern, inter alia, the Balkans, the Middle East Peace Process, demining, non-proliferation and the Great Lakes Region, as well as the financing of the missions of Special EU Envoys.
   • Statements and Declarations
     More than 150 statements and declarations are made public every year on various developments in the field of international relations.
   • Demarches with governments of third countries
     A similar number of demarches is carried out every year by the Presidency or the Troika, following an agreement among member states. The latter may also decide to make the content of the demarche public.
   • Political dialogue with third countries or groups of countries
     This is conducted by the Presidency or by the Troika at all levels (Summits, Ministerial meetings, Political Directors, PSC, Working Groups) with approximately fifty non-EU countries and ten regional organizations. An enhanced political dialogue is conducted with candidate countries (and, occasionally, other European countries) in the framework of a European Conference established in March 1998.
   • Action in situ
     Apart from the aforementioned demarches, the Union's Special Envoys or Special Representatives (whose role has been institutionalized by article 18.5 of the Amsterdam Treaty) allow for a more effective and coherent presence of the EU and facilitate the latter's contacts with the main international or regional players. The Presidency may also decide to appoint a “Special Representative of the Presidency” for a specific issue - meaning also that it ensures the financing of his/her mission.
2. As a rule, decisions regarding the CFSP are normally taken by unanimity. However, as mentioned in para II.e above, a formula called “constructive abstention” has been introduced in the TEU in order to avoid the blocking of EU actions. A member may abstain from voting against a decision, while making a formal declaration. In that case, it shall not be obliged to apply the decision, but shall accept that the decision binds the Union. In a spirit of mutual solidarity, the member state concerned shall refrain from any action likely to conflict with or impede Union action based on that decision and the other member states shall respect its position.
3. Finally, an important amount of the CFSP workload is carried out through the use of the COREU ciphered communications network, which links the Foreign Ministries of the member states. This allows for a timely and regular exchange of views and information on CFSP issues, including meetings with third countries, as well as for the preparation of CFSP decisions or EU statements (including through the use of the “silence procedure”).

Greece and the CFSP
Greece has always been a staunch supporter of the development of a Common Foreign and Security Policy for the EU. In this regard, Greece has actively participated in the entire evolutionary process of the EU over the last decade (inter alia, the Intergovernmental Conferences that led to the adoption of the Maastricht, Amsterdam and Nice Treaties). She has laid particular emphasis on the need to bolster the Union with a credible and strong foreign and security policy, which should have at its disposal the necessary institutional framework, coherence and unity, along with vital operational tools in order to underpin the role of the EU on the international scene.

In light of the above, and in a spirit of solidarity, she contributes substantially to the development of the CFSP, especially as regards issues related to her geographic proximity (i.e., the Balkans, the Middle East, the Mediterranean and the Caucasus). Greece's main objectives include the eradication of current loci of conflicts, the prevention of potential crises and the consolidation of a climate of security, the implementation of the fundamental principles of international law and the strengthening of the rule of law, and the protection of human and minority rights.

At the same time, Greece was, from the very beginning, one of the strongest advocates of the inclusion of a credible security and defense dimension in support of the CFSP, as was finally decided by the European Council in Cologne in June 1999. Since then, Greece contributes, by all the means at her disposal, to the development of the ESDP and to the strengthening of Europe's capabilities, being fully aware that only with improved capabilities will the EU be able to pursue a strong and credible foreign policy.

The goal of declaring the ESDP fully operational during the upcoming Greek Presidency (1st semester 2003) constitutes, in this regard, a particular challenge for Greece, who, it should be noted, will exercise the Presidency on the military aspects of the ESDP from the second semester of 2002, because of Denmark's opt-out. Greece will strive relentlessly to make the ESDP effective in all its aspects, including smooth and functional cooperation with NATO, in line with the fundamental principles defined by the European Council.

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