Multiple connections in European co-operation: international organizations,policy ideas,practices and transfers 1967–92

Abstract

International organizations are ubiquitous in contemporary Europe and the wider world. This special issue takes a historical approach to exploring their relations with each other in Western Europe between 1967 and 1992. The authors seek to ‘provincialize’ and ‘de-centre’ the European Union’s role, exploring the interactions of its predecessors with other organizations like NATO, the OECD and the Council of Europe. This article develops the new historical-research agenda of co-operation and competition among IOs and their role in European co-operation. The first section discusses the limited existing work on such questions among historians and in adjacent disciplines. The second section introduces the five articles and their main arguments. The third section goes on to elaborate common findings, especially regarding what the authors call the vectors for the development of policy ideas and practices and their transfer across different institutional platforms.     

The politics of US missile defence cooperation with Europe and Russia

Pushed by the realities of domestic politics to proceed with plans to deploy a US missile defense (MD) capability in Europe, the Obama administration has made cooperation on MD a key element in its strategy for engaging both NATO and Russia. While addressing many of the shortcomings of the Bush administration's approach, the current US vision underestimates both the technical and political obstacles ahead. European states and NATO see MD as a lower priority, particularly in the aftermath of the conflicts in Afghanistan and Libya, and are unlikely to commit the resources necessary to making a shared NATO MD architecture a reality. Russia's cautious support for MD cooperation is based on a desire to create a more inclusive model of European security, an idea that has limited support in Washington and the European capitals. By trying to do too much with MD cooperation, the Obama administration risks the whole effort collapsing. Given domestic constraints, the administration cannot pull back from its European MD plans, but should nudge them off centre stage in its conversations on security with both NATO allies and the Russians.     

Between cooperation and competitive bargaining: the Council of Europe,local and regional networking,and the shaping of the European Community’s regional policies, 1970s–90s

Abstract:

In many ways, the Council of Europe paved the way for European Community (EC) action in local and regional affairs. It was the first European organisation to establish a conference of local and regional authorities in 1957, in which local actors and associations were represented and tried to influence the shaping of European regional policies. This article analyses the links between the Council of Europe and the EC in the development of regional policies from the 1970s to the 1990s by focusing on three transmission vectors: through institutional cooperation between the two European organisations; through competitive bargaining among local and regional groups; and through intensive lobbying at EC level. It argues that the transfer of ideas was not so much achieved through cooperation between the organisations’ experts or political committees but rather by means of transregional networking promoting the idea that local and regional authorities had to be associated with the elaboration and implementation of European regional policy. From 1988, these networks shifted their attention away from the Council of Europe towards the EC because of the possibility to receive direct funding from the European Commission.     

Transatlantic relations and peace in Europe

In his recent novel Alain Crémieux imagines what might happen in Europe without NATO and US military forces and security commitments. Numerous border and minority conflicts break out, coalitions comparable to those in Europe's past begin to form, and the European Union is divided and ineffectual— until pro‐peace and pro‐EU forces rally. Most European countries then unite under a treaty providing for collective defence and security and a new central European government. The novel raises questions of international order: to what extent have the Europeans overcome their old ‘demons’ (distrust, power rivalry etc.), notably through the EU? While many theories purport to explain the peaceful relations among the EU member states, critical tests of the Union's political cohesion would come in circumstances without the US‐dominated external security framework, including US leadership in NATO. To what extent could the EU maintain cohesion and resist aggression or coercion by an external power against a member state, contain and resolve external conflicts affecting EU interests, and defend the Union's economic and security interests beyond Europe? To determine whether the US ‘pacifying’ and protective role has in fact become irrelevant, thanks in large part to the EU, would require a risky experiment—actually removing US military forces and commitments. The challenges and uncertainties that would face Europe without NATO argue that the Alliance remains an essential underpinning of political order in Europe. Moreover, the Alliance can serve as a key element in the campaigns against terrorism and the proliferation of weapons of mass destruction. To revitalize the Alliance, it is imperative that the Europeans improve their military capabilities and acquire the means necessary for a more balanced transatlantic partnership in maintaining international security.     

Europe,the rise of Asia and the future of the transatlantic relationship

This article examines how, in a global strategic context presided by the rise of Asia and the US rebalance towards that region, Europeans are contributing to transatlantic burden‐sharing—whether individually or through the EU/NATO. As Asian powers reach westward and the US shifts its strategic priorities eastward, classical geostrategic delimitations become gradually tenuous. Particularly important are the ‘middle spaces’ of the Indian Ocean, central Asia and the Arctic, in that they constitute the main avenues of communication between the Asia–Pacific and the European neighbourhood. The article seeks to understand how evolving geostrategic dynamics in Europe, the ‘middle spaces’ and the Asia–Pacific relate to each other, and how they might impinge on discussions on transatlantic burden‐sharing. It is argued that the ability of Europeans to contribute to a more equitable transatlantic burden‐sharing revolves around two main tenets. First, by engaging in the ‘middle spaces’, Europe's key powers and institutions are helping to underpin a balance of power in these regions. Second, by stepping up their diplomatic and economic role in the Asia–Pacific, strengthening their security ties to (US) regional allies and maintaining an EU‐wide arms embargo on China, Europeans are broadly complementing US efforts in that key region. There are a number of factors that stand in the way of a meaningful European engagement in the ‘middle spaces’ and the Asia–Pacific, including divergent security priorities among Europeans, the impact of budgetary austerity on European defence capabilities and a tendency to confine foreign policy to the immediate neighbourhood. The article discusses the implications of those obstacles and outlines some ways in which they might be overcome.     

Europe at the crossroads of three worlds: alternative histories and connections of European solidarity with the Third World, 1950s–80s

Abstract

Over the past few years, there has been growing interdisciplinary interest in the history of European solidarity movements that mobilized on behalf of the ‘Third World’ in the wake of the post-war decolonization process. Focusing on European campaigns against the Vietnam War and Pinochet’s Chile, this article aims at positioning these international solidarity movements in the broader history of North–South and East–West exchanges and connections in Europe during the Cold War. It explores some key ideas, actors and alternative networks that have remained little studied in mainstream accounts and public memories, but which are key to understanding the development of transnational activism in Europe and its relevance to broader fields of research, such as the history of Communism, decolonization, human rights, the Cold War and European identity. It delves into the impact of East–West networks and the Communist ‘First World’ in the discovery of the Third World in Western Europe, analyses the role of Third World diplomacy in this process, and argues how East–West and North–South networks invested international solidarity campaigns on ‘global’ issues with ideas about Europe’s past and present. Together, these networks turned resistance against the Vietnam War, human-rights violations in Pinochet’s Chile, and other causes in the Third World into themes for détente and pan-European cooperation across the borders of the Iron Curtain, and made them a symbol to build a common identity between the decolonized world and Europe. What emerges from this analysis is both a critique of West-centred narratives, which are focused on anti-totalitarianism, as well as an invitation to take North–South and East–West contacts, as well as the role of European identities, more seriously in the international history of human rights and international solidarity.     

More than a storm in a teacup: the defence and security implications of Scottish independence

In September 2014 the people of Scotland will vote on whether to become an independent nation, with the defence and security of Scotland proving to be one of the more vociferous areas of debate. This article argues that defence and security implications of this referendum are far more fundamental than either the ‘yes’ or ‘no’ campaigns have admitted. It makes four points. First, it suggests that the Scottish government's plans for defence and security in NATO and the EU are at odds with its proposed armed forces and that Scotland may well find itself having to make far greater commitments to defence to assure its allies. Second, it argues that a vote for independence will represent a game‐changing event for the remainder of the United Kingdom's defence and security, which will have significant consequences for the United Kingdom's partners and allies in NATO, the European Union and elsewhere. Third, the article contends that even a vote against independence will have a long‐term impact, in that the ‘West Lothian question’ and Scottish support for nuclear disarmament influence the 2015 Strategic Defence and Security Review. Finally, the article highlights how this issue has revealed weaknesses in the think‐tank and academic communities, particularly in Scotland. The independence vote does, therefore, represent ‘more than a storm in a tea cup’ and thus there needs to be far greater engagement with these issues within the United Kingdom and elsewhere.     

The Field Artillery Revolution and the European Military Balance, 1890–1914

ABSTRACT

This article centres on the introduction of the French 75mm light field gun, and its impact on the European military balance in the two decades before the First World War. It argues that the 75mm (and particularly its new recoil-absorption mechanism) dramatically accelerated the rate of fire and gave France a major military advantage over Germany between c. 1899 and 1906. Subsequently the application of the new technology to howitzers and heavy artillery enabled Germany to redress the balance. On the eve of war, however, Germany's leaders feared a new round of French and Russian emulation, and this fear influenced their policy in the July 1914 crisis. The article also examines the failure to forestall the quick-firing revolution at the First Hague Peace Conference; the new technology's role in the First Moroccan Crisis; its dissemination across Europe and the Franco-German competition to amass reserves of shells.     

The United States and the Question of the Greco-Turkish War, 1919–1922

Abstract

In the post World War II era, the strain in the trilateral relation between the United States, Greece and Turkey is one of the most disquieting and vexatious elements to emerge from American foreign policy. The so-called southeastern flank of the North Atlantic Treaty Organization (NATO) is currently beset with tensions that threaten to impede its contributory role in NATO's overall defense strategy for southeastern Europe (if they have not already done so). In this political drama, the principal antagonists, Greece and Turkey, have a number of outstanding differences which on occasion have brought them to the precipice of war. As a result, the United States has intervened as the protagonist and consequently has become the recipient of the enmity of these two NATO allies for not recognizing their ‘special’ claims or interests. As in the characteristic classical Greek drama, the chorus of NATO partners offer a common chant: they are united in proclaiming that the current state of affairs seems to portend failure to the concerted effort to defend Western Europe.     

Facing the Greek junta: the European Community,the Council of Europe and the rise of human-rights politics in Europe

Abstract

In April 1967, a group of colonels seized power in Greece. Since Greece was a member-state of the Council of Europe and held an association agreement with the European Community, both organizations had to define their positions vis-à-vis the new military regime. Very soon, politicians in the parliamentary assemblies of both organizations started to cooperate with the aim of imposing sanctions on Greece. This article examines the inter-organizational dynamics between the European Community and the Council of Europe on Greece during the colonels’ regime. It argues that the European Community imported concrete policy positions and even normative ideas which had first emerged in the Council of Europe. In so doing, the Community prepared the ground for its future human-rights policies.     

Stuck on disarmament: the European Union and the 2015 NPT Review Conference

The quinquennial Nuclear Non‐Proliferation Treaty (NPT) Review Conference represents a highly important event from the perspective of the EU Common Foreign and Security Policy (CFSP). Though not a party to the treaty itself, the EU has made a consistent effort since the 1990s to coordinate the positions of its member states and achieve higher visibility in the NPT review process. The aim of this article is to examine the role of the EU in the 2015 NPT Review Conference deliberations. Drawing on on‐site observations, statements and in‐depth research interviews, it argues that the recent institutional changes notwithstanding, the influence of the EU as a distinct actor in the NPT context remains very limited, and the EU's common position is in bigger disarray than ever before. This year's Review Conference demonstrated the widening rift between the member states, in particular in the area of nuclear disarmament and the related issues. The inability to maintain a coherent common position limits the EU ‘actorness’ and impedes its striving for relevance in the NPT forums. The dynamics outlined in this article further highlight the limits of the EU CFSP in security matters in which the national positions of individual member states are as divergent as in the case of nuclear disarmament.     

Peace Conferences and the Century Of Total War: The 1899 Hague Conference and What Came After

The Hague Peace Conference of 1899 was unprecedented and momentous. Pressed by public concern about the arms race and its costs, the governments of all great and most lesser powers, suppressing their doubts about the possibility of achieving anything, convened in May 1899 to discuss the Tsar's draft proposals for general measures of disarmament and pacification. Although there was too much mutual suspicion for any progress with disarmament, the Conference opened up a new era in international relations: its multilateral treaty to encourage arbitration and its establishment of a permanent court to facilitate this may be seen as the germ of the International Court of Justice; and within a batch of measures designed to modernize the laws of war, the Hague Regulations Respecting the Laws and Customs of War on Land, recapitulated at the second such conference in 1907, became the basis of our century's laws of war. Apart from those achievements, given the grand aims of the Conference and the public interest it generated, it can be seen as a prototype of all League of Nations and United Nations gatherings ever since.     

Heading west? Georgia's Euro‐Atlantic path

Events in Ukraine in 2014 are likely to transform the presence and role of western institutions such as NATO in the post‐Soviet area. The crisis has starkly revealed the limits of their influence within Russia's ‘zone of privileged interest’, as well as the lack of internal unity within these organizations vis‐à‐vis relations with Moscow and future engagement with the area. This will have long‐term implications for the South Caucasus state of Georgia, whose desire for integration into the Euro‐Atlantic community remains a key priority for its foreign and security policy‐makers. This article examines the main motivators behind Georgia's Euro‐Atlantic path and its foreign policy stance, which has remained unchanged for over a decade despite intense pressure from Russia. It focuses on two aspects of Georgia's desire for integration with European and Euro‐Atlantic structures: its desire for security and the belief that only a western alignment can guarantee its future development, and the notion of Georgia's ‘European’ identity. The notion of ‘returning’ to Europe and the West has become a common theme in Georgian political and popular discourse, reflecting the belief of many in the country that they are ‘European’. This article explores this national strategic narrative and argues that the prevailing belief in a European identity facilitates, rather than supersedes, the central role of national interests in Georgian foreign policy.     

The rise of Nordic defence cooperation: a return to regionalism?

During the Cold War, Nordic cooperation blossomed and the region's identity was strong, yet defence was left outside the Nordic framework. After the end of the Cold War, Nordic cooperation waned and it was largely replaced by cooperation within the framework of the European Union. During the past couple of years, however, Nordic defence cooperation has been boosted by a number of initiatives and common projects. This article analyses this recent rise of Nordic defence cooperation. In terms of theory, it revolves around the question of how material and identity factors explain security cooperation in today's Europe. During the Cold War, identity was an easy explanation for societal cooperation between the Nordic countries, but geostrategic factors and national interests based on them determined (the lack of) defence cooperation. Even today, Nordic defence cooperation is justified more by cost‐efficiency and geographical proximity than by common identity. This article argues that Nordic identity nevertheless plays an important role in motivating defence cooperation. It is not driven by pure cost‐efficiency or strategic calculation. The role of identity needs to be understood, however, not as a kind of independent force but as part of the political process. Nordic identity explains the rise of the region's defence cooperation in two ways: it facilitates informal cooperation between defence officials at various levels; and it is easy to sell international defence cooperation politically to domestic audiences if it is done in the Nordic context. Yet Nordic cooperation is not seen as contradicting European or NATO cooperation.     

US—European Relations: Past and Future

In this revised text of a lecture delivered at the Royal Institute of International Affairs in June 2003, Stanley Hoffmann traces the history of America's close postwar alliance with western Europe. Out of the treaty in which America undertook to protect western Europe came the organization of NATO. Despite the difficulties and differences of opinion among its members in the early years—decolonization, German rearmament, Vietnam, US—French relations—the alliance survived and continued to survive after 1991 despite losing its main enemy, the Soviet Union. It then became a tool for managing relations between members and the newly liberated countries of central and eastern Europe and Russia. After the first Gulf War, however, NATO became a field for US—European relations, encompassing rivalry over approaches to eastern Europe, and cooperation in the Balkans. September 11 and the 'war on terrorism' marked the real turning point in the alliance and the subsequent war in Iraq in 2003 exposed deep divisions in the approach to international relations. Stanley Hoffmann concludes that it is still unclear how far Iraq has affected the substance of US foreign policy and its relations with Europe. It may be possible to predict, however, that the central importance of Europe for the US will remain under a cloud—'the days of relative harmony have not returned'.     

European integration through ‘soft conditionality’. The contribution of culture to EU enlargement in Southeast Europe

Abstract

This article discusses how the European Commission employs cultural policy to facilitate EU enlargement processes. Since 1989 the European Commission has funded cultural programs in accession states as a ‘soft’ complement to its ‘hard’ conditionality. It reflects a more general trend in which the EU employs alternative modes of governance to deal with resistance against EU interference in national affairs. By investing in culture, the EU hopes to stimulate transnational cooperation, economic growth, social cohesion and identification with the EU. However, the outcomes of these investments cannot be predicted. Characteristic for soft policy programs is that participating states are responsible for their eventual interpretation and implementation. By comparing the policies and practices of EU cultural investments in accession states Southeast Europe, and particularly in Serbia, this paper discusses the limits and possibilities of EU funded initiatives to enlargement revealing an increasing governing through soft conditionality.     

Multilateralism and the Shaping of an ‘Active Foreign Policy’: Sweden during the preparatory phase of the CSCE

This article deals with the early reactions of Swedish decision-makers and diplomats on the idea and preparations for the convocation of the Conference on Security and Cooperation in Europe (CSCE), mainly during the years 1969–1971. On the basis of recently declassified diplomatic sources from the archive of the Swedish Foreign Ministry, the study outlines the role of Swedish diplomacy in the preparatory phase of the security conference as part of the wider context of European neutrality during détente. It is the very first contribution to the historiography of the Helsinki process based on Swedish archival material, and suggests that the picture of Sweden's widely mentioned active foreign policy at that time should be further scrutinized. It also sheds new light on the paradox between Swedish involvement in European and global politics.     

NATO: the practice and politics of transformation

The Iraq crisis caused a deep rift in US–European relations and within Europe. NATO seemed sure at least to be damaged, if not fatally undermined. But to the dismay of those who have been waiting for many years for NATO finally to unravel, the Atlantic alliance spent 2003 proudly showing off its transformation project, and looking forward to its next enlargement in 2004. Yet these necessary improvements to NATO's political and military structures, and to its deployable capability, cannot alone secure the alliance's future. This article argues that what is needed, as ever, is a shared determination among governments that NATO can continue to serve their needs. There has been no better opportunity since the end of the Cold War to place the US-European security relationship on a firm footing through NATO. There has also been no moment when the penalties of failure have been higher. If NATO's transformation agenda, together with the NATO–EU 'Berlin Plus' arrangement, are not exploited to the full, then US-European security relations are unlikely to recover from Iraq.     

Central Asian and Russian perspectives on China's strategic emergence

This article employs fieldwork research and literature analysis to examine contemporary perceptions of China's emergence in popular and elite opinion in Russia and the Central Asian states, particularly Kazakhstan. It initially establishes a framework for understanding China's emergence, emphasizing a trilateral dynamic between the hegemonic position of the US in Asia, the evolution of the strategic choices of China's neighbours and the development of strategic regionalism as a mechanism for managing regional spaces. Choosing to take the Commonwealth of Independent States as a particular case of this framework, it argues that the interaction between Russia, China and the US remains highly fluid, particularly under the conditions ‘of re‐setting’ the US‐Russian relationship. This means that regional contexts are highly significant; and it establishes Central Asia as an important new strategic region for working out relations between Russia, China, and the US through their interactions with regional states. The second part of the article examines Russian and Central Asian responses to China's emergence. It looks at three categories of motivation in China's regionalism: its system for accumulative growth; its problems with weak constitutionality and transnational security in its western regions; and its concern with US/NATO encroachment on its western frontier and the US attempt to turn Central Asian elites away from their traditional alignments. The third part looks at China's promotion of the Shanghai Cooperation Organisation (SCO) as its mechanism for strategic regionalism in Central Asia. The article questions the SCO's significance in terms of its capacity for governance and functionalism, and points to the problem of institutional competition, notably with Moscow's preferred structure of the Collective Security Treaty Organization. The article concludes that China will be an unconventional superpower that presents different facets of itself in different regional contexts. There will not be a single model of China's emergence and it will continue to develop its international role through a mix of adaptation and experimentation. However, China's strategy will pose a problem for Russia and Central Asia since it seeks to create a strategic space that does not challenge the West, but exists substantially outside the West. Russia, in particular, has to decide whether it will be able to maintain its current stance of independence between Europe and Asia as China's rise shifts the frontiers between East and West.     

Accommodating and Confronting the Portuguese Dictatorship within NATO, 1970–4

During the early 1970s, NATO member-states such as Norway, Denmark, and the Netherlands repeatedly sought to use the Atlantic Alliance as a forum to confront Portuguese domestic and colonial policies. However, the larger members of the organisation - including the United States, the UK, France, and West Germany - successfully blocked their efforts. While the former expressed concern over the challenges posed by the Lisbon regime to NATO's credibility at home and abroad, the latter sought to preserve their interests and institutional cohesion in view of the challenges posed by détente. This fault line reflected core differences in the allies' perspectives about both Portugal and NATO itself. Drawing on extensive multi-archival research, this article examines the motivations and actions of various member-states on the North Atlantic Assembly and the NATO Council ministerial meetings. It reconsiders the international dimension of the Marcelo Caetano dictatorship and the connection between the cold war framework and the process of Portuguese resistance to decolonisation in Africa.