JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU's comprehensive approach to external conflict and crises
Date: 2013-12-11
Institutions: European Commission, High Representative of the Union
Subjects: European External Action Service, common foreign and security policy, conflict prevention, development aid, humanitarian aid, the EU's international role













EUR-Lex - 52013JC0030 - EN











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52013JC0030

JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU's comprehensive approach to external conflict and crises /* JOIN/2013/030 final */









JOINT COMMUNICATION TO THE EUROPEAN
PARLIAMENT AND THE COUNCIL
The EU's comprehensive approach
to external conflicts and crises
I.
The case for a comprehensive approach 
The
Treaty of Lisbon sets out the principles, aims and objectives of the external
action of the European Union. In the pursuit of these objectives, the Treaty
calls for consistency between the different areas
of EU external action and between these and its other policies. Following
the entry into force of the Treaty and the new institutional context it
created, including the creation of the post of High Representative of the Union
for Foreign Affairs and Security who is also Vice-President of the Commission as
well as the establishment of the European External Action Service (EEAS), the
EU has both the increased potential and the ambition – by drawing on the full
range of its instruments and resources – to make its external action more consistent,
more effective and more strategic. 
The concept of such a comprehensive
approach is not new as such. It has already been successfully applied as the organizing
principle for EU action in many cases in recent years, for example, in the Horn
of Africa, the Sahel and the Great Lakes. However, the ideas and principles governing
the comprehensive approach have yet to become, systematically, the guiding
principles for EU external action across all areas, in particular in relation
to conflict prevention and crisis resolution.   
This Joint
Communication sets out a number of concrete steps that the EU, collectively, is
taking towards an increasingly comprehensive approach in its external relations
policies and action. More specifically the High Representative and the
Commission are  - with this Joint Communication – setting out their common
understanding of the EU's comprehensive approach to external conflict and
crises and fully committing to its joint application in the EU's external
policy and action. This understanding covers all stages of the cycle of
conflict or other external crises; through early warning and preparedness,
conflict prevention, crisis response and management to early recovery,
stabilisation and peace-building in order to help countries getting back on
track towards sustainable long-term development.  
The
EU has a vital interest to prevent, prepare for, respond to, address and help recovery
from conflicts, crises and other security threats outside its borders – this is
a permanent task and responsibility, already recognised in both the European
Security Strategy and the EU Internal Security Strategy. This is the case not
only because the EU is widely considered as an example of peace and stability
in its neighbourhood and in other parts of the world, but also because it is in
the EU's global interest. The Union has a wide array of policies, tools and
instruments at its disposal to respond to these challenges – spanning the
diplomatic, security, defence, financial, trade, development cooperation and
humanitarian aid fields. It is the world's largest trading block and,
collectively, the world's biggest donor of official development assistance
(ODA) and humanitarian aid. 
Comprehensiveness
refers not only to the joined-up deployment of EU instruments and resources,
but also to the shared responsibility of EU-level actors and Member States. The
EU has a unique network of 139 in-country EU Delegations, diplomatic expertise in
the EEAS including through EU Special Representatives, and operational engagement
through Common Security and Defence Policy (CSDP) missions and operations. By
bringing all these together, with the European Commission and the 28 Member
States, to work in a joined-up and strategic manner, the EU can better define
and defend its fundamental interests and values, promote its key political
objectives and prevent crises or help to restore stability. In this way, it
will help to improve the lives of those threatened by conflict and prevent or mitigate
the negative effects – for the EU, its citizens and its internal security – of
insecurity and conflict elsewhere. The EU is stronger, more coherent, more
visible and more effective in its external relations when all EU institutions
and the Member States work together on the basis of a common strategic analysis
and vision. This is what the comprehensive approach is about.
As
global challenges continue to rise in number and increase in complexity
(effects of climate change and degradation of natural resources, population
pressures and migratory flows, illicit trafficking, energy security, natural
disasters, cyber security, maritime security, regional conflicts, radicalisation
and terrorism, et cetera) and as economic and financial resources remain under
pressure, the case for a comprehensive approach, making optimal use of all relevant
instruments - be they external or internal policy instruments - is now stronger
than ever. 
Sustainable development
and poverty eradication require peace and security, and the reverse is equally
true: fragile or conflict-affected countries still remain the furthest away
from meeting the Millennium Development Goals. The connection between security
and development is therefore a key underlying principle in the application of an
EU comprehensive approach. Other important principles underpin this approach. Firstly,
our responses must be context-specific and driven by the reality and logic of
real life situations encountered: fhere are no blue-prints or off-the-shelf
solutions. Secondly, the EU's comprehensive approach is a common and shared
responsibility of all EU actors in Brussels, in Member States and on the ground
in third countries. Collective political will, transparency, trust and the pro-active
engagement of Member States are pre-requisites for success. Finally, the
approach is based on the full respect of the different competences and
respective added value of the EU's institutions and services, as well as
of the Member States, as set out in the Treaties:   
-        
humanitarian aid shall be provided in
accordance with its specific modus operandi, respectful of the
principles of humanity, neutrality, impartiality and independence,  solely on
the basis of the needs of affected populations, in line with the European
Consensus on Humanitarian Aid;  
-        
for development assistance, the EU and
its Member States act in line with the development policy as defined in the
2005 European Consensus on Development and the 2012 Agenda for Change as well
as the guidelines of the Organisation for Economic Development's (OECD)
Development Assistance Committee (DAC).  
-        
EU Member States exercise political
control over, and provide strategic direction for, CSDP missions and operations
through the Political and Security Committee (PSC). 
II.
The way forward for a comprehensive approach to conflict or crisis situations
The
following measures will further enhance the coherence and effectiveness of EU
external policy and action in conflict or crisis situations. 
1.  Develop
a shared analysis
A
coherent political strategy for conflict prevention, preparedness and response starts
with all relevant players sharing a common understanding of the situation or
the challenge. A shared analysis should set out the EU's understanding about
the causes of a potential conflict or crisis, identify the key people and
groups involved, review the dynamics of the situation and assess the potential
risks of action, or non-action. It must also identify the EU interests and
objectives and our potential role to contribute to peace, security, development,
human rights and the rule of law, taking into account existing EU resources and
action in the country or region in question.  To further improve a shared
analysis, the following should be promoted: 
Actions:

-         
Improve combined situational awareness
and analysis capacity in particular by better linking up the dedicated
facilities in the various EU institutions and services, including the Emergency
Response Coordination Centre and the EU Situation Room (EU SitRoom). Facilitate
access by EU institutions to information and intelligence including from Member
States in order to prevent crises and prepare, mitigate, and accelerate the response
to crisis situations.   
-         
Strengthen early, pro-active,
transparent and regular information-sharing, co-ordination and team-work among
all those responsible in the EU's Brussels headquarters and in the field
(including EU Delegations, CSDP missions and operations, Member States and EU
Special Representatives, EU agencies as appropriate). 
-         
Further develop and systematically implement
a common methodology to conflict and crisis analysis, including development,
humanitarian, political, security and defence perspectives from both the field
and HQ, by all relevant available knowledge and analysis, including from Member
States.
-         
Building on these analyses,
systematically prepare proposals and options for discussion with Member States
in the relevant Council bodies, including the Political and Security Committee. 
When a CSDP action is envisaged, this would generally follow the Political
Framework for Crisis Approach (PFCA) approach, articulating what the problem
is, explain why the EU should act (based on interests, values, objectives and
mandates), and identify what instruments could be available, and best suited,
to act.
2.
Define a common strategic vision
Building on this shared
analysis, the EU should, whenever possible work across institutions and with
Member States to develop a single, common strategic vision for a conflict or
crisis situation and for future EU engagement across policy areas. This should
then set the overall direction for EU engagement. 
Actions:
-        
The EU's strategic vision for a country
or a region should whenever possible be set out in an overarching EU Strategy
document. Recent examples include the Horn of Africa Strategic Framework and
the EU Strategy for security and development in the Sahel, and the proposed
elements for an EU Strategy towards the Great Lakes region. 
-        
Joint framework documents[1] should set out the EU's and Member States' objectives and priorities for particular countries, as appropriate.
3. Focus on prevention 
Whenever possible the
EU must seek to prevent conflict before a crisis emerges or violence erupts –
this is a constant and high priority for all EU diplomatic engagement. In the
long run, prevention is far less costly than addressing conflicts which have
erupted. Prevention contributes to peace, security and sustainable development.
It saves lives and reduces suffering, avoids the destruction of homes,
businesses, infrastructure and the economy, and makes it easier to resolve
underlying tensions, disputes and conditions conducive to violent radicalisation
and terrorism. It also helps protect EU interests and prevent adverse
consequences on EU security and prosperity.
Actions: 

-        
Early warning/early action: Use new and
existing EU early warning systems[2],
including those of EU Member States, to identify emerging conflict and crisis
risks, and identify possible mitigating actions. 
-        
Work across EU institutions and with
Member States to translate conflict and crisis risk analyses into specific
conflict prevention measures, drawing on lessons learned from previous
conflicts and crises.
4.      Mobilise
the different strengths and capacities of the EU 
Effective
and proactive EU policy responses to conflict and crises should draw on the
different strengths, capacities, competencies and relationships of EU institutions
and Member States, in support of a shared vision and common objectives. 
Actions:

-       Use
the Crisis Platform mechanism, chaired by the EEAS with the participation of
Commission services, in a more systematic way to facilitate coordination, share
information and contribute to the identification and intelligent sequencing of
available EU instruments as required. These mechanisms proved their value
during the Arab Spring and in the EU's response to the Horn of Africa.
-       Ensure
that all relevant EU actors are informed and engaged in the analysis and
assessment of conflict and crisis situations and at all stages of the conflict
cycle – comprehensive engagement and action build on joined-up preparatory
work. The EEAS informs and brings together other services on a regular basis
for such analytical and preparatory work. 
-       Further
strengthen operational cooperation among the various emergency response
functions of the EU, using their complementary expertise. To this end, a
Memorandum of Understanding between the EEAS and the Commission services is
being prepared. 
-       Make
best use of EU Delegations to ensure local coherence between EU and Member States actions.
-       Strengthen
the capacity of EU Delegations to contribute to conflict risk analysis. Identify
appropriate tools and respond to conflict and crisis by rapid temporary
reinforcement through the deployment of additional staff or other experts, where
possible, drawing on existing EU resources capacity at the Brussels headquarter
or in the region and on Member States' resources.
-       Develop
procedures and capacities for rapid deployment of joint (EEAS, Commission
services, Member States) field missions where appropriate to conflict or crisis
situations.[3]
5.
Commit to the long term 
“It
took the 20 fastest reforming countries on average 17 years to reduce military
in politics and 41 years to reform rule of law to a minimum level necessary for
development.”
World
Development Report, World Bank, 2011 
Long
term engagement in peace and state building and long-term sustainable development
are essential to address the underlying causes of conflict and to build
peaceful, resilient societies.  The overall objectives of sustainable peace and
development must be at the core of the EU's response from the outset – the EU must
also have a long-term vision for its short-term engagements and actions.  
For
instance, CSDP crisis management instruments and crisis response measures under
the Instrument for Stability (IfS) pursue mostly short-term objectives, whereas
development instruments by nature are oriented towards the long term. Although objectives
and decision-making procedures are different, natural synergies and
complementarities should be ensured by an early, inclusive and intense dialogue
between the respective stakeholders, in order to have a greater impact and achieve
better results. The EU can use, in a coherent manner, different tools and
instruments within their own mandates and decision-making processes to deliver on
the shared objectives. 
Actions:

-       Establish
co-ordination systems between long-term and short-term objectives through
dialogue among EU stakeholders including on the ground. 
-       Strengthen
mechanisms for pooling and sharing European capacities and expertise (e.g. pool
of experts for CSDP missions).
-       Coordinate
and where possible combine the use of a full range of EU tools and instruments
(e.g. political dialogue, conflict prevention, reconciliation, programming of
development assistance and joint programming, CSDP missions and operations, conflict
prevention  and stabilisation under the Instrument for Stability, support to disarmament,
demobilization reintegration and support to justice and security sector reform processes,
etc.) to craft a flexible and effective response during and after the
stabilisation phase and in case of risks of conflict. The programming of aid in
fragile and conflict-affected countries should integrate conflict analysis from
the very beginning as well as the necessary flexibilities for re-programming to
respond to new developments on the ground where appropriate.   
-       Take
stock of lessons learned, including within the EU institutions, with Member States and external actors, and feed them back into the comprehensive approach cycle
starting from early warning and including prevention efforts, training and
exercises. 
6. Linking policies and
internal and external action
EU internal policies
and actions can have significant external effects on conflict and crisis
situations. Likewise, external action and policy can also impact on EU internal
dynamics. For example, EU maritime transport policy in the Red Sea and the
Indian Ocean is inextricably linked to the situation in Somalia and the Horn of Africa region. Similar impacts may arise in other situations from
for example fisheries or energy policy. Conversely, the emergence beyond
Europe's borders of organised crime, terrorism, or mass migration associated
with violent conflict can have a direct impact on the security, stability and
interests of the EU, its Member States and EU citizens. 
Terrorist organisations
will strive to exploit post-conflict or fragile states. In particular, poorly
governed areas can prove to be a breeding ground for terrorist recruitment. For
example, the activities of Al-Shabaab – which is formally aligned with Al Qaeda
– have destabilised Somalia, and severely hindered regional development. Terrorist
organisations can act to transmit the terrorist threat directly back into the
EU. 
Close
cooperation, in particular between the High Representative and the Commission, is
also vital on the various global issues where the external aspects of internal
EU policies have a growing foreign and security policy dimension. This includes
areas such as energy security, environmental protection and climate change,
migration issues, counter-terrorism and countering violent extremism, organised
crime and global economic governance. 
"Climate change is a
decisive global challenge which, if not urgently managed, will put at risk not
only the environment but also world economic prosperity, development and, more
broadly, stability and security. The transition towards safe and sustainable
low-carbon economy and society as well as climate resilient and resource
efficient growth patterns worldwide are of paramount importance. Addressing the
risk-multiplying threats of a changing climate, including potential conflict
and instability, related to reliable access to food, water and energy, requires
effective foreign policy responses at the global and EU level, as recognised in
the European Security Strategy".
Council Conclusions on climate
change diplomacy, June 2013
Finally,
and as the recent breakthrough in the EU-facilitated Belgrade-Pristina dialogue
has demonstrated, the pull factor of the EU through the perspective of joining
the Union - in combination with intense diplomatic engagement - continues to
play a vital role in conflict prevention and longer-term stabilization. 
Actions:

-         
The High Representative/Vice President,
working closely with the President of the European Commission, to ensure
strategic and operational coherence in external relations policy and strategy,
including as regards the external impact of internal policies.
-         
Make better use of the diplomatic and
external relations means at the disposal of the EU project and defend its
interests linked to internal policies and global issues. 
-         
Seek to identify and raise awareness of
policies and instruments that have both an internal and external dimension and
highlight potential in both directions. 
-         
Internal policies should be part of the
analytical crisis framework, the strategic thinking and policy documents on
external action whenever possible and relevant.
7. 
Make better use of EU Delegations
The
EU Delegation, and the Head of Delegation in particular, is the focal point of
the EU presence in third countries and should – at that level - play a central
role in delivering and co-ordinating EU dialogue, action and support.
Actions:

-       Take
full advantage of the role of the Head of Delegation to bring together the EU
and Member States present on the ground across the full spectrum of relevant
actions (political dialogue, development co-operation and joint programming, input
to security-related strategies, local cooperation with CSDP missions and
operations, consular protection, as appropriate, etc.).
-       The
Head of Delegation to co-ordinate joint reporting, where appropriate, enhancing
co-operation with EU Member States on the ground, and sharing information and
analysis, in particular at all stages of conflicts or crises.
-       Ensure
an appropriate breadth of expertise in Delegations, including on security
issues. 
-       If
appropriate, enable the co-location of EU actors in EU Delegations to build
operational synergies. 
Joint
Programming has now started or is scheduled to start in more than 40 countries
in the coming years. With this initiative, the EU and its Member States aim to increase their impact in partner countries and make their development cooperation
more effective. At the same time, the will present a united package of support that
significantly increases the EU's leverage and political weight as a donor.
Joint Programming exercises are in-country, led by the EU Delegations and
Members States Embassies. 
8. Work in partnership 
In
facing complex global challenges, the EU needs to engage and work together with
other international and regional actors. The role of the EU is linked - to a
greater or lesser extent – to the action (or non-action), resources and
expertise of others (e.g. the UN in most crisis situations, NATO in Kosovo and Afghanistan, the International Monetary Fund and the World Bank on macro-financial issues,
et cetera).
 “[M]utually reinforcing,
beneficial and sustainable partnerships with … the UN, OSCE, NATO, World Bank,
African Union and other international actors … need to be further strengthened
to enable the European Union to operate successfully in the field of long term
structural conflict prevention”
Council Conclusions on
Conflict Prevention, June 2011
Actions: 
-      
When developing EU position and responses,
engage with and take full account of the role of other international actors: the
United Nations, international and regional organisations, strategic partners, International
Financial Institutions. 
-      
Engage more closely with major
international NGOs, civil society, think-tanks, academia and public and private
actors. 
III.
Conclusion
The
EU has in recent years taken important steps towards a more coherent external
relations policy and action, not least in its response to conflict and crisis
situations. Significant progress has been made in the development of common EU
policies and strategies and whole-of-Union responses. But the work is not over.
The EU now needs to make further improvements and more consistently apply the comprehensive
approach as a guiding principle to EU external policy and action.
The
comprehensive approach, as outlined above, is a joint undertaking and its
success a shared responsibility for the EU institutions as well as for Member
States, whose policies, actions and support significantly contribute to more
coherent and more effective EU responses.  
In the coming months
and years, the High Representative and the Commission will, in cooperation with
Member States, implement these proposals and this approach and, through them, make
determined progress towards better, stronger and faster EU external action.  The
High Representative and the Commission call on EU Member States to provide
their full support for this approach and to fully engage in order to order to
ensure that this vision and these objectives are fully implemented.  
[1] Joint
Communication by the High Representative and the Commission. Global Europe: A New Approach to financing EU External Action (COM (2011) 865 final). 
[2] Also including the EEAS conflict early
warning system (currently being piloted).
[3] Such actions shall be
financed within the limits of existing administrative and operational resources
of the corresponding services/DGs and taking into consideration the scope and
objectives of the External Action Instruments involved.