CEU Electronic Theses and Dissertations, 2016
| Author | Thaler, Philipp |
|---|---|
| Title | Unpacking Coherence in EU Foreign Policy: How Policy Setting and Policy Content Shape EU External Relations Towards Russia |
| Summary | The foreign policy of the European Union (EU) towards Russia has been characterized by extensive institutionalization, a catalogue of formally stated objectives and repeatedly articulated political will since the end of the Cold War. These elements matured over time, reflecting the aim to increase the Union’s external impact. However, the relationship with Russia is also characterized by an inherent lack of external coherence. The EU has ongoing difficulties to coordinate the interests of different political stakeholders and policies vis-à-vis Moscow. This thesis explores the reasons for the EU’s lack of external coherence. For that purpose, it develops a dual analytical approach that distinguishes between policy setting and policy content. Consistent with institutionalist research agendas, the policy setting highlights bureaucratic structures, rules and procedures to explain policy outcomes. In contrast, the policy content emphasizes substance and objectives of policies. The central conceptual move of the thesis is the application of Arnold Wolfers’ concept of milieu and possession goals to the specific context of EU foreign policy to investigate the relation between policy content and external coherence. Using the examples of external energy and human rights policies, domains in which the lack of coherence towards Moscow is arguably most visible, the thesis has three main findings. First, the ongoing quest for coherence is not a marginal normative claim but practically incorporated in the EU foreign policy context. It reflects a broad consensus that the degree of coherence is positively related to the effectiveness of the external approach. ‘Coherence matters’ since it responds directly to structural deficiencies prevalent in the area of EU foreign policy: external unity is inherently challenged by the functional fragmentation of the institutional structure. Coherence has become a guiding principle that promotes coordination to overcome these problems and increase the external impact of the EU. Second, external coherence is undermined by constant coordination failures between the varied interests of political stakeholders. Different reforms and modifications to formal procedures and informal processes sought to make the policy setting more conducive to coordination. While there is much evidence for positive effects on policy outcomes, there are also examples that illustrate the opposite. External coherence is undermined by partly insufficient coordination mechanisms and inexpedient institutional reform. Third, an analysis of the policy content depicts the EU as a milieu shaper towards Russia. In rebuilding and consolidating relations it seeks to shape the external environment based on norms and values. Particularly visible in the domains of energy and human rights, external coherence is lacking where norms and values are challenged or not sufficiently operationalized. In addition, the EU as a milieu shaper faces constant tensions between milieu and possession goals. A lack of coherence is prevalent in those policy episodes and areas where the tensions can neither be avoided nor resolved. Case studies reveal that the sequencing of objectives is crucial: external coherence is more likely to be achieved where milieu goals further possession goals rather than the other way around. These insights inform the formulation of recommendations in the conclusions that can help design more coherent external policies. Moreover, understanding the EU as a milieu shaper contributes to the debate on the Union’s identity as an international actor. |
| Supervisor | Puetter, Uwe |
| Department | School of Public Policy PhD |
| Full text | https://www.etd.ceu.edu/2016/thaler_philipp.pdf |
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