国际事务研究院-尚未适应世界：欧盟军事、网络和情报资产的零碎积累（英）-2021.11-42正式版.docx

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1、November 2021Contributing authors:Kristine Berzina, Ivo Juurvee5Tony Lawrence and Maurice TurnerJOINTAjoined-upUnion,astrongerEuropeJOINTResearchPapersNo.4NotYetFitfortheWorld:PiecemealBuildupofEUMilitary,CyberandIntelligenceAssetsKristiRaikThisprojecthasreceivedfundingfromtheEuropeanUnionsHorizon20

2、20researchandinnovationprogrammeundergrantagreementN.959143.Thispublicationreflectsonlytheviewoftheauthor(s)andtheEuropeanCommissionisnotresponsibleforanyusethatmaybemadeoftheinformationitcontains.NotYetFitfortheWorld:PiecemealBuildupofEUMilitary,CyberandIntelligenceAssetsLeadauthor:KristiRaikContri

3、butingauthors:KristineBerzina,IvoJuurvee,TonyLawrenceandMauriceTurner*AbstractInthepastdecades,theEUhasdevelopedanincreasinglybroad,multi-sectoralsetofforeignandsecuritypolicyinstruments.AllofthesecanberelevantinsustainingtheEU,scrisisandconflictmanagementefforts.Whiletryingtocreateamoreeffectiveand

4、integratedtoolbox,theUnionhasfacedanumberofchallenges.First,astheEU,sscopeofactivityandlevelofambitionhaveincreased,theneedtostrengthentheuharderend”ofinstruments-includingmilitary,cyberandintelligencetools-hasbeenwidelyacknowledged,buttheseremainweak.Second,withEUpoliciesextendingtoareaswheretheUni

5、on,sresourcesandcompetenciesareweak,theneedtomobilisememberstates1resourceshasbecomemoreimportant,butensuringmeaningfulcontributionsfrommemberstateshasprovendifficult.Third,ithasbecomeanevermorecomplextasktoconnectthemultiplesectorstoeachothertobuildacomprehensivepolicy.KristiRaikisDirectoroftheEsto

6、nianForeignPolicyInstituteattheInternationalCentreforDefenceandSecurity(ICDS).KristineBerzinaisSeniorFellowandHeadoftheGeopoliticsTeamattheAllianceforSecuringDemocracyintheGermanMarshallFundoftheUnitedStates(GMF).IvoJuurveeisHeadofSecurity&ResilienceProgrammeattheICDS.TonyLawrenceisHeadofDefencePoli

7、cyandStrategyProgrammeattheICDS.MauriceTurnerisCybersecurityFellowattheAllianceforSecuringDemocracyintheGMF.TheauthorsaregratefultoStevenBlockmans,ZachPaikinandDylanMacchiariniCrossonfromCEPSandPolBargudsfromCIDOBfortheirthoroughandinsightfulcommentsonearlierversionsofthepaper.IntroductionThefirstfo

8、reignpolicytoolsoftheEuropeanUniondatebacktothecreationoftheEuropeanEconomicCommunityin1957,whichestablishedcommonexternaleconomicpolicieswithastrongsupranationalcompetence.Thiswastraditionallyseenasthetechnical,hIowpoliticsnareaofexternalrelations,asopposedtothe“highpolitics*ofsensitiveforeignandse

9、curitypolicymatterswherememberstateswerekeentomaintainanintergovernmentalapproach.1Foreignpolicycoordinationamongmemberstatesincreasedfromthe1970s,butaleaptoamoreinstitutionalised-yetstillintergovernmental-CommonForeignandSecurityPolicy(CFSP)wasonlymadewiththeMaastrichtTreatysignedin1992.Thenewmomen

10、tumwasinitiatedbydramaticchangesintheinternationalenvironmentthatcreatedbothnewspaceandaneedforastrongerEuropeanapproachtoregionalsecuritymatters,whichwasmostpainfullyunderscoredbythewarsinformerYugoslavia.Sincethe1990s,theUnionhasbeengraduallystrengtheningthe“higher Stanley Hoffmann, ,The European

11、Process at Atlantic Crosspurposes,l in Journal of Common Market Studies, Vol. 3, No. 1 (1964), p. 85-101. Josep Borrell Fontelles, Opening statement, Hearing at the Committee on Foreign Affairs of the European Parliament, Brussels, 7 October 2019, https:/multimedia.europarl.europa.eu/en/ hearing-of-

12、josep-borrell- fontelles-high-representative-vice-president-designate-of-the-european-commission-opening-statement_l 178140-V_v.and*,hardernendofEUforeignandsecuritypolicyinstruments,therebybecominganincreasinglymultisectoralforeignpolicyactor.Duringthepastdecade,thechanginginternationalenvironmenth

13、asyetagaincreatednewdemands,astheworldhasbecomemoremultipolar,uncertaintyabouttheUnitedStates*commitmenttoEuropeansecurityhasgrown,instabilityintheEU,simmediateneighbourhoodhasincreased,andsecurityrisksandthreatshavebecomemorecomplexandmanifold.InthewordsofHighRepresentativeoftheEUforForeignAffairsa

14、ndSecurityPolicyJosepBorrell,thishascreatedtheneedfortheEUto,learntousethelanguageofPoWer2-whichimpliesthenecessitytodevelopitsforeignpolicytoolsaccordingly.TheEUhasmadeeffortstostrengthenitsmilitarycapabilitiesintheframeworkoftheCommonSecurityandDefencePolicy(CSDP)launchedin1999,whileadditionaltool

15、shavebeencreatedtoaddressnewthreatsinareassuchascybersecurityanddisinformation.TheEUhasthusconstructedanincreasinglycomplextoolboxcomposedofnumerouscompartmentsgovernedbydifferentinstitutionalarrangementsanddecision-makingprocedures,wherebytheEUforeignandsecuritypolicy(EUFSP)hasexpandedbeyondtherela

16、tivelylimiteddiplomatic-militaryremitoftheCFSP/CSDP.Howtomobilisethedifferentinstrumentsandapplytheminaconcertedmannerhasbecomeanincreasinglypressingandcomplicatedquestiontoanswer.ThisreportaimstounpackthiscomplexitybyexploringhowandwhyEUFSPhasbecomemoremulti-sectoraloverthepastdecades.ItfocusesonpolicytoolsthatsustainEUcrisisandconflictmanagementefforts.Followingtheintroduction,thesecondpartofthereportanalysestheinternalandexte