Nicole Wichmann

The External Governance of EU Internal Security

Abstract This article analyses the modes of governance through which the EU seeks to ensure the European Neighbourhood Policy (ENP) countries’ participation in the realization of its internal security project. Although the EU, given the strong interdependence in these ‘soft security’ issues, has strong incentives to govern by conditionality in order to ensure the ENP countries’ compliance, efforts to transfer policies by such hierarchical means encounter serious limitations as a result of lack of supranational competence and insufficient incentives that the EU can offer third countries to compensate for adaptation costs. By comparing Justice and Home Affairs (JHA) issues with different degrees of communitarization and representing different constellations of interests in relations with ENP countries, we find that the EU increasingly focuses on the extension of internal transgovernmental networks as an alternative form of external governance. Although theoretically allowing for horizontal patterns of co‐owned cooperation, the integrative potential of these networks is hampered by the lack of mutual trust and institutional incompatibilities in ENP countries. As a result, extended network governance becomes an attempt at unilateral policy‐transfer by ‘softer’ means.

Modes of external governance: a cross-national and cross-sectoral comparison

Contrary to the vast majority of studies that try to characterize EU external governance by looking at the macro-structures of association relations, our comparative analysis shows that overarching foreign policy initiatives such as the EEA, Swiss–EU bilateralism or the ENP have little impact on the modes in which the EU seeks to expand its policy boundaries in individual sectors. In contrast, modes of external governance follow sectoral dynamics which are astonishingly stable across countries. These findings highlight the importance of institutional path-dependencies in projecting governance modes from the internal to the external constellation, and question the capacity to steer these functionalist patterns of external governance through rationally planned foreign policy initiatives.

The External Dimension of Justice and Home Affairs: A Different Security Agenda for the EU?

This article was downloaded by: [Ingenta Content Distribution - Routledge]On: 18 February 2009Access details: Access Details: [subscription number 791963552]Publisher RoutledgeInforma Ltd Registered in England and Wales Registered Number: 1072954 Registered office: Mortimer House,37-41 Mortimer Street, London W1T 3JH, UK

Die Nachbarschaftspolitiken der Europäischen Union: zwischen Hegemonie und erweiterter Governance

Neuen Governance-Formen wird in der Integrationsforschung das Potenzial zugeschrieben, Integration trotz Harmonisierungsmudigkeit und nationaler Diversitat zu ermoglichen. Sie eroffnen im System der Europaischen Union neue Formen der horizontalen Zusammenarbeit neben oder jenseits des traditionellen Modells supranationaler Integration durch die eher hierarchische Gemeinschaftsmethode. Dabei definiert sich das Wesen der Integration durch Governance weniger in der Erschaffung neuen uberstaatlichen Rechts als in einem kontinuierlichen Prozess kooperativer Praxis zwischen verschiedenen Regierungsebenen. Wahrend die Entwicklung neuer Governance-Formen im Innern in Steigendem Mase in den Fokus der Integrationsforschung gelangte, blieb weitgehend unbeachtet, dass sich seit Anfang der 1990er Jahre auch in den Ausenbeziehungen der EU eine Intensivierung von Assoziationsformen beobachten lasst, die zumindest teilweise auf neuen Governance-Formen beruht.

The Intersection between Justice and Home Affairs and the European Neighbourhood Policy: Taking Stock of the Logic, Objectives and Practices

This paper claims that the European Neighbourhood Policy (ENP) of the EU, and in particular the elements related to justice and home affairs (JHA), is a complex, multilayered initiative that incorporates different logics and instruments. To unravel the various layers of the policy, the paper proceeds in three steps: firstly, it lays out some facts pertaining to the origins of the ENP, as its ‘origins’ arguably account for a number of the core tensions. It then presents the underlying logic and objectives attributed to JHA cooperation, which can be derived from the viewpoints voiced during policy formulation. The paper goes on to argue that despite the existence of different logics, there is a unifying objective, which is to ‘extra-territorialise’ the management of ‘threats’ to the neighbouring countries. The core of the paper presents the various policy measures that have been put in place to achieve external ‘threat management’. In this context it is argued that the ’conditionality-inspired policy instruments’, namely monitoring and benchmarking of progress, transfer of legal and institutional models to non-member states and inter-governmental negotiations, contain socialisation elements that rely on the common values approach. This mix of conditionality and socialisation instruments is illustrated in two case studies, one on the fight against terrorism and one on irregular migration. Finally, the paper recommends that the EU draft an Action-Oriented Paper (AOP) on JHA cooperation with the ENP countries that indicates how the EU intends to balance the conflicting objectives and instruments that are currently present in the JHA provisions of the ENP.

The EU as a Rule of Law Promoter in the ENP

This contribution is made at a time when the merging of internal and external security is taking various forms in Europe, in terms of the threat perceptions, the investigation methods and the actors involved (Bigo, 2001; Lutterbeck, 2005). The merging between the two ‘security’ spheres is most prominent in the recent comprehensive foreign policy initiative, European Neighbourhood Policy (ENP) (Balzacq, chapter 1, this volume; Wichmann, 2007a). Thus, this chapter deals with the justice and home affairs (JHA) aspects of the European Neighbourhood Policy (ENP) that pursue the objective of promoting the rule of law in ENP countries.