Implementing public policies in federations involves clashes of concept and practice. In its design, federalism is not particularly conducive to the formulation and implementation of public policy because the acclaimed strengths of a federal form of government, including diversity, fragmentation of power and sovereignty, and responsiveness to regional and cultural interests, all serve to make the introduction of national policies complex and challenging. This is especially the case regarding the implementation phase of policies which tends to be a most difficult task given the layers and negotiating steps through which policies must pass before being delivered to clients. Success in implementing public policies in federations requires a mixture of strategies that can range from coercion to collaboration and cooperation. Achieving performance with accountability throughout this process has proven difficult in most federations. Moreover most of the literature has avoided the client perspective, in particular whether citizens really care about the vagaries of federal arrangements as they simply want to see the programs that affect their daily lives delivered efficiently, effectively, and accountably.
Alberto Quadrio Curzio and Alberto Silvani
The European Union (EU) research policy was founded on the idea of cooperation among countries after the end of World War II, and consequently it has been influenced in increments. But it also has advantages because of its specificity. So the EU becomes not just the simple sum of all the member states’ contributions but something different, based on a variety of scales and actors, including a vision (and sometimes a mission). This is the reason why the research policy should be examined both in its evolution as such and in light of the relevant steps considered crucial for the development. At least three possible approaches are feasible: (a) a sort of vertical reading in historical development; (b) the attention paid to the terminologies used or to the glossary; (c) the focus on keywords and their role in accompanying the choices, in particular the origin and the development of the European Research Area (ERA). The transition from the current Framework Programme Horizon 2020 (H2020) to the new one planned starting from 2021 (Horizon Europe) is a way to integrate the three approaches by analysing the contents in terms of novelties and continuity. The focus on the evolution of the relevance of ERA can be also considered as a way to illuminate the challenges facing European research policy. In fact, the demand for greater collaboration in European research is determined by the increased international competition and the growing role, as a driver, of innovation in society and the economy. This must be reflected in the choices the new Framework Programme must make.
Arms control is a strategy by governments to overcome the security dilemma with institutionalized cooperation. It comes in three versions, arms control proper, with stability as the main objective; non-proliferation as a sub-category of arms control, so understood with the main objective being to preserve the distributive status quo concerning certain weapon types; and disarmament, with the objective to eliminate a specific weapon type. Confidence building is a crosscutting functional concept lumping together many different measures that can serve all three versions. Arms control does not reject self-help as a basis of national security, but entrusts a significant piece of it to cooperation with potential enemies. Hence, arms control—with the exception of unilateral, hegemonic arms control imposed on others, and of non-proliferation for preserving an existing oligopoly—is a difficult subject for realism and neorealism, but also for post-modernism. It presents a solvable puzzle for rationalists and no problem at all for constructivists who, to the contrary, can dig into norms, discourses, and identities. Concerning stability and change, arms control can be looked at from two opposite perspectives. Since it aims at stability, critical security approaches have labeled it as a conservative, status quo orientated strategy. But there is also a transformational perspective: arms control as a vehicle to induce and reinforce a fundamental redefinition of the relationship between states. Naturally, the concept of disarmament shows the greatest affinity to the transformational perspective. A related issue is whether arms control is a result of political circumstances, a dependent variable without a political impact of its own, or whether it has causal effect on interstate relations. Constructivism proposes a dialectical relationship in which arms control and broader policy influence each other. From this reflection, the question of the conditions of success and failure flows naturally. Conducive interstate relations (or extrinsic shocks), technology, domestic structures, learning, leadership, perception, and ideology have been candidates for the independent master variable. Three models tackle the relationship of arms control and historical time: the enlightenment intuition of steady progress; a series of waves, each of which leaves the world in a more cooperative state than the previous one; and the circle—arms control ebbs and flows alternatively, but achievements are fully lost in each ebb period. We can distinguish four arms control discourses: arms control as the maiden of deterrence; arms control subordinated to defense needs; arms control under the imperative of disarmament; and arms control as the instrument of human security, the survival and well-being of human individuals, notably civilians. As with all politics, arms control involves justice issues: the distribution of values (security/power), access to participation in decision making, and the granting of recognition as legitimate actor. Arms control negotiations are ripe with justice claims, and failure through incompatible justice demands happens frequently. Also, emotions play a key role: frustration and ensuing resentment, anger, and existential fear can prevent success. Finally, compassion, empathy, and trust are ingredients in successful arms control processes.
European Political Cooperation (EPC) is the forerunner of today’s Common Foreign and Security Policy (CFSP) of the EU. It covers the period 1970 to 1993, during which the member states of the (then called) European Communities (EC) developed a genuine system of cooperation in the field of foreign policy. Its main purpose was to secure and even increase the influence of European countries on the international scene in times of growing global political and economic interdependencies. At the same time, EPC was generally perceived as an area and approach to foster the political dimension of the European integration process. EPC was widely intergovernmental in nature. Its guiding principles and institutions were based on political commitments (the Luxembourg (1970), Copenhagen (1973), and London (1981) Reports). EPC received a first legal framework only in1986 with the Single European Act (SEA). EPC was the domain of the foreign ministers assisted by their national diplomatic staffs. Mainly for reasons of consistency, the European Commission was gradually admitted to the club and the European Parliament struggled hard to get access and be heard to a certain degree at least. EPC was consensus-based and widely declaratory in nature. Issues of security and even more of defense were highly controversial among the participants and therefore widely excluded from the agenda. In order to strengthen the European voice, that is, to become more active and more operational, EPC diplomacy had to take recourse to EC instruments like trade, sanctions, and development policy, and fine-tune its presence in the world. To sell its own model of integration to other parts of the world became a popular approach, most obvious in the numerous group-to-group dialogues established during the 1980s, while European responses to conflict situations remained below the level of EPC ambitions. The end of the East–West divide, the war in Iraq and in the former Yugoslavia, German unification, and EU internal dynamics, such as the successful completion of the internal market program, revealed the shortcomings of the EPC in the late 1980s and early 1990s, and paved the way for a qualitatively new system: the CFSP. Academic research on EPC was far less numerous and less diversified than it is today on CFSP. Its origins date back to a small group of scholars primarily working on the EC and/or interested in the foreign and EC policy of their respective countries. Their approach was less theoretical and more empirical and aimed to grasp the concept as such, which was not so easy during non-digital times and when EPC took place behind closed doors. EPC was seen as a relevant topic because of its new institutions and procedures and of the relevant forces driving the system further. Its evolution over more than two decades was described as constant movement though gradual process along various stages. Research was very much inward-looking, that is, the interplay of EPC at both the national and the EC level—today known as the governance question—was of great interest. Enlargement from the original six participating governments to 12 from 1986 onwards also became a case in point (raising the issue of adaptation processes (the Europeanization) of national bureaucracies and EPC decision-making (socialization, esprit de corps) and policy substance). To the extent EPC gained some international presence (e.g., in the United Nations) and profile (the acquis politique) on key international issues (such as the Middle East conflict, East–West relations), the question of EPC actorness attracted attention from wider academic circles. But how to measure the successes and failures of EPC and which yardsticks to apply here remained a challenge.
Development cooperation is one of the traditional policy domains of the European Union (EU). Over the years it advanced from an instrument used in colonial times to one of modern partnership, although European self-interest remains a driving force. Jointly, the EU and its member states are the largest development donor in the world and also provide sizable market access and investment to developing countries. Their overall performance record has been assessed fairly positively by internal and external parties, although many possible improvements have been identified. The various enlargements of the EU traceably supported a widening of the geographic and substantive scope of EU development policies and practice. In addition, EU development cooperation was reinforced by the fact that it gradually received a firmer basis in the constituent EU treaties. The “European Consensus on Development” document, as revised in 2017, laid out the main direction of and emphases in EU development cooperation until the year 2030. The European Consensus prescribed a rights-based approach, and squarely placed the United Nations “Agenda 2030” and the Sustainable Development Goals (SDGs) contained in it, as the main framework and objectives for EU development cooperation. A wide range of actors is involved in EU development cooperation, in part because this is an area of shared competence among the EU member states that pursue their own national policies as well as those specified by the EU. Thus, EU actors such as the European Commission, Council, and Parliament feature in this policy field along with EU member states and individual or collective developing country actors. The most prominent example of this is the African, Caribbean, and Pacific (ACP) Group of States, which consists of 79 countries. Civil society organizations, including non-governmental development organizations, both from the North and the South, also seek to influence or otherwise engage with the policies and practices of EU development cooperation. While EU development cooperation is an established policy field, it is also still very much a work in progress, and major challenges lay ahead for action in the period up to 2030, the year in which the SDGs are to be realized. These major challenges include funding, strengthening the EU’s political clout in the world by using development cooperation more strategically for forging and influencing global decision-making on relevant topics, renewing and innovating the relations between the EU and ACP countries, handling the consequences of Brexit, and improving on the delivery of EU development cooperation.
Florian Trauner and Ariadna Ripoll Servent
Justice and home affairs (JHA) is one of the most salient policy fields at European Union (EU) level. It deals with issues closely related to the sovereignty of member states including immigration, borders, and internal security. This article takes stock of the policy’s development and current academic debates. It argues that EU justice and home affairs is at a crossroads. Most EU actors underline the value added of European cooperation to tackle transnational threats such as terrorism and organized crime as well as the challenge of international migration. Indeed, the EU has increased its operational cooperation, data-sharing and legislative activities. The EU home affairs agencies, notably the European Police Office (Europol) and European Border and Coast Guard Agency (Frontex), have been substantially empowered. Yet JHA has also become a playing field for those attempting to politicize the European integration process. Therefore, recent years have seen major conflicts emerge that risk fragmenting the EU. These include controversies over the distribution of asylum seekers within the EU and the upholding of rule of law standards in some Eastern European states. Scholars have followed these developments with interest, contributing to a multifaceted and rich literature on aspects such as the dynamics of EU decision-making and the policy’s impact on the member states’ respect for fundamental rights and civil liberties. Promising avenues of further research include the implications of the politicization of the field and the consequences of ever more interconnected internal security databases and technologies.
Diplomacy’s role in foreign policy is hampered by multiple understandings of what diplomacy is and does. A broad definition of diplomacy holds that it encompasses more than the promotion of peaceful international relations. Instead, it applies to the sum of those relations—peaceful, hostile, and everything in between. Thus, foreign relations—so long as they involve the interests, direction, and actions of a sovereign power—may be regarded as being synonymous with diplomatic relations, whereby foreign policy relates to the theory and practice of setting diplomatic priorities; planning for contingencies; advancing strategic, operational, and tactical diplomatic aims; and adjusting those aims to domestic and foreign constraints. This conception of diplomacy is functional: it emphasizes the roles of diplomats and recognizes that many other people perform these roles besides official envoys; and it illustrates that diplomatic settings—and the means, methods, and tools of diplomacy—undergo continuous change. The basic mediating purpose of diplomacy, however, has endured, as has much of its institutional apparatus—embassies, ambassadors, treaties, and so on. This is likely to remain the case so long as there are multiple polities in the world, all having to relate to one another.