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The watchwords ought to be: maximizing synergies and avoiding “hard” or artificial splits between how we handle EU internal and external crises.
(Baroness Ashton 2010)
The lesson of the past is that this is an area in which breakthroughs are often less than they seem, and in which the slow evolution of policy is more important than treaty provisions, declarations or individual agency.
(Smith 2003: 563)
From “mapping” to assessing EU crisis management capacities
This book documents the emergence of the European Union as a multifaceted crisis manager. It describes the many crisis management capacities now available at the supranational level in Europe, including unique forms of cooperation, surprisingly effective decision procedures, organizations with special competences, and even a degree of operational capabilities.
It is true that these capacities are scattered across the EU's institutional landscape. We had to search for some, as they were not designed with crisis management in mind. Some capacities are brand new; others are tried and tested. It is also true that some capacities have worked better than others.
Taken together, we can say that the EU has developed a wide range of tools that enable the Union to play a role in a joint response to a variety of crises. The combined resources of 27 member states and the distinct competence the EU has developed over the years have made the EU a unique actor in the international crisis arena.
Why write a book about the European Union as a crisis manager? The response to safety and security threats falls in the traditional domain of the nation state. What role could the EU possibly play when it comes to dealing with floods, electricity breakdowns, epidemics, or terrorist attacks?
Our search for an answer to this question began some ten years ago. In those post-9/11 days, two of the authors met over coffee at Leiden University's Department of Public Administration. One (a crisis management researcher) had been studying how national governments were preparing for the possibility of a smallpox attack (a major worry in those days). He had understood that small countries like the Netherlands could never cope with such an event and would rely on cooperation with its neighbors. Surely, he asked, the European Union would play a dominant role in the response to a smallpox outbreak?
The other author (an EU researcher) found this a silly question. He explained that the EU was never intended or designed to “manage crises.” True, the EU did send military and civilian missions to foreign hot spots and there was financial support for humanitarian aid in disaster-stricken countries. But the EU did not manage crises or disasters on the European continent. Yet the question lingered: what role could the EU play in response to a large-scale crisis or disaster?
The European Union is increasingly being asked to manage crises inside and outside the Union. From terrorist attacks to financial crises, and natural disasters to international conflicts, many crises today generate pressures to collaborate across geographical and functional boundaries. What capacities does the EU have to manage such crises? Why and how have these capacities evolved? How do they work and are they effective? This book offers an holistic perspective on EU crisis management. It defines the crisis concept broadly and examines EU capacities across policy sectors, institutions and agencies. The authors describe the full range of EU crisis management capacities that can be used for internal and external crises. Using an institutionalization perspective, they explain how these different capacities evolved and have become institutionalized. This highly accessible volume illuminates a rarely examined and increasingly important area of European cooperation.