1. The EU's Role in the United Nations: More than the sum of its members? presentation by Roberto Storaci Counsellor at the EU Delegation to the UN

2. Outline – what we are going to talk about EU Common Foreign and Security Policy (CFSP) after the Lisbon Treaty. The EU at the UN: why is this forum of particular relevance? The EEAS and the post-Lisbon CFSP: a first appraisal.

3. Outline – what we are NOT going to talk about We are not going to take an academic approach. We are not addressing the EU Common Security and Defense Policy (CSDP). We are not considering the crisis management architecture.

4. Outline – what we are going to talk about EU Common Foreign and Security Policy (CFSP) after the Lisbon Treaty. The EU at the UN: why is this forum of particular relevance? The EEAS and the post-Lisbon CFSP: a first appraisal.

5. EU CFSP after the Lisbon Treaty. Principles Actors and competences Tools and priorities

6. EU CFSP - Principles The Treaty on European Union Art. 2: The Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and respect for human rights, including the rights of persons belonging to minorities. These values are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men prevail.

7. EU CFSP - Principles Art. 3.5: In its relations with the wider world, the Union shall uphold and promote its values and interests and contribute to the protection of its citizens. It shall contribute to peace, security, the sustainable development of the Earth, solidarity and mutual respect among peoples, free and fair trade, eradication of poverty and the protection of human rights, in particular the rights of the child, as well as to the strict observance and the development of international law, including respect for the principles of the UN Charter.

8. EU CFSP - Principles Art. 21.1: The Union's action on the international scene shall be guided by the principles which have inspired its own creation, development and enlargement, and which it seeks to advance in the wider world: democracy, rule of law, the universality and indivisibility of human rights and fundamental freedoms, respect for human dignity, the principles of equality and solidarity, and respect for the principles of the UN Charter and international law.

9. EU CFSP - Principles Art. 21.2 The Union shall define and pursue common policies and actions, and shall work for a high degree of cooperation in all fields of international relations, in order to: (a) safeguard its values, fundamental interests, security, independence and integrity; (b) consolidate and support democracy, the rule of law, human rights and the principles of international law; (c) preserve peace, prevent conflicts and strengthen international security, in accordance with the purposes and principles of the United Nations Charter, with the principles of the Helsinki Final Act and with the aims of the Charter of Paris, including those relating to external borders; (d) foster the sustainable economic, social and environmental development of developing countries, with the primary aim of eradicating poverty; (e) encourage the integration of all countries into the world economy, including through the progressive abolition of restrictions on international trade; (f) help develop international measures to preserve and improve the quality of the environment and the sustainable management of global natural resources, in order to ensure sustainable development; (g) assist populations, countries and regions confronting natural or man-made disasters; and (h) promote an international system based on stronger multilateral cooperation and good global governance.

10. EU CFSP - Principles CFSP – different from the rest. Art. 24.1: The common foreign and security policy is subject to specific rules and procedures. It shall be defined and implemented by the European Council and the Council acting unanimously, except where the Treaties provide otherwise […] The Court of Justice of the European Union shall not have jurisdiction with respect to these provisions.

11. EU CFSP – Actors and competences Actors: European Council The Council (Foreign Affairs Council) The High Representative/Vice President The Member States The Commission The Parliament

12. EU CFSP – Actors and competences The European Council -identifies the Union's strategic interests and objectives. -Art. 15.6: The President of the European Council shall, at his level and in that capacity, ensure the external representation of the Union on issues concerning its common foreign and security policy.

13. EU CFSP – Actors and competences The Council - frames the CFSP and takes decisions necessary for defining and implementing it (Council Conclusions)

14. EU CFSP – Actors and competences The member states - implement the CFSP together with the HR/VP; Art. 24.3: The Member States shall support the Union's external and security policy actively and unreservedly in a spirit of loyalty and mutual solidarity and shall comply with the Union's action in this area. The Member States shall work together to enhance and develop their mutual political solidarity. They shall refrain from any action which is contrary to the interests of the Union or likely to impair its effectiveness as a cohesive force in international relations.

15. EU CFSP – Actors and competences The Commission -With the exception of CFSP, shall ensure the Union's external representation (i.e. it is responsible for "external action", including trade, development aid, humanitarian assistance, enlargement, neighbourhood policy…).

16. EU CFSP – Actors and competences The Parliament - is consulted and may address questions or make recommendations to the Council or the HR. The HR "shall ensure that the views of the EP are duly taken into consideration".

17. EU CFSP – Actors and competences The High Representative / Vice President Art. 27 1.The High Representative of the Union for Foreign Affairs and Security Policy, who shall chair the Foreign Affairs Council, shall contribute through his proposals to the development of the common foreign and security policy and shall ensure implementation of the decisions adopted by the European Council and the Council. 2.The High Representative shall represent the Union for matters relating to the common foreign and security policy. He shall conduct political dialogue with third parties on the Union's behalf and shall express the Union's position in international organisations and at international conferences.

18. EU CFSP – Actors and competences The High Representative / Vice President High representative – CFSP (Javier Solana) Vice President – external action (Benita Ferrero-Waldner) Presidency (rotating Member States)

19. EU CFSP – Actors and competences Key new developments after Lisbon: Coherence between CFSP and External Action; Presidency functions: – Foreign Affairs Council, Political and Security Committee, Working Groups, local coordination; – Speaking with one voice – statements, demarches, international organizations; – Permanent Presidency – agenda setting, consistency, coherence.

20. EU CFSP – Tools and priorities Tools: Art. 27.3: In fulfilling his mandate, the High Representative shall be assisted by a European External Action Service. This service shall work in cooperation with the diplomatic services of the Member States and shall comprise officials from relevant departments of the General Secretariat of the Council and of the Commission as well as staff seconded from national diplomatic services of the Member States.

21. EU CFSP – Tools and priorities The EEAS Fully autonomous body of the EU (i.e. neither an institution, nor part of the Commission); Under the authority of the HR/VP; Made up of a central administration and of EU Delegations to third countries and international organizations.

22. EU CFSP – Tools and priorities The EEAS Supports the HR/VP in her three capacities: CFSP and CSDP; President of the FAC; Vice President of the Commission; Assists the President of the European Council, the President of the Commission and the Commission; Shall support, and work in cooperation with, the diplomatic services of the Member States, as well as with the General Secretariat of the Council and the services of the Commission.

23. EU CFSP – Tools and priorities Priorities The neighbourhood, where the EU has all of the policies and instruments at its disposal to effect lasting change; The Comprehensive Approach – which makes the EU uniquely able to tackle all aspects of a foreign policy issue; Those international issues where only the EU's collective weight allow us to play a lead role in today's globalised world.

24. EU CFSP after the Lisbon Treaty: what's new? A more ambitious agenda. A more coherent decision-making process. Better and more integrated tools.

25. Outline – what we are going to talk about EU Common Foreign and Security Policy (CFSP) after the Lisbon Treaty. The EU at the UN: why is this forum of particular relevance? The EEAS and the post-Lisbon CFSP: a first appraisal.

26. The EU at the United Nations Why is it crucial? EU in action: UNGA EU in action: UNSC

27. The EU at the United Nations Why is it crucial? Shared values and goals; Partnership; Speaking with one voice.

28. The EU at the United Nations Shared values and goals Art. 21: The Union shall promote multilateral solutions to common problems, in particular in the framework of the United Nations. The UN and/or the UN Charters are mentioned in Articles 3.5, 21.1, 21.2, 34, 42.

29. The EU at the United Nations Shared values and goals CHAPTER VIII: REGIONAL ARRANGEMENTS Article 52 Nothing in the present Charter precludes the existence of regional arrangements or agencies for dealing with such matters relating to the maintenance of international peace and security as are appropriate for regional action provided that such arrangements or agencies and their activities are consistent with the Purposes and Principles of the United Nations. The Members of the United Nations entering into such arrangements or constituting such agencies shall make every effort to achieve pacific settlement of local disputes through such regional arrangements or by such regional agencies before referring them to the Security Council. The Security Council shall encourage the development of pacific settlement of local disputes through such regional arrangements or by such regional agencies either on the initiative of the states concerned or by reference from the Security Council. This Article in no way impairs the application of Articles 34 and 35. Article 53 The Security Council shall, where appropriate, utilize such regional arrangements or agencies for enforcement action under its authority. But no enforcement action shall be taken under regional arrangements or by regional agencies without the authorization of the Security Council, with the exception of measures against any enemy state, as defined in paragraph 2 of this Article, provided for pursuant to Article 107 or in regional arrangements directed against renewal of aggressive policy on the part of any such state, until such time as the Organization may, on request of the Governments concerned, be charged with the responsibility for preventing further aggression by such a state. The term enemy state as used in paragraph 1 of this Article applies to any state which during the Second World War has been an enemy of any signatory of the present Charter. Article 54 The Security Council shall at all times be kept fully informed of activities undertaken or in contemplation under regional arrangements or by regional agencies for the maintenance of international peace and security.

30. The EU at the United Nations Shared values and goals Art. 1 of the UN Charter The Purposes of the United Nations are: To maintain international peace and security, and to that end: to take effective collective measures for the prevention and removal of threats to the peace, and for the suppression of acts of aggression or other breaches of the peace, and to bring about by peaceful means, and in conformity with the principles of justice and international law, adjustment or settlement of international disputes or situations which might lead to a breach of the peace; To develop friendly relations among nations based on respect for the principle of equal rights and self-determination of peoples, and to take other appropriate measures to strengthen universal peace; To achieve international co-operation in solving international problems of an economic, social, cultural, or humanitarian character, and in promoting and encouraging respect for human rights and for fundamental freedoms for all without distinction as to race, sex, language, or religion; and To be a centre for harmonizing the actions of nations in the attainment of these common ends.

31. The EU at the United Nations European Union The Union shall define and pursue common policies and actions, and shall work for a high degree of cooperation in all fields of international relations, in order to: (a) safeguard its values, fundamental interests, security, independence and integrity; (b) consolidate and support democracy, the rule of law, human rights and the principles of international law; (c) preserve peace, prevent conflicts and strengthen international security, in accordance with the purposes and principles of the United Nations Charter, with the principles of the Helsinki Final Act and with the aims of the Charter of Paris, including those relating to external borders; (d) foster the sustainable economic, social and environmental development of developing countries, with the primary aim of eradicating poverty; (e) encourage the integration of all countries into the world economy, including through the progressive abolition of restrictions on international trade; (f) help develop international measures to preserve and improve the quality of the environment and the sustainable management of global natural resources, in order to ensure sustainable development; (g) assist populations, countries and regions confronting natural or man- made disasters; and (h) promote an international system based on stronger multilateral cooperation and good global governance. United Nations The Purposes of the United Nations are: To maintain international peace and security, and to that end: to take effective collective measures for the prevention and removal of threats to the peace, and for the suppression of acts of aggression or other breaches of the peace, and to bring about by peaceful means, and in conformity with the principles of justice and international law, adjustment or settlement of international disputes or situations which might lead to a breach of the peace; To develop friendly relations among nations based on respect for the principle of equal rights and self- determination of peoples, and to take other appropriate measures to strengthen universal peace; To achieve international co-operation in solving international problems of an economic, social, cultural, or humanitarian character, and in promoting and encouraging respect for human rights and for fundamental freedoms for all without distinction as to race, sex, language, or religion; and To be a centre for harmonizing the actions of nations in the attainment of these common ends.

32. EU CFSP – Tools and priorities Priorities The neighbourhood, where the EU has all of the policies and instruments at its disposal to effect lasting change; The Comprehensive Approach – which makes the EU uniquely able to tackle all aspects of a foreign policy issue; Those international issues where only the EU's collective weight allow us to play a lead role in today's globalised world.

33. The EU at the United Nations Partnership The EU and its Member States collectively are the single largest financial contributor to the UN system: -35% of the UN regular budget; -36.8% of the UN peacekeeping budgets -about one-half of all the voluntary contributions to UN funds and programmes; - The European Commission alone contributed more than $1.5 billion in support of UN external assistance programmes and projects in 2013.

34. The EU at the United Nations Partnership -Political Affairs (regular consultations, PSC, cooperation on the ground, mediation); -Peace and Security - Peacekeeping (Steering Committee, EU CSDP, financial resources); -Peacebuilding (PBC, cooperation on the ground) -Development; -Humanitarian affairs; -Human rights.

35. The EU at the United Nations Speaking with one voice Art. 27: [The HR] shall express the Union's position in international organisations and at international conferences.

36. The EU at the United Nations Speaking with one voice -European integration means shared values, shared interests and shared goals; -Even individual priorities can be leveraged in a truly global approach; -Size matters: 28 member states, half a billion people, 17 trillion USD GDP).

37. The EU at the United Nations Speaking with one voice 6 candidate countries (Albania, FYR of Macedonia, Iceland, Montenegro, Serbia, Turkey); 1 potential candidate (Bosnia and Herzegovina) 3 EFTA countries (Liechtenstein, Norway, Switzerland); 5 Eastern Partnership countries (Armenia, Azerbaijan, Georgia, Moldova, Ukraine); 3 European "micro-states" (Andorra, Monaco, San Marino) Block of potentially 46 countries (almost a fourth of the UN membership) + possible like-minded (JUSCANZ for instance).

38. The EU at the United Nations EU in action: UNGA Art. 34.1: Member States shall coordinate their action in international organisations and at international conferences. They shall uphold the Union's positions in such forums. The High Representative of the Union for Foreign Affairs and Security Policy shall organise this coordination.

39. The EU at the United Nations EU in action: UNGA Going back to the question, why is it crucial? Unity is on the line every day. No hiding at the UN: votes, statements, outreach.

40. The EU at the United Nations EU in action: UNGA Some numbers: -In 2013, 1313 meetings took place at the EU Delegation. That is an average of 5 meetings a day. -From September 1, 2013 to September 1, 2014, 218 statements were made. -In 2013, the EU was united on 92% of the resolutions adopted by the UNGA.

41. The EU at the United Nations EU in action: UNGA EU new enhanced status at the UNGA: on 3 May 2011, the UNGA adopted resolution 65/276 (180 Y, 2 Abst) 1. […] The representatives of the European Union, in order to present positions of the European Union and its member States as agreed by them, shall be: (a) Allowed to be inscribed on the list of speakers among representatives of major groups, in order to make interventions; (b) Invited to participate in the general debate of the General Assembly, in accordance with the order of precedence as established in the practice for participating observers and the level of participation; (c) Permitted to have its communications relating to the sessions and work of the General Assembly and to the sessions and work of all international meetings and conferences convened under the auspices of the Assembly and of United Nations conferences, circulated directly, and without intermediary, as documents of the Assembly, meeting or conference; (d) Also permitted to present proposals and amendments orally as agreed by the States members of the European Union; such proposals and amendments shall be put to a vote only at the request of a Member State; (e) Allowed to exercise the right of reply regarding positions of the European Union as decided by the presiding officer; such right of reply shall be restricted to one intervention per item. 2. The representatives of the European Union shall be ensured seating among the observers.

42. The EU at the United Nations EU in action: UNGA Resolution 65/276 interesting in confirming a pattern: -Resistance to the EU's new role; -The reality of EU's new role makes for a successful incremental and pragmatic approach.

43. The EU at the United Nations EU in action: UNGA Five priorities: for this year's General Assembly of the United Nations. -Promotion of peace and security; -Sustainable Development (follow-up and implementation of the Rio +20 outcome, SDGs and post-2015 development framework) -Human Rights; -Strengthening the effectiveness of the UN (management, peacekeeping, field support, financial sustainability of the Organization); -Strengthening of the international humanitarian system.

44. The EU at the United Nations EU in action: UNGA Growth pains: from the statements war to the EU Delegation's coordinating role in the Fifth Committee. The EU at its best: moratorium of the death penalty, rights of LGBT people, freedom of religion and belief. Managing divisions: the Palestinian question, sexual health and reproductive rights.

45. The EU at the United Nations EU in action: UNSC Art. 34.2: In accordance with Article 24(3), Member States represented in international organisations or international conferences where not all the Member States participate shall keep the other Member States and the High Representative informed of any matter of common interest. Member States which are also members of the United Nations Security Council will concert and keep the other Member States and the High Representative fully informed. Member States which are members of the Security Council will, in the execution of their functions, defend the positions and the interests of the Union, without prejudice to their responsibilities under the provisions of the United Nations Charter. When the Union has defined a position on a subject which is on the United Nations Security Council agenda, those Member States which sit on the Security Council shall request that the High Representative be invited to present the Union's position.

46. The EU at the United Nations EU in action: UNSC A European seat? The reform of the Security Council and the European Union. Permanent Members: a curse and/or a blessing? The reality of EU's new role makes for a successful incremental and pragmatic approach.

47. The EU at the United Nations EU in action: UNSC The pragmatic approach: Art. 34 meetings. Informal briefings/meetings read-outs. EU UNSC members luncheons. Information-sharing: cables and EEAS-prepared briefings. Lobbying and demarches. Towards a single point of contact.

48. The EU at the United Nations EU in action: UNSC The reality of the EU role in peace and security: Regular briefings by the HRVP (four times since her appointment). In 2013, the EU delivered 27 statements in the UNSC under Rule 39 of the UNSC provisional rules of procedure ("The Security Council may invite members of the Secretariat or other persons, whom it considers competent for the purpose, to supply it with information or to give other assistance in examining matters within its competence").

49. The EU at the United Nations EU in action: UNSC The reality of the EU role in peace and security – PRST 2014/4 adopted by the UNSC on 14 February 2014 (under the Presidency of Lithuania), underlining the EU's role in: Iran nuclear file (EU/E3+3) Western Balkans (Bosnia and Herzegovina, Kosovo) International peacekeeping, peacebuilding, humanitarian assistance Combating piracy off the coast of Somalia (ATALANTA, EUCAP-Nestor) Somalia (EUTM-Somalia and financial support to AMISOM) Central African Republic (EUFOR-CAR) Mali (EUTM-Mali) and Sahel (EU Strategy for Security and Development in the Sahel and EUCAP SAHEL Niger Mission) Syria (humanitarian assistance, support to Joint UN-OPCW Mission, role in the Action Group) Middle East Peace Process (Quartet) Afghanistan (EUPOL Afghanistan and European Gendarmerie Force) Promoting development cooperation, promotion and protection of human rights and fundamental freedoms Protection of civilians, children and armed conflict, and women peace and security Justice, rule of law, and accountability

50. The EU at the United Nations EU in action: UNSC The reality of the EU role in peace and security. The EU is mentioned also in UNSC Resolutions dealing with: The Ebola crisis Libya Guinea Bissau Haiti And the EU is an active player in other crises and items on the Council's agenda, such as: Ukraine Yemen Iraq Sudan South Sudan DRC Cote d'Ivoire Counter-terrorism

51. The EU at the United Nations Going back to the original question: is the EU at the UN more than the sum of its members? The answer has to be a resounding YES.

52. The EU at the United Nations The EU is a (the) major player in the UNGA. The EU Delegation, as a Permanent Presidency, has ensured consistency, long-term planning, and a continued process of lessons learning. Also, the EU Delegation has become a single point of contact for all UNGA-related business, "the face of the EU at the UN". The EU voice is clearly heard and perceived in the membership. No single member state (not even the USA) could yield such influence. Cooperation with the EU-28 leverages EU assets. While resistance to the enhanced EU role continues, its undeniable reality is increasingly affirming it every day.

53. The EU at the United Nations The UNSC is a completely different forum, dominated by the P-5 and driven by the P-3. The unique nature of the UNSC and the presence of two EU permanent members make for a different EU role. At the same time, the EU is a consistent voice in the UNSC and a necessary partner for the UNSC to implement its decisions. No silver bullet, but an inevitable growing influence.

54. The EU at the United Nations In one sentence: Less than 5 years after the Lisbon Treaty (1 December 2009), less than 4 years after the launch of the EEAS (1 December 2010), and 3 years and a half after the EU achieved enhanced status at the UNGA (3 May 2011), it is already absolutely impossible to imagine the UN without the single coordinated EU voice projected by the EU Delegation.

55. Outline – what we are going to talk about EU Common Foreign and Security Policy (CFSP) after the Lisbon Treaty. The EU at the UN: why is this forum of particular relevance? The EEAS and the post-Lisbon CFSP: a first appraisal.

56. Kissinger: "Who do I call if I want to call Europe?" Criticizing the lack of an effective common EU foreign policy is a popular exercise. Is it also (still) an accurate one?

57. The EEAS and the post-Lisbon CFSP: a first appraisal. Critics often manage to both overestimate and underestimate the EU CFSP. Overestimate: the EU is not a state and and does not act as one; the EU is not a superpower; the EU is not a monolith. Underestimate: the EU is not a simple international organization or alliance and does not act as one; the EU remains a normative power and a necessary player; division is more eye-grabbing, but unity is the norm.

58. The EEAS and the post-Lisbon CFSP: a first appraisal. Two success stories: -Western Balkans -Slovenia and Croatia are EU members -Brussels Agreement (19 April 2013) between Serbia and Kosovo -Bosnia and Herzegovina -Albania, FYR of Macedonia and Montenegro are candidate countries -Iran -HR/VP Ashton leading role in the negotiations

59. The EEAS and the post-Lisbon CFSP: a first appraisal. One work in progress: -Building the EEAS. -EEAS Review 2013 (relations with the EC; deputising for the HR/VP) -Diplomatic network, the "legacy" effect -Creating a distinct European diplomatic culture -Building a global actor in times of financial crisis

60. The EEAS and the post-Lisbon CFSP: a first appraisal. Two mixed bags: -Ukraine -The challenge of facing Russia -Middle East Peace Process -Payer not player -The EU and the viability of the two-state solution The unglamorous everyday job of bridging gaps and forging unity…

61. The EEAS and the post-Lisbon CFSP: a first appraisal. Two not so-successful stories: -Arab Spring and Syria -The limits of the EU reach -The importance of coordination -Strategic partnerships -It takes 2 (or 30…) to tango

62. The EEAS and the post-Lisbon CFSP: a first appraisal. And the too easily ignored technical files: -Development -Promotion and protection of human rights -Humanitarian assistance -Trade policy -CSDP missions

63. The EEAS and the post-Lisbon CFSP: a first appraisal. Going back to Kissinger, is there somebody on the other side of the line? Yes, there is. The High Representative is an established global player supported by an increasingly strong diplomatic service. But the road to build a strong CFSP is still long…

64. The EEAS and the post-Lisbon CFSP: a first appraisal. The importance of the pragmatic approach: -The CFSP needs to provide added value, balancing ambition and realism; -European diplomacy is a system, made of the EEAS and the member states' diplomatic services.

65. The EEAS and the post-Lisbon CFSP: a first appraisal. The case for added value, and ambitious realism. -The Western Balkans and the perspective of European integration. -Iran, or when asked, be ready. -Egypt, the importance of trying. -The Middle East Peace Process, the risk of finding oneself alone. -The strategic partnerships and the need for unity.

66. The EEAS and the post-Lisbon CFSP: a first appraisal. The European diplomacy is a system, made of the EEAS and the member states' diplomatic services. -Increase the buy-in of member states and the value of the EEAS "production". -Find a synthesis between "Big" and "Smalls", "Eastern" and "Western", "Northern" and "Southern".

67. Conclusion In a globalised, "neo-Westphalian", and increasingly multipolar world, the EU and the 28 member states need, and will increasingly need, an effective and ambitious common foreign and security policy to preserve their role in the world and to maintain the European Union as a "force for the good" in the world.

68. Conclusion The CFSP architecture will continue to evolve to better respond to these evolving (and increasing) needs. As all efforts in European integration, it will be a trial and error exercise, which will face challenges, opposition and resistance, inside and outside Europe.

69. Conclusion As in the past, also this European enterprise will succeed insomuch as it will be able to prove that it can deliver goods at the European level that cannot be delivered at lower levels.

70. Conclusion Above all, the development of the CFSP – as the progress of the European integration overall – will depend on the sustained ambition by Europeans to continue building a stronger, better, more integrated Continent.