URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

Udenrigsudvalget 2015-16
URU Alm.del Bilag 320
Offentligt

Shared Vision, Common Action:

A Stronger Europe

A Global Strategy for the

European Union’s Foreign And Security Policy

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

Shared Vision, Common Action:

A Stronger Europe

A Global Strategy for the

European Union’s Foreign And Security Policy

June 2016

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

Contents

Foreword by Federica Mogherini

Executive Summary

A Global Strategy for the European Union’s Foreign and

Security Policy: “Shared Vision, Common Action:

A Stronger Europe”

1. A Global Strategy to Promote our Citizens’ Interests

2. The Principles Guiding our External Action

3. The Priorities of our External Action

3.1 The Security of Our Union

3.2 State and Societal Resilience to our East and South

3.3 An Integrated Approach to Conflicts and Crises

3.4 Cooperative Regional Orders

3.5 Global Governance for the 21

Century

4. From Vision to Action

Acknowledgements

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Foreword by Federica Mogherini

High Representative

of the Union for Foreign Affairs and Security Policy

Vice-President of the European Commission

The purpose, even existence, of our Union is being questioned. Yet, our

citizens and the world need a strong European Union like never before. Our

wider region has become more unstable and more insecure. The crises

within and beyond our borders are affecting directly our citizens’ lives. In

challenging times, a strong Union is one that thinks strategically, shares a

vision and acts together. This is even more true after the British referendum.

We will indeed have to rethink the way our Union works, but we perfectly

know what to work for. We know what our principles, our interests and our

priorities are. This is no time for uncertainty: our Union needs a Strategy.

We need a shared vision, and common action.

None of our countries has the strength nor the resources to address these

threats and seize the opportunities of our time alone. But as a Union of

almost half a billion citizens, our potential is unparalleled. Our diplomatic

network runs wide and deep in all corners of the globe. Economically,

we are in the world’s G3. We are the first trading partner and the first

foreign investor for almost every country in the globe. Together we invest

more in development cooperation than the rest of the world combined. It

is also clear, though, that we are not making full use of this potential yet. A

vast majority of our citizens understands that we need to collectively take

responsibility for our role in the world. And wherever I travel, our

partners expect the European Union to play a major role, including as a

global security provider. We will deliver on our citizens’ needs and make our

partnerships work only if we act together, united. This is exactly the aim of

the Global Strategy for European Foreign and Security Policy.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

“Global” is not just intended in a geographical sense: it also refers to the

wide array of policies and instruments the Strategy promotes. It focuses

on military capabilities and anti-terrorism as much as on job opportunities,

inclusive societies and human rights. It deals with peace-building and the

resilience of States and societies, in and around Europe. The European

Union has always prided itself on its soft power – and it will keep doing

so, because we are the best in this field. However, the idea that Europe is

an exclusively “civilian power” does not do justice to an evolving reality.

For instance, the European Union currently deploys seventeen military and

civilian operations, with thousands of men and women serving under the

European flag for peace and security – our own security, and our partners’.

For Europe, soft and hard power go hand in hand.

The Strategy nurtures the ambition of strategic autonomy for the

European Union. This is necessary to promote the common interests of

our citizens, as well as our principles and values. Yet we know that such

priorities are best served when we are not alone. And they are best

served in an international system based on rules and on multilateralism.

This is no time for global policemen and lone warriors. Our foreign and

security policy has to handle global pressures and local dynamics, it has to

cope with super-powers as well as with increasingly fractured identities.

Our Union will work to strengthen our partners: We will keep deepening

the transatlantic bond and our partnership with NATO, while we will also

connect to new players and explore new formats. We will invest in regional

orders, and in cooperation among and within regions. And we will promote

reformed global governance, one that can meet the challenges of this 21

century. We will engage in a practical and principled way, sharing global

responsibilities with our partners and contributing to their strengths.

We have learnt the lesson: my neighbour’s and my partner’s weaknesses

are my own weaknesses. So we will invest in win-win solutions, and move

beyond the illusion that international politics can be a zero-sum game.

All of this will make each of our Member States – and each citizen of our

Union – better off. All these goals can only be achieved by a truly united and

committed Europe. Joining all our cultures together to achieve our shared

goals and serve our common interests is a daily challenge, but it is also our

greatest strength: diversity is what makes us strong.

Yes, our interests are indeed common European interests: the only way

to serve them is by common means. This is why we have a collective

responsibility to make our Union a stronger Union. The people of Europe

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

need unity of purpose among our Member States, and unity in action

across our policies. A fragile world calls for a more confident and

responsible European Union, it calls for an outward- and forward-looking

European foreign and security policy. This Global Strategy will guide

us in our daily work towards a Union that truly meets its citizens’ needs,

hopes and aspirations; a Union that builds on the success of 70 years of

peace; a Union with the strength to contribute to peace and security in our

region and in the whole world.

Federica Mogherini

European Union Global Strategy

Executive Summary

We need a stronger Europe. This is what our citizens deserve, this is what

the wider world expects.

We live in times of existential crisis, within and beyond the European

Union. Our Union is under threat. Our European project, which has brought

unprecedented peace, prosperity and democracy, is being questioned. To

the east, the European security order has been violated, while terrorism

and violence plague North Africa and the Middle East, as well as Europe

itself. Economic growth is yet to outpace demography in parts of Africa,

security tensions in Asia are mounting, while climate change causes further

disruption. Yet these are also times of extraordinary opportunity. Global

growth, mobility, and technological progress – alongside our deepening

partnerships – enable us to thrive, and allow ever more people to escape

poverty and live longer and freer lives. We will navigate this difficult, more

connected, contested and complex world guided by our shared interests,

principles and priorities. Grounded in the values enshrined in the Treaties

and building on our many strengths and historic achievements, we will stand

united in building a stronger Union, playing its collective role in the world.

1. Our Shared Interests and Principles

The European Union will promote peace and guarantee the security of

its citizens and territory. Internal and external security are ever more

intertwined: our security at home depends on peace beyond our borders.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

The EU will advance the prosperity of its people. Prosperity must be

shared and requires fulfilling the Sustainable Development Goalsworldwide,

including in Europe. A prosperous Union also hinges on an open and fair

international economic system and sustainable access to the global

commons. The EU will foster the resilience of its democracies. Consistently

living up to our values will determine our external credibility and influence.

The EU will promote a rules-based global order. We have an interest in

promoting agreed rules to provide global public goods and contribute to a

peacefuland sustainable world. The EU will promote a rules-based global

order with multilateralism as its key principle and the United Nations at its

core.

We will be guided by clear principles. These stem as much from a

realistic assessment of the current strategic environment as from an

idealistic aspiration to advance a better world. Principled pragmatism will

guide our external action in the years ahead.

In a more complex world, we must stand united. Only the combined

weight of a true union has the potential to deliver security, prosperity and

democracy to its citizens and make a positive difference in the world.

In a more connected world, the EU will engage with others. The Union

cannot pull up a drawbridge to ward off external threats. To promote the

security and prosperity of our citizens and to safeguard our democracies,

we will manage interdependence, with all the opportunities, challenges

and fears it brings about, by engaging the wider world.

In a more contested world, the EU will be guided by a strong sense of

responsibility. We will engage responsibly across Europe and the

surrounding regions to the east and south. We will act globally to

address the root causes of conflict and poverty, and to promote human

rights.

The EU will be a responsible global stakeholder, but responsibility must

be shared. Responsibility goes hand in hand with revamping our external

partnerships. In the pursuit of our goals, we will reach out to states,

regional bodies and international organisations. We will work with core

partners, like-minded countries and regional groupings. We will deepen our

partnerships with civil society and the private sector as key players in a

networked world.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

2. The Priorities of our External Action

To promote our shared interests, adhering to clear principles, the EU will

pursue five priorities.

The Security of our Union.

The EU Global Strategy starts at home. Our

Union has enabled citizens to enjoy unprecedented security, democracy

and prosperity. Yet today terrorism, hybrid threats, economic volatility,

climate change and energy insecurity endanger our people and territory.

An appropriate level of ambition and strategic autonomy is important

for Europe’s ability to promote peace and security within and beyond its

borders. We will therefore enhance our efforts on defence, cyber,

counterterrorism, energy and strategic communications. Member States

must translate their commitments to mutual assistance and solidarity

enshrined in the Treaties into action. The EU will step up its contribution to

Europe’s collective security, working closely with its partners, beginning

with NATO.

State and Societal Resilience to our East and South.

It is in the interests

of our citizens to invest in the resilience of states and societies to the

east stretching into Central Asia, and to the south down to Central Africa.

Under the current EU enlargement policy, a credible accession process

grounded in strict and fair conditionality is vital to enhance the resilience

of countries in the Western Balkans and of Turkey. Under the European

Neighbourhood Policy (ENP), many people wish to build closer relations

with the Union: our enduring power of attraction can spur transformation

in these countries. But resilience is also a priority in other countries

within and beyond the ENP. The EU will support different paths to resilience,

targeting the most acute cases of governmental, economic, societal and

climate/energy fragility, as well as develop more effective migration

policies for Europe and its partners.

An Integrated Approach to Conflicts.

When violent conflicts erupt, our

shared vital interests are threatened. The EU will engage in a practical

and principled way in peacebuilding, and foster human security through

an integrated approach. Implementing the ‘comprehensive approach

to conflicts and crises’ through a coherent use of all policies at the EU’s

disposal is essential. But the meaning and scope of the ‘comprehensive

approach’ will be expanded. The EU will act at all stages of the conflict

cycle, acting promptly on prevention, responding responsibly and decisively

to crises, investing in stabilisation, and avoiding premature disengagement

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

when a new crisis erupts. The EU will act at different levels of governance:

conflicts such as those in Syria and Libya have local, national, regional

and global dimensions which must be addressed. Finally, none of these

conflicts can be solved by us alone. Sustainable peace can only be achieved

through comprehensive agreements rooted in broad, deep and durable

regional and international partnerships, which the EU will foster and

support.

Cooperative Regional Orders.

In a world caught between global

pressures and local pushback, regional dynamics come to the fore.

Voluntary forms of regional governance offer states and peoples the

opportunity to better manage security concerns, reap the economic gains

of globalisation, express more fully cultures and identities, and project

influence in world affairs. This is a fundamental rationale for the EU’s own

peace and development in the 21

century, and this is why we will support

cooperative regional orders worldwide. In different regions – in Europe; in

the Mediterranean, Middle East and Africa; across the Atlantic, both north

and south; in Asia; and in the Arctic – the EU will be driven by specific goals.

Global Governance for the 21

Century.

The EU is committed to a global

order based on international law, which ensures human rights, sustainable

development and lasting access to the global commons. This commitment

translates into an aspiration to transform rather than to simply preserve

the existing system. The EU will strive for a strong UN as the bedrock of the

multilateral rules-based order, and develop globally coordinated responses

with international and regional organisations, states and non-state actors.

3. From Vision to Action

We will pursue our priorities by mobilising our unparalleled networks, our

economic weight and all the tools at our disposal in a coherent way. To

fulfil our goals, we must collectively invest in a credible, responsive and

joined-up Union.

A Credible Union.

To engage responsibly with the world, credibility is

vital. The EU’s credibility hinges on our unity, on our many achievements,

our enduring power of attraction, the effectiveness and consistency of

our policies, and adherence to our values. A stronger Union also requires

investing in all dimensions of foreign policy. In particular, investment

in security and defence is a matter of urgency. Full spectrum defence

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

capabilities are necessary to respond to external crises, build our partners’

capacities, and to guarantee Europe’s safety. Member States remain

sovereign in their defence decisions: nevertheless, to acquire and maintain

many of these capabilities, defence cooperation must become the norm.

The EU will systematically encourage defence cooperation and strive to

create a solid European defence industry, which is critical for Europe’s

autonomy of decision and action.

A Responsive Union.

Our diplomatic action must be fully grounded in the

Lisbon Treaty. The Common Security and Defence Policy must become

more responsive. Enhanced cooperation between Member States should be

explored, and might lead to a more structured form of cooperation, making

full use of the Lisbon Treaty’s potential. Development policy also needs to

become more flexible and aligned with our strategic priorities.

A Joined-up Union.

We must become more joined up across our external

policies, between Member States and EU institutions, and between the

internal and external dimensions of our policies. This is particularly relevant

to the implementation of the Sustainable Development Goals, migration,

and security, notably counter-terrorism. We must also systematically

mainstream human rights and gender issues across policy sectors and

institutions.

This Strategy is underpinned by the vision of and ambition for a stronger

Union, willing and able to make a positive difference in the world. Our

citizens deserve a true Union, which promotes our shared interests by

engaging responsibly and in partnership with others. It is now up to us to

translate this into action.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Shared Vision, Common Action:

A Stronger Europe

A Global Strategy for the European Union’s Foreign and Security Policy

We need a stronger Europe. This is what our citizens deserve, this is what

the wider world expects. We live in times of existential crisis, within and

beyond the European Union. Our Union is under threat. Our European project,

which has brought unprecedented peace, prosperity and democracy, is being

questioned. To the east, the European security order has been violated, while

terrorism and violence plague North Africa and the Middle East, as well as

Europe itself. Economic growth is yet to outpace demography in parts of

Africa, security tensions in Asia are mounting, while climate change causes

further disruption. Yet these are also times of extraordinary opportunity.

Global growth, mobility, and technological progress – alongside our deepening

partnerships – enable us to thrive, and allow ever more people to escape

poverty and live longer and freer lives. We will navigate this difficult, more

connected, contested and complex world guided by our shared interests,

principles and priorities. Grounded in the values enshrined in the Treaties

and building on our many strengths and historic achievements, we will stand

united in building a stronger Union, playing its collective role in the world.

1. A Global Strategy to Promote our Citizens’ Interests

Our interests and values go hand in hand. We have an interest in promoting our

values in the world. At the same time, our fundamental values are embedded

in our interests. Peace and security, prosperity, democracy and a rules-based

global order are the vital interests underpinning our external action.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

“Our interests and values go hand in hand. We

have an interest in promoting our values in the

world. At the same time, our fundamental values

are embedded in our interests.”

Peace and Security

The European Union will promote peace and guarantee the security of its

citizens and territory. This means that Europeans, working with partners,

must have the necessary capabilities to defend themselves and live up to their

commitments to mutual assistance and solidarity enshrined in the Treaties.

“Europeans, working with partners, must have

the necessary capabilities to defend themselves

and live up to their commitments to mutual

assistance and solidarity enshrined in the

Treaties. Internal and external security are ever

more intertwined: our security at home entails a

parallel interest in peace in our neighbouring and

surrounding regions.”

Internal and external security are ever more intertwined: our security

at home entails a parallel interest in peace in our neighbouring and

surrounding regions. It implies a broader interest in preventing conflict,

promoting human security, addressing the root causes of instability and

working towards a safer world.

Prosperity

The EU will advance the prosperity of its people. This means promoting

growth, jobs, equality, and a safe and healthy environment. While a

prosperous Union is the basis for a stronger Europe in the world, prosperity

must be shared and requires fulfilling the Sustainable Development Goals

(SDGs) worldwide, including in Europe. Furthermore, with most world

growth expected to take place outside the EU in near future, trade and

investment will increasingly underpin our prosperity: a prosperous Union

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

hinges on a strong internal market and an open international economic

system. We have an interest in fair and open markets, in shaping global

economic and environmental rules, and in sustainable access to the global

commons through open sea, land, air and space routes. In view of the digital

revolution, our prosperity also depends on the free flow of information and

global value chains facilitated by a free and secure Internet.

Democracy

The EU will foster the resilience of its democracies, and live up to the

values that have inspired its creation and development. These include

respect for and promotion of human rights, fundamental freedoms

and the rule of law. They encompass justice, solidarity, equality, non-

discrimination, pluralism, and respect for diversity. Living up consistently to

our values internally will determine our external credibility and influence.

“Living up consistently to our values internally will

determine our external credibility and influence.”

To safeguard the quality of our democracies, we will respect domestic,

European and international law across all spheres, from migration and

asylum to energy, counter-terrorism and trade. Remaining true to our

values is a matter of law as well as of ethics and identity.

A Rules-Based Global Order

The EU will promote a rules-based global order with multilateralism as

its key principle and the United Nations at its core. As a Union of medium-

to-small sized countries, we have a shared European interest in facing the

world together. Through our combined weight, we can promote agreed rules

to contain power politics and contribute to a peaceful, fair and prosperous

“As a Union of medium-to-small sized countries,

we have a shared European interest in facing the

world together.”

world. The Iranian nuclear agreement is a clear illustration of this fact.

A multilateral order grounded in international law, including the principles of the

UN Charter and the Universal Declaration of Human Rights, is the only guarantee

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

for peace and security at home and abroad. A rules-based global order unlocks

the full potential of a prosperous Union with open economies and deep global

connections, and embeds democratic values within the international system.

2. The Principles Guiding our External Action

We will be guided by clear principles. These stem as much from a realistic

assessment of the strategic environment as from an idealistic aspiration

to advance a better world. In charting the way between the Scylla of

“Principled pragmatism will guide our external

action in the years ahead.”

isolationism and the Charybdis of rash interventionism, the EU will engage

the world manifesting responsibility towards others and sensitivity to

contingency. Principled pragmatism will guide our external action in the

years ahead.

Unity

In a more complex world of global power shifts and power diffusion, the

EU must stand united. Forging unity as Europeans – across institutions,

states and peoples – has never been so vital nor so urgent. Never has our

unity been so challenged. Together we will be able to achieve more than

Member States acting alone or in an uncoordinated manner. There is no

“Forging unity as Europeans has never been

so vital nor so urgent. There is no clash between

national and European interests. Our shared

interests can only be served by standing and

acting together.”

clash between national and European interests. Our shared interests can

only be served by standing and acting together. Only the combined weight of

a true union has the potential to deliver security, prosperity and democracy

to its citizens and make a positive difference in the world. The interests

of our citizens are best served through unity of purpose between Member

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

States and across institutions, and unity in action by implementing together

coherent policies.

Engagement

In a more connected world, the EU will reach out and engage with

others. In light of global value chains, galloping technological advances

and growing migration, the EU will participate fully in the global

marketplace and co-shape the rules that govern it. The Union cannot

pull up a drawbridge to ward off external threats. Retreat from the world

only deprives us of the opportunities that a connected world presents.

“The Union cannot pull up a drawbridge to ward

off external threats. Retreat from the world only

deprives us of the opportunities that a connected

world presents.”

Environmental degradation and resource scarcity know no borders,

neither do transnational crime and terrorism. The external cannot be

separated from the internal. In fact, internal policies often deal only with

the consequences of external dynamics. We will manage interdependence,

with all the opportunities, challenges and fears it brings about, by engaging

in and with the wider world.

Responsibility

In a more contested world, the EU will be guided by a strong sense of

responsibility. There is no magic wand to solve crises: there are no neat

recipes to impose solutions elsewhere. However, responsible engagement

“We will take responsibility foremost in Europe

and its surrounding regions, while pursuing

targeted engagement further afield. We will act

globally to address the root causes of conflict

and poverty, and to champion the indivisibility

and universality of human rights.”

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

can bring about positive change. We will therefore act promptly to prevent

violent conflict, be able and ready to respond responsibly yet decisively to

crises, facilitate locally owned agreements, and commit long-term. We will

take responsibility foremost in Europe and its surrounding regions, while

pursuing targeted engagement further afield. We will act globally to address

the root causes of conflict and poverty, and to champion the indivisibility

and universality of human rights.

Partnership

The EU will be a responsible global stakeholder, but responsibility must

be shared and requires investing in our partnerships. Co-responsibility

will be our guiding principle in advancing a rules-based global order.

“The EU will be a responsible global stakeholder,

but responsibility must be shared and requires

investing in our partnerships.”

In pursuing our goals, we will reach out to states, regional bodies and

international organisations. We will work with core partners, like-minded

countries and regional groupings. We will partner selectively with players

whose cooperation is necessary to deliver global public goods and address

common challenges. We will deepen our partnerships with civil society

and the private sector as key actors in a networked world. We will do so

through dialogue and support, but also through more innovative forms of

engagement.

3. The Priorities of our External Action

To promote our shared interests, adhering to clear principles, we will pursue

five broad priorities.

3.1 The Security of Our Union

The EU Global Strategy starts at home. Over the decades, our Union

has enabled citizens to enjoy unprecedented security, democracy and

prosperity. We will build on these achievements in the years ahead. Yet

today terrorism, hybrid threats, climate change, economic volatility and

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

“The EU Global Strategy starts at home. To

preserve and develop what we achieved so far, a

step change is essential. We must translate our

commitments to mutual assistance and solidarity

into action.”

energy insecurity endanger our people and territory. The politics of fear

challenges European values and the European way of life. To preserve and

develop what we achieved so far, a step change is essential. To guarantee

our security, promote our prosperity and safeguard our democracies, we

will strengthen ourselves on security and defence in full compliance with

human rights and the rule of law. We must translate our commitments

to mutual assistance and solidarity into action, and contribute more to

Europe’s collective security through five lines of action.

Security and Defence

As Europeans we must take greater responsibility for our security. We

must be ready and able to deter, respond to, and protect ourselves against

external threats. While NATO exists to defend its members – most of which

are European – from external attack, Europeans must be better equipped,

“As Europeans we must take greater responsibil-

ity for our security. We must be ready and able to

deter, respond to, and protect ourselves against

external threats.”

trained and organised to contribute decisively to such collective efforts, as

well as to act autonomously if and when necessary. An appropriate level of

ambition and strategic autonomy is important for Europe’s ability to foster

peace and safeguard security within and beyond its borders.

Europeans must be able to protect Europe, respond to external crises,

and assist in developing our partners’ security and defence capacities,

carrying out these tasks in cooperation with others. Alongside external

crisis management and capacity-building, the EU should also be able to

assist in protecting its Members upon their request, and its institutions.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

This means living up to our commitments to mutual assistance and

solidarity and includes addressing challenges with both an internal and

external dimension, such as terrorism, hybrid threats, cyber and energy

security, organised crime and external border management. For instance,

Common Security and Defence Policy (CSDP) missions and operations can

work alongside the European Border and Coast Guard and EU specialised

agencies to enhance border protection and maritime security in order to

save more lives, fight cross-border crime and disrupt smuggling networks.

When it comes to collective defence, NATO remains the primary framework

for most Member States. At the same time, EU-NATO relations shall not

prejudice the security and defence policy of those Members which are

not in NATO. The EU will therefore deepen cooperation with the North

Atlantic Alliance in complementarity, synergy, and full respect for the

institutional framework, inclusiveness and decision-making autonomy of

“The EU needs to be strengthened as a security

community: European security and defence

efforts should enable the EU to act autonomously

while also contributing to and undertaking

actions in cooperation with NATO.”

the two. In this context, the EU needs to be strengthened as a security

community: European security and defence efforts should enable the EU

to act autonomously while also contributing to and undertaking actions in

cooperation with NATO. A more credible European defence is essential also

for the sake of a healthy transatlantic partnership with the United States.

Member States need the technological and industrial means to acquire and

sustain those capabilities which underpin their ability to act autonomously.

While defence policy and spending remain national prerogatives, no Member

State can afford to do this individually: this requires a concerted and

cooperative effort. Deeper defence cooperation engenders interoperability,

effectiveness, efficiency and trust: it increases the output of defence spending.

Developing and maintaining defence capabilities requires both investments

and optimising the use of national resources through deeper cooperation.

The EU will assist Member States and step up its contribution to Europe’s

security and defence in line with the Treaties. Gradual synchronisation

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

and mutual adaptation of national defence planning cycles and capability

development practices can enhance strategic convergence between

Member States. Union funds to support defence research and technologies

and multinational cooperation, and full use of the European Defence

Agency’s potential are essential prerequisites for European security and

defence efforts underpinned by a strong European defence industry.

Counter-terrorism

Major terrorist attacks have been carried out on European soil and beyond.

Increased investment in and solidarity on counter-terrorism are key. We

will therefore encourage greater information sharing and intelligence

cooperation between Member States and EU agencies. This entails shared

alerts on violent extremism, terrorist networks and foreign terrorist

fighters, as well as monitoring and removing unlawful content from the

“The EU will live up to its values internally and

externally: this is the strongest antidote we have

against violent extremism.”

media. Alongside, the EU will support the swift recovery of Members States

in the event of attacks through enhanced efforts on security of supply,

the protection of critical infrastructure, and strengthening the voluntary

framework for cyber crisis management. We will deepen work on education,

communication, culture, youth and sport to counter violent extremism. We

will work on counter-radicalisation by broadening our partnerships with

civil society, social actors, the private sector and the victims of terrorism,

as well as through inter-religious and inter-cultural dialogue. Most crucially

of all, the EU will live up to its values internally and externally: this is the

strongest antidote we have against violent extremism. We will also further

develop human rights-compliant anti-terrorism cooperation with North

Africa, the Middle East, the Western Balkans and Turkey, among others, and

work with partners around the world to share best practices and develop

joint programmes on countering violent extremism and radicalisation.

Cyber Security

The EU will increase its focus on cyber security, equipping the EU and

assisting Member States in protecting themselves against cyber threats while

maintaining an open, free and safe cyberspace. This entails strengthening

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

the technological capabilities aimed at mitigating threats and the resilience

of critical infrastructure, networks and services, and reducing cybercrime.

It means fostering innovative information and communication technology

(ICT) systems which guarantee the availability and integrity of data, while

ensuring security within the European digital space through appropriate

policies on the location of data storage and the certification of digital

products and services. It requires weaving cyber issues across all policy

areas, reinforcing the cyber elements in CSDP missions and operations,

and further developing platforms for cooperation. The EU will support

political, operational and technical cyber cooperation between Member

States, notably on analysis and consequence management, and foster

shared assessments between EU structures and the relevant institutions

in Member States. It will enhance its cyber security cooperation with core

partners such as the US and NATO. The EU’s response will also be embedded

in strong public-private partnerships. Cooperation and information-sharing

between Member States, institutions, the private sector and civil society

can foster a common cyber security culture, and raise preparedness for

possible cyber disruptions and attacks.

Energy Security

The Energy Union represents an integrated effort to work on the internal

and external dimensions of European energy security. In line with the

goals of the Energy Union, the EU will seek to diversify its energy sources,

routes and suppliers, particularly in the gas domain, as well as to promote

the highest nuclear safety standards in third countries. Through our

energy diplomacy, we will strengthen relations worldwide with reliable

energy-producing and transit countries, and support the establishment

of infrastructure to allow diversified sources to reach European markets.

“Through our energy diplomacy, we will strengthen

relations worldwide with reliable energy-

producing and transit countries, and support the

establishment of infrastructure to allow diversified

sources to reach European markets.”

However, binding infrastructure agreements with third countries can

have a differentiated impact on the security of supply within the Union

or hinder the functioning of the internal energy market. Therefore, such

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

agreements must be transparent and any new infrastructure must be fully

compliant with applicable EU law, including the Third Energy Package.

Internally, the EU will work on a fully functioning internal energy market,

focus on sustainable energy and energy efficiency, and develop coherently

reverse flow, interconnection, and liquefied natural gas (LNG) storage

infrastructure.

Strategic Communications

The EU will enhance its strategic communications, investing in and joining-

up public diplomacy across different fields, in order to connect EU foreign

policy with citizens and better communicate it to our partners. We will

improve the consistency and speed of messaging on our principles and

actions. We will also offer rapid, factual rebuttals of disinformation. We

will continue fostering an open and inquiring media environment within and

beyond the EU, also working with local players and through social media.

3.2 State and Societal Resilience to our East and South

It is in the interests of our citizens to invest in the resilience of states and

societies to the east stretching into Central Asia, and south down to Central

Africa. Fragility beyond our borders threatens all our vital interests. By

contrast, resilience – the ability of states and societies to reform, thus

withstanding and recovering from internal and external crises – benefits us

“It is in the interests of our citizens to invest in the

resilience of states and societies to the east

stretching into Central Asia, and south down

to Central Africa. A resilient society featuring

democracy, trust in institutions, and sustainable

development lies at the heart of a resilient state.”

and countries in our surrounding regions, sowing the seeds for sustainable

growth and vibrant societies. Together with its partners, the EU will

therefore promote resilience in its surrounding regions. A resilient state is

a secure state, and security is key for prosperity and democracy. But the

reverse holds true as well. To ensure sustainable security, it is not only state

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

institutions that we will support. Echoing the Sustainable Development

Goals, resilience is a broader concept, encompassing all individuals and the

whole of society. A resilient society featuring democracy, trust in institutions,

and sustainable development lies at the heart of a resilient state.

Enlargement Policy

Any European state which respects and promotes the values enshrined

in our Treaties may apply to become a Member of the Union. A credible

enlargement policy grounded on strict and fair conditionality is an

irreplaceable tool to enhance resilience within the countries concerned,

“A credible enlargement policy represents a

strategic investment in Europe’s security and

prosperity, and has already contributed greatly

to peace in formerly war-torn areas.”

ensuring that modernisation and democratisation proceed in line with the

accession criteria. A credible enlargement policy represents a strategic

investment in Europe’s security and prosperity, and has already contributed

greatly to peace in formerly war-torn areas.

Within the scope of the current enlargement policy, the challenges of

migration, energy security, terrorism and organised crime are shared

between the EU, the Western Balkans and Turkey. They can only be

addressed together. Yet the resilience of these countries cannot be taken

for granted. The EU enjoys a unique influence in all these countries. The

strategic challenge for the EU is therefore that of promoting political

reform, rule of law, economic convergence and good neighbourly relations

in the Western Balkans and Turkey, while coherently pursuing cooperation

across different sectors.

EU policy towards the candidate countries will continue to be based on

a clear, strict and fair accession process. It will focus on fundamental

requirements for membership first and feature greater scrutiny of reforms,

clearer reform requirements, and feedback from the European Commission

and Member States, as well as local civil societies. At the same time, EU

support for and cooperation with these countries must deliver concrete

benefits today, and must be communicated well. This means cooperating

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

on counter-terrorism, security sector reform, migration, infrastructure,

energy and climate, deepening people-to-people contacts, and retailoring

some of the EU’s assistance with the aim of visibly improving citizens’

wellbeing.

Our Neighbours

State and societal resilience is our strategic priority in the neighbourhood.

Many people within the scope of the European Neighbourhood Policy (ENP)

both to the east and to the south wish to build closer relations with the

Union. Our enduring power of attraction can spur transformation and is

not aimed against any country. Within this group are currently countries

such as Tunisia or Georgia, whose success as prosperous, peaceful and

stable democracies would reverberate across their respective regions. The

ENP has recommitted to Eastern Partnership and southern Mediterranean

countries wishing to develop stronger relations with us. We will support

these countries in implementing association agreements, including

Deep and Comprehensive Free Trade Areas (DCFTAs). We will also think

creatively about deepening tailor-made partnerships further. Possibilities

include the creation of an economic area with countries implementing

DCFTAs, the extension of Trans-European Networks and the Energy

Community, as well as building physical and digital connections. Societal

links will also be strengthened through enhanced mobility, cultural and

educational exchanges, research cooperation and civil society platforms.

Full participation in EU programmes and agencies will be pursued alongside

strategic dialogue with a view to paving the way for these countries’ further

involvement in CSDP.

Resilience is a strategic priority across the EU’s east and south both

in countries that want stronger ties with the EU and in those – within

and beyond the ENP – that have no wish to do so. The EU will support

different paths to resilience to its east and south, focusing on the most

acute dimensions of fragility and targeting those where we can make a

meaningful difference.

Resilience in our Surrounding Regions

The EU will pursue a multifaceted approach to resilience in its surrounding

regions. While repressive states are inherently fragile in the long term, there

are many ways to build inclusive, prosperous and secure societies. We will

therefore pursue tailor-made policies to support inclusive and accountable

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

governance, critical for the fight against terrorism, corruption and organised

crime, and for the protection of human rights. Repression suffocates

outlets for discontent and marginalises communities. The EU will therefore

promote human rights through dialogue and support, including in the

most difficult cases. Through long-term engagement, we will persistently

seek to advance human rights protection. We will pursue locally owned

rights-based approaches to the reform of the justice, security and defence

sectors, and support fragile states in building capacities, including cyber.

We will work through development, diplomacy, and CSDP, ensuring that our

security sector reform efforts enable and enhance our partners’ capacities

to deliver security within the rule of law. We will cooperate with other

international players, coordinating our work on capacity-building with the

UN and NATO in particular.

“Echoing the Sustainable Development Goals,

the EU will adopt a joined-up approach to its

humanitarian, development, migration, trade,

investment, infrastructure, education, health and

research policies, as well as improve horizontal

coherence between the EU and its Member

States. We will nurture societal resilience also by

deepening work on education, culture and youth

to foster pluralism, coexistence and respect.”

States are resilient when societies feel they are becoming better off and

have hope in the future. Echoing the Sustainable Development Goals, the

EU will adopt a joined-up approach to its humanitarian, development,

migration, trade, investment, infrastructure, education, health and research

policies, as well as improve horizontal coherence between the EU and its

Member States. We will fight poverty and inequality, widen access to public

services and social security, and champion decent work opportunities,

notably for women and youth. We will foster an enabling environment for

new economic endeavours, employment and the inclusion of marginalised

groups. Development funds should catalyse strategic investments through

public-private partnerships, driving sustainable growth, job creation, and

skills and technological transfers. We will use our trade agreements to

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

underpin sustainable development, human rights protection and rules-

based governance.

Societal resilience will be strengthened by deepening relations with civil

society, notably in its efforts to hold governments accountable. We will reach

out more to cultural organisations, religious communities, social partners

and human rights defenders, and speak out against the shrinking space

for civil society including through violations of the freedoms of speech and

association. Positive change can only be home-grown, and may take years

to materialise. Our commitment to civil society will therefore be long-term.

We will nurture societal resilience also by deepening work on education,

culture and youth to foster pluralism, coexistence and respect.

Finally, the EU will seek to enhance energy and environmental resilience.

Energy transition is one of the major challenges in our surrounding regions,

but must be properly managed to avoid fuelling social tensions. Climate

change and environmental degradation exacerbate potential conflict,

in light of their impact on desertification, land degradation, and water

and food scarcity. Mirroring security sector reform efforts, energy and

environmental sector reform policies can assist partner countries along a

path of energy transition and climate action. Through such efforts, we will

encourage energy liberalisation, the development of renewables, better

regulation and technological transfers, alongside climate change mitigation

and adaptation. We will also support governments to devise sustainable

responses to food production and the use of water and energy through

development, diplomacy and scientific cooperation.

A More Effective Migration Policy

A special focus in our work on resilience will be on origin and transit countries

of migrants and refugees. We will significantly step up our humanitarian

efforts in these countries, focusing on education, women and children.

Together with countries of origin and transit, we will develop common and

tailor-made approaches to migration featuring development, diplomacy,

mobility, legal migration, border management, readmission and return.

Through development, trust funds, preventive diplomacy and mediation we

will work with countries of origin to address and prevent the root causes

of displacement, manage migration, and fight trans-border crime. We will

support transit countries by improving reception and asylum capacities,

and by working on migrants’ education, vocational training and livelihood

opportunities. We must stem irregular flows by making returns more

effective as well as by ensuring regular channels for human mobility. This

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

“Together with countries of origin and transit,

we will develop common and tailor-made

approaches to migration featuring development,

diplomacy, mobility, legal migration, border

management, readmission and return. We will

work with our international partners to ensure

shared global responsibilities and solidarity.”

means enhancing and implementing existing legal and circular channels for

migration. It also means working on a more effective common European

asylum system which upholds the right to seek asylum by ensuring

the safe, regulated and legal arrival of refugees seeking international

protection in the EU. At the same time, we will work with our international

partners to ensure shared global responsibilities and solidarity. We will

establish more effective partnerships on migration management with UN

agencies, emerging players, regional organisations, civil society and local

communities.

3.3 An Integrated Approach to Conflicts and Crises

We increasingly observe fragile states breaking down in violent conflict.

These crises, and the unspeakable violence and human suffering to which

they give rise, threaten our shared vital interests. The EU will engage in a

practical and principled way in peacebuilding, concentrating our efforts in

surrounding regions to the east and south, while considering engagement

further afield on a case by case basis. The EU will foster human security

through an integrated approach.

All of these conflicts feature multiple dimensions – from security to gender,

from governance to the economy. Implementing a

multi-dimensional

approach through the use of all available policies and instruments aimed

at conflict prevention, management and resolution is essential. But the

scope of the ‘comprehensive approach’ will be expanded further. There

are no quick fixes to any of these conflicts. Experience in Somalia, Mali,

Afghanistan and elsewhere highlights their protracted nature. The EU

will therefore pursue a

multi-phased

approach, acting at all stages of the

conflict cycle. We will invest in prevention, resolution and stabilisation, and

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

avoid premature disengagement when a new crisis erupts elsewhere. The

EU will therefore engage further in the resolution of protracted conflicts

in the Eastern Partnership countries. None of these conflicts plays out at a

single level of governance. Conflicts such as those in Syria and Libya often

erupt locally, but the national, regional and global overlay they acquire is

what makes them so complex. The EU will therefore pursue a

multi-level

approach to conflicts acting at the local, national, regional and global levels.

Finally, none of these conflicts can be solved by the EU alone. We will pursue

multi-lateral

approach engaging all those players present in a conflict

“The EU will engage in a practical and principled

way in peacebuilding, concentrating our efforts in

surrounding regions to the east and south, while

considering engagement further afield on a case

by case basis. We will pursue a multi-level ap-

proach to conflicts acting at the local, national,

regional and global levels; a multi-lateral ap-

proach engaging all players present in a conflict

and necessary for its resolution.”

and necessary for its resolution. We will partner more systematically on

the ground with regional and international organisations, bilateral donors

and civil society. Greater cooperation will also be sought at the regional

and international levels. Sustainable peace can only be achieved through

comprehensive agreements rooted in broad, deep and durable regional and

international partnerships.

Pre-emptive Peace

It has long been known that preventing conflicts is more efficient and

effective than engaging with crises after they break out. Once a conflict

does erupt, it typically becomes ever more intractable over time. The EU

enjoys a good record on pre-emptive peacebuilding and diplomacy. We

will therefore redouble our efforts on prevention, monitoring root causes

such as human rights violations, inequality, resource stress, and climate

change – which is a threat multiplier that catalyses water and food scarcity,

pandemics and displacement.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Early warning is of little use unless it is followed by early action. This implies

regular reporting and proposals to the Council, engaging in preventive diplomacy

and mediation by mobilising EU Delegations and Special Representatives, and

deepening partnerships with civil society. We must develop a political culture

of acting sooner in response to the risk of violent conflict.

Security and Stabilisation

The EU will engage more systematically on the security dimension of these

conflicts. In full compliance with international law, European security and

defence must become better equipped to build peace, guarantee security

and protect human lives, notably civilians. The EU must be able to respond

rapidly, responsibly and decisively to crises, especially to help fight terrorism .

“European security and defence must become

better equipped to build peace, guarantee securi-

ty and protect human lives, notably civilians. The

EU must be able to respond rapidly, responsibly

and decisively to crises, especially to help fight

terrorism.”

It must be able to provide security when peace agreements are reached

and transition governments established or in the making. When they are not,

the EU should be ready to support and help consolidating local ceasefires,

paving the way for capacity building. At the same time, through a coherent

use of internal and external policies, the EU must counter the spill-over of

insecurity that may stem from such conflicts, ranging from trafficking and

smuggling to terrorism.

When the prospect of stabilisation arises, the EU must enable legitimate

institutions to rapidly deliver basic services and security to local populations,

reducing the risk of relapse into violence and allowing displaced persons to

return. We will therefore seek to bridge gaps in our response between an

end of violence and long-term recovery, and develop the dual – security and

development – nature of our engagement.

Conflict Settlement

Each conflict country will need to rebuild its own social contract between

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

the state and its citizens. The Union will support such efforts, fostering

inclusive governance at all levels. When the “centre” is broken, acting only

top-down has limited impact. An inclusive political settlement requires

action at all levels. Through CSDP, development, and dedicated financial

instruments, we will blend top-down and bottom-up efforts fostering the

building blocks of sustainable statehood rooted in local agency. Working

at the local level – for instance with local authorities and municipalities

– can help basic services be delivered to citizens, and allows for deeper

engagement with rooted civil society. Working in this direction will also

improve our local knowledge, helping us distinguish between those groups

we will talk to without supporting, and those we will actively support as

champions of human security and reconciliation.

The EU will also foster inclusive governance at all levels through mediation

and facilitation. At the same time, we will develop more creative approaches

to diplomacy. This also means promoting the role of women in peace

efforts – from implementing the UNSC Resolution on Women, Peace and

Security to improving the EU’s internal gender balance. It entails having

more systematic recourse to cultural, inter-faith, scientific and economic

diplomacy in conflict settings.

Political Economy of Peace

The EU will foster the space in which the legitimate economy can take

root and consolidate. In the midst of violent conflict, this means ensuring

humanitarian aid access to allow basic goods and services to be provided.

“A political economy of peace calls for greater

synergies between humanitarian and develop-

ment assistance, channelling our support to

provide health, education, protection, basic goods

and legitimate employment.”

It also means working to break the political economy of war and to create

possibilities for legitimate sustenance to exist. This calls for greater

synergies between humanitarian and development assistance, channelling

our support to provide health, education, protection, basic goods and

legitimate employment. When the prospects for stabilisation arise, trade and

development – working in synergy – can underpin long-term peacebuilding.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Restrictive measures, coupled with diplomacy, are key tools to bring

about peaceful change. They can play a pivotal role in deterrence, conflict

prevention and resolution. Smart sanctions, in compliance with international

and EU law, will be carefully calibrated and monitored to support the

legitimate economy and avoid harming local societies. To fight the criminal

war economy, the EU must also modernise its policy on export control for

dual-use goods, and fight the illegal trafficking of cultural goods and natural

resources.

3.4 Cooperative Regional Orders

In a world caught between global pressures and local pushback, regional

dynamics come to the fore. As complex webs of power, interaction and

identity, regions represent critical spaces of governance in a de-centred

world. Voluntary forms of regional governance offer states and peoples the

opportunity to better manage security concerns, reap the economic gains

of globalisation, express more fully cultures and identities, and project

influence in world affairs. This is a fundamental rationale for the EU’s own

“This cooperation is a fundamental rationale for

the EU’s own peace and development in the 21

century. This is why we will promote and support

cooperative regional orders worldwide, including

in the most divided areas.”

peace and development in the 21

century. This is why we will promote

and support cooperative regional orders worldwide, including in the most

divided areas. Regional orders do not take a single form. Where possible and

when in line with our interests, the EU will support regional organisations.

We will not strive to export our model, but rather seek reciprocal inspiration

from different regional experiences. Cooperative regional orders, however,

are not created only by organisations. They comprise a mix of bilateral, sub-

regional, regional and inter-regional relations. They also feature the role

of global players interlinked with regionally-owned cooperative efforts.

Taken together these can address transnational conflicts, challenges and

opportunities. In different world regions, the EU will be driven by specific

goals. Across all regions, we will invest in cooperative relationships to spur

shared global responsibilities.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

The European Security Order

The sovereignty, independence and territorial integrity of states, the

inviolability of borders and the peaceful settlement of disputes are key

elements of the European security order. These principles apply to all

states, both within and beyond the EU’s borders.

However, peace and stability in Europe are no longer a given. Russia’s

violation of international law and the destabilisation of Ukraine, on top of

protracted conflicts in the wider Black Sea region, have challenged the

European security order at its core. The EU will stand united in upholding

international law, democracy, human rights, cooperation and each country’s

right to choose its future freely.

Managing the relationship with Russia represents a key strategic challenge.

A consistent and united approach must remain the cornerstone of EU policy

towards Russia. Substantial changes in relations between the EU and Russia

are premised upon full respect for international law and the principles

underpinning the European security order, including the Helsinki Final Act

and the Paris Charter. We will not recognise Russia’s illegal annexation of

Crimea nor accept the destabilisation of eastern Ukraine. We will strengthen

the EU, enhance the resilience of our eastern neighbours, and uphold their

right to determine freely their approach towards the EU. At the same time,

the EU and Russia are interdependent. We will therefore engage Russia to

discuss disagreements and cooperate if and when our interests overlap.

“Substantial changes in relations between the

EU and Russia are premised upon full respect

for international law. At the same time, we will

engage Russia to discuss disagreements and

cooperate if and when our interests overlap.”

In addition to those foreign policy issues on which we currently cooperate,

selective engagement could take place over matters of European interest

too, including climate, the Arctic, maritime security, education, research and

cross-border cooperation. Engagement should also include deeper societal

ties through facilitated travel for students, civil society and business.

Spanning the region, the EU will foster cooperation with the Council of

Europe and the Organisation for Security and Cooperation in Europe. The

OSCE, as a Europe-wide organisation stretching into Central Asia with a

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

transatlantic link, lies at the heart of the European security order. The EU

will strengthen its contribution within and its cooperation with the OSCE as

a pillar of European security.

A Peaceful and Prosperous Mediterranean, Middle East and Africa

The Mediterranean, Middle East and parts of sub-Saharan Africa are in

turmoil, the outcome of which will likely only become clear decades from

now. Solving conflicts and promoting development and human rights in the

south is essential to addressing the threat of terrorism, the challenges of

demography, migration and climate change, and to seizing the opportunity

of shared prosperity. The EU will intensify its support for and cooperation

“We will foster dialogue and negotiation over

regional conflicts such as those in Syria and Libya.

On the Palestinian-Israeli conflict, the EU will

work closely with the Quartet, the Arab League

and all key stakeholders to preserve the pros-

pect of a viable two-state solution based on 1967

lines with equivalent land swaps, and to recreate

the conditions for meaningful negotiations.”

with regional and sub-regional organisations in Africa and the Middle

East, as well as functional cooperative formats in the region. However,

regional organisations do not address all relevant dynamics, and some

reflect existing cleavages. We will therefore also act flexibly to help bridge

divides and support regional players in delivering concrete results. This

will be achieved by mobilising our bilateral and multilateral policies and

frameworks as well as by partnering with civil societies in the region.

The EU will follow five lines of action. First, in the Maghreb and the Middle

East, the EU will support functional multilateral cooperation. We will back

practical cooperation, including through the Union for the Mediterranean,

on issues such as border security, trafficking, counter-terrorism, non-

proliferation, water and food security, energy and climate, infrastructure

and disaster management. We will foster dialogue and negotiation over

regional conflicts such as those in Syria and Libya. On the Palestinian-

Israeli conflict, the EU will work closely with the Quartet, the Arab League

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

and all key stakeholders to preserve the prospect of a viable two-state

solution based on 1967 lines with equivalent land swaps, and to recreate

the conditions for meaningful negotiations. The EU will also promote full

compliance with European and international law in deepening cooperation

with Israel and the Palestinian Authority.

Second, the EU will deepen sectoral cooperation with Turkey, while striving

to anchor Turkish democracy in line with its accession criteria, including

the normalisation of relations with Cyprus. The EU will therefore pursue

the accession process – sticking to strict and fair accession conditionality

– while coherently engaging in dialogue on counter-terrorism, regional

security and refugees. We will also work on a modernised customs union

and visa liberalisation, and cooperate further with Turkey in the fields of

education, energy and transport.

Third, the EU will pursue balanced engagement in the Gulf. It will continue

to cooperate with the Gulf Cooperation Council (GCC) and individual Gulf

countries. Building on the Iran nuclear deal and its implementation, it will

also gradually engage Iran on areas such as trade, research, environment,

energy, anti-trafficking, migration and societal exchanges. It will deepen

dialogue with Iran and GCC countries on regional conflicts, human rights

and counter-terrorism, seeking to prevent contagion of existing crises and

foster the space for cooperation and diplomacy .

“We will deepen dialogue with Iran and GCC

countries on regional conflicts, human rights and

counter-terrorism, seeking to prevent contagion

of existing crises and foster the space for

cooperation and diplomacy. ”

Fourth, in light of the growing interconnections between North and sub-

Saharan Africa, as well as between the Horn of Africa and the Middle East,

the EU will support cooperation across these sub-regions. This includes

fostering triangular relationships across the Red Sea between Europe,

the Horn and the Gulf to face shared security challenges and economic

opportunities. It means systematically addressing cross-border dynamics

in North and West Africa, the Sahel and Lake Chad regions through closer

links with the African Union, the Economic Community of Western African

States (ECOWAS) and the G5 Sahel.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Finally, we will invest in African peace and development as an investment

in our own security and prosperity. We will intensify cooperation with and

support for the African Union, as well as ECOWAS, the Inter-Governmental

Authority on Development in eastern Africa, and the East African Community,

among others. We must enhance our efforts to stimulate growth and jobs in

Africa. The Economic Partnership Agreements can spur African integration

and mobility, and encourage Africa’s full and equitable participation in

global value chains. A quantum leap in European investment in Africa is

“We will invest in African peace and development

as an investment in our own security and

prosperity. We must enhance our efforts to

stimulate growth and jobs in Africa.”

also needed to support sustainable development. We will build stronger

links between our trade, development and security policies in Africa, and

blend development efforts with work on migration, health, education,

energy and climate, science and technology, notably to improve food

security. We will continue to support peace and security efforts in Africa,

and assist African organisations’ work on conflict prevention, counter-

terrorism and organised crime, migration and border management. We will

do so through diplomacy, CSDP and development, as well as trust funds to

back up regional strategies.

A Closer Atlantic

The EU will invest further in strong bonds across the Atlantic, both north

and south. A solid transatlantic partnership through NATO and with the

United States and Canada helps us strengthen resilience, address conflicts,

and contribute to effective global governance. NATO, for its members, has

been the bedrock of Euro-Atlantic security for almost 70 years. It remains

“The EU will invest further in strong bonds

across the Atlantic, both north and south. A solid

transatlantic partnership helps us strengthen

resilience, address conflicts, and contribute to

effective global governance.”

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

the strongest and most effective military alliance in the world. The EU will

deepen its partnership with NATO through coordinated defence capability

development, parallel and synchronised exercises, and mutually reinforcing

actions to build the capacities of our partners, counter hybrid and cyber

threats, and promote maritime security.

With the US, the EU will strive for a Transatlantic Trade and Investment

Partnership (TTIP). Like the Comprehensive Economic and Trade Agreement

(CETA) with Canada, TTIP demonstrates the transatlantic commitment to

shared values and signals our willingness to pursue an ambitious rules-

based trade agenda. On the broader security agenda, the US will continue

to be our core partner. The EU will deepen cooperation with the US and

Canada on crisis management, counter-terrorism, cyber, migration, energy

and climate action.

In the wider Atlantic space, the Union will expand cooperation and build

stronger partnerships with Latin America and the Caribbean, grounded

on shared values and interests. It will develop multilateral ties with the

Community of Latin American and Caribbean States (CELAC) and with

different regional groupings according to their competitive advantage.

We will step up political dialogue and cooperation on migration, maritime

security and ocean life protection, climate change and energy, disarmament,

non-proliferation and arms control, and countering organised crime and

terrorism. We will pursue a free trade agreement with Mercosur, build on

the Political Dialogue and Cooperation Agreement with Cuba, and invest

in deeper socio-economic connections with Latin American and Caribbean

countries through visa facilitation, student exchanges, twinning, research

cooperation and technical projects. We will also actively support the

negotiation and implementation of peace agreements in the region, as we

are doing in Colombia.

A Connected Asia

There is a direct connection between European prosperity and Asian

security. In light of the economic weight that Asia represents for the EU

– and vice versa – peace and stability in Asia are a prerequisite for our

prosperity. We will deepen economic diplomacy and scale up our security

role in Asia.

The EU will engage China based on respect for rule of law, both

domestically and internationally. We will pursue a coherent approach

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

to China’s connectivity drives westwards by maximising the potential

of the EU-China Connectivity Platform, and the ASEM and EU-ASEAN

frameworks. The EU will also deepen trade and investment with China,

seeking a level playing field, appropriate intellectual property rights

“The EU will deepen trade and investment with

China, seeking a level playing field, intellectual

property rights protection, greater cooperation

on high-end technology, dialogue on economic

reform, human rights and climate action.”

protection, greater cooperation on high-end technology, and dialogue

on economic reform, human rights and climate action. In parallel, the

EU will deepen its economic diplomacy in the region, working towards

ambitious free trade agreements with strategic partners such as Japan

and India, as well as ASEAN member states, with the goal of an eventual

EU-ASEAN agreement.

We will also develop a more politically rounded approach to Asia, seeking

to make greater practical contributions to Asian security. We will expand

our partnerships, including on security, with Japan, the Republic of

Korea, Indonesia and others. We will continue to support state-building

and reconciliation processes in Afghanistan together with our regional

and international partners. We will promote non-proliferation in the

Korean peninsula. In East and Southeast Asia, we will uphold freedom

of navigation, stand firm on the respect for international law, including

the Law of the Sea and its arbitration procedures, and encourage the

peaceful settlement of maritime disputes. We will help build maritime

capacities and support an ASEAN-led regional security architecture. In

Central and South Asia, we will deepen cooperation on counter-terrorism,

anti-trafficking and migration, as well as enhance transport, trade and

energy connectivity. Across the Indo Pacific and East Asian regions, the

EU will promote human rights and support democratic transitions such as

in Myanmar/Burma.

A Cooperative Arctic

With three Member States and two European Economic Area members

being Arctic states, the EU has a strategic interest in the Arctic remaining

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

a low-tension area, with ongoing cooperation ensured by the Arctic

Council, a well-functioning legal framework, and solid political and

security cooperation. The EU will contribute to this through enhanced

work on climate action and environmental research, sustainable

development, telecommunications, and search & rescue, as well as

concrete cooperation with Arctic states, institutions, indigenous peoples

and local communities.

3.5 Global Governance for the 21

Century

Without global norms and the means to enforce them, peace and security,

prosperity and democracy – our vital interests – are at risk. Guided by the

values on which it is founded, the EU is committed to a global order based

on international law, including the principles of the UN Charter, which

ensure peace, human rights, sustainable development and lasting access

“The EU is committed to a global order based

on international law, including the principles of

the UN Charter. This commitment translates into

an aspiration to transform rather than simply

preserve the existing system.”

to the global commons. This commitment translates into an aspiration to

transform rather than simply preserve the existing system. The EU will

strive for a strong UN as the bedrock of the multilateral rules-based order,

and develop globally coordinated responses with international and regional

organisations, states and non-state actors.

Reforming

A commitment to global governance must translate in the determination

to reform the UN, including the Security Council, and the International

Financial Institutions (IFIs). Resisting change risks triggering the erosion

of such institutions and the emergence of alternative groupings to the

detriment of all EU Member States. The EU will stand up for the principles

of accountability, representativeness, responsibility, effectiveness and

transparency. The practical meaning of such principles will be fleshed out

case-by-case. We will continue to call upon members of the UN Security

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

Council not to vote against credible draft resolutions on timely and decisive

action to prevent or end mass atrocities. Across multilateral fora – and in

particular the UN, the IFIs and the international justice organisations – the

EU will strengthen its voice and acquire greater visibility and cohesion. We

will work towards an increasingly unified representation of the euro area in

the International Monetary Fund.

Investing

Believing in the UN means investing in it, notably in its peacekeeping,

mediation, peacebuilding and humanitarian functions. The EU and its

Member States, as already the first contributor to UN humanitarian

agencies, will invest even further in their work. CSDP could assist further

and complement UN peacekeeping through bridging, stabilisation or other

operations. The EU will also enhance synergy with UN peacebuilding efforts,

through greater coordination in the planning, evolution and withdrawal of

CSDP capacity-building missions in fragile settings.

Implementing

The EU will lead by example by implementing its commitments on

sustainable development and climate change. It will increase climate

financing, drive climate mainstreaming in multilateral fora, raise the

ambition for review foreseen in the Paris agreement, and work for clean

energy cost reductions. The SDGs will inform the post-Cotonou partnership

“The EU will lead by example by implementing its

commitments on sustainable development and

climate change.”

and drive reform in development policy, including the EU Consensus on

Development. Moreover, implementing the SDGs will require change across

all internal and external policies, galvanising public-private partnerships,

and leveraging the experience of the European Investment Bank (EIB) in

providing technical assistance and building capacities in developing and

middle income countries.

Deepening

As the world’s largest economy, the EU is a prime mover in global trade and

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

investment, areas in which rules can be deepened further. Our prosperity

hinges on an open and rules-based economic system with a true level

playing field, which our economic diplomacy will further promote. We

will pursue comprehensive free trade agreements with the US, Japan,

Mercosur, India, ASEAN and others as building blocks of global free trade.

Ambitious agreements built on mutual benefits such as TTIP and CETA can

promote international regulatory standards, consumer protection, as well

as labour, environmental, health and safety norms. New generation trade

agreements which include services, the digital economy, energy and raw

materials can reduce legal fragmentation and barriers, and regulate access

to natural resources. The EU will ensure that all its trade agreements are

“Our prosperity hinges on an open and rules-

based economic system with a true level playing

field, which our economic diplomacy will further

promote.”

pursued in a manner that supports returning the World Trade Organisation

(WTO) to the centre of global negotiations. Connected to the EU’s interest

in an open and fair economic system is the need for global maritime growth

and security, ensuring open and protected ocean and sea routes critical

for trade and access to natural resources. The EU will contribute to global

maritime security, building on its experience in the Indian Ocean and the

Mediterranean, and exploring possibilities in the Gulf of Guinea, the South

China Sea and the Straits of Malacca. As a global maritime security provider,

the EU will seek to further universalise and implement the UN Convention

on the Law of the Sea, including its dispute settlement mechanisms. We

will also promote the conservation and sustainable use of marine resources

and biological diversity and the growth of the blue economy by working to

fill legal gaps and enhancing ocean knowledge and awareness.

Widening

We will seek to widen the reach of international norms, regimes and

institutions. The proliferation of weapons of mass destruction and their

delivery systems remains a growing threat to Europe and the wider world.

The EU will strongly support the expanding membership, universalisation,

full implementation and enforcement of multilateral disarmament, non-

proliferation and arms control treaties and regimes. We will use every

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

“The EU will strongly support the expanding

membership, universalisation, full implementa-

tion and enforcement of multilateral disarma-

ment, non-proliferation and arms control trea-

ties and regimes. We will use every means at

our disposal to assist in resolving proliferation

crises, as we successfully did on the Iranian

nuclear programme.”

means at our disposal to assist in resolving proliferation crises, as we

successfully did on the Iranian nuclear programme. The EU will actively

participate in export control regimes, strengthen common rules governing

Member States’ export policies of military – including dual-use – equipment

and technologies, and support export control authorities in third countries

and technical bodies that sustain arms control regimes. The EU will also

promote the responsibility to protect, international humanitarian law,

international human rights law and international criminal law. We will

support the UN Human Rights Council and encourage the widest acceptance

of the jurisdiction of the International Criminal Court and the International

Court of Justice.

Developing

At the frontiers of global affairs, rules must be further developed to ensure

security and sustainable access to the global commons. The EU will be a

forward-looking cyber player, protecting our critical assets and values in the

digital world, notably by promoting a free and secure global Internet. We

will engage in cyber diplomacy and capacity building with our partners, and

seek agreements on responsible state behaviour in cyberspace based on

existing international law. We will support multilateral digital governance

and a global cooperation framework on cybersecurity, respecting the free

flow of information. In space, we will promote the autonomy and security

of our space-based services and work on principles for responsible space

behaviour, which could lead to the adoption of an international voluntary

code of conduct. On energy, we will encourage multilateral mechanisms

aimed at ensuring sustainable energy patterns both by developing our

own sustainable policies and by deepening dialogue with major energy

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

consumers and producers. On health, we will work for more effective

prevention, detection and responses to global pandemics. Global rules are

also necessary in fields such as biotechnology, artificial intelligence, robotics

and remotely piloted systems, to avoid the related security risks and reap

their economic benefits. On all such issues, the EU will promote exchanges

with relevant multilateral fora to help spearhead the development of rules

and build partnerships at the frontiers of global affairs.

Partnering

The EU will lead by example on global governance. But it cannot deliver

alone. It will act as an agenda-shaper, a connector, coordinator and

facilitator within a networked web of players. It will partner with states

and organisations, but also with the private sector and civil society. On the

vast majority of global governance issues, we will work with the UN as the

framework of the multilateral system and a core partner for the Union,

“The EU will invest in pivotal non-state actors. We

will sharpen the means to protect and empower

civic actors, notably human rights defenders,

sustaining a vibrant civil society worldwide.”

with other core partners such as the US, with regional organisations, and

with like-minded and strategic partners in Asia, Africa and the Americas.

The EU will also invest in pivotal non-state actors, particularly within civil

society. In spite of increasing repression, global civil society is growing and

fostering new types of activism. The EU will sharpen the means to protect

and empower civic actors, notably human rights defenders, sustaining a

vibrant civil society worldwide.

The format to deliver effective global governance may vary from case to

case. On cyber, global governance hinges on a progressive alliance between

states, international organisations, industry, civil society and technical

experts. On maritime multilateralism, the EU will work with the UN and

its specialised agencies, NATO, our strategic partners, and ASEAN. On

humanitarian action, sustainable development and climate change, the EU

will partner with the UN and the G20, as well as new donors, civil society and

the private sector. On counterterrorism, we will deepen dialogue with the

UN, while building broad partnerships with states, regional organisations,

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

civil society and the private sector on issues such as countering violent

extremism and terrorist financing.

4. From Vision to Action

We will pursue our priorities by mobilising our unparalleled networks,

our economic weight and all the tools at our disposal in a coherent and

coordinated way. To fulfil our goals, however, we must collectively invest in

a credible, responsive and joined-up Union.

A Credible Union

To engage responsibly with the world, credibility is essential. The EU’s

credibility hinges on our unity, on our many achievements, our enduring

power of attraction, the effectiveness and consistency of our policies,

and adherence to our values. A stronger Union requires investing in all

dimensions of foreign policy, from research and climate to infrastructure

and mobility, from trade and sanctions to diplomacy and development.

“To engage responsibly with the world, credibility

is essential. In this fragile world, soft power is

not enough.”

In this fragile world, soft power is not enough: we must enhance our

credibility in security and defence. To respond to external crises, build our

partners’ capacities and protect Europe, Member States must channel a

sufficient level of expenditure to defence, make the most efficient use of

“A sectoral strategy, to be agreed by the Council,

should further specify the civil-military level of

ambition, tasks, requirements and capability

priorities stemming from this Strategy.”

resources, and meet the collective commitment of 20% of defence budget

spending devoted to the procurement of equipment and Research &

Technology. Capabilities should be developed with maximum interoperability

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

and commonality, and be made available where possible in support of

EU, NATO, UN and other multinational efforts. While a sectoral strategy,

to be agreed by the Council, should further specify the civil-military level

of ambition, tasks, requirements and capability priorities stemming from

this Strategy, some such areas can already be highlighted in line with

commitments made by the European Council.

First, European security hinges on better and shared assessments of internal

and external threats and challenges. Europeans must improve the monitoring

and control of flows which have security implications. This requires investing

in Intelligence, Surveillance and Reconnaissance, including Remotely Piloted

Aircraft Systems, satellite communications, and autonomous access to space

and permanent earth observation. As regards counter-terrorism, Member

States must implement legislation concerning explosives, firearms and

Passenger Name Records (PNRs), as well as invest in detection capabilities

and the cross-border tracing of weapons. Second, Europeans must invest in

digital capabilities to secure data, networks and critical infrastructure within

the European digital space. We must develop capabilities in trusted digital

services and products and in cyber technologies to enhance our resilience. We

will encourage greater investments and skills across Member States through

cooperative research and development, training, exercises and procurement

programmes. Third, regarding high-end military capabilities, Member States

need all major equipment to respond to external crises and keep Europe safe.

This means having full-spectrum land, air, space and maritime capabilities,

including strategic enablers.

To acquire and maintain many of these capabilities, Member States will need

to move towards defence cooperation as the norm. Member States remain

sovereign in their defence decisions: nevertheless, nationally-oriented

“To acquire and maintain many of these

capabilities, Member States will need to move

towards defence cooperation as the norm. The

voluntary approach to defence cooperation must

translate into real commitment. A sustainable,

innovative and competitive European defence

industry is essential for Europe’s strategic

autonomy and for a credible CSDP.”

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

defence programmes are insufficient to address capability shortfalls.

We remain far from achieving our collective benchmarks, including 35%

of total equipment spending in collaborative procurement. The voluntary

approach to defence cooperation must translate into real commitment. An

annual coordinated review process at EU level to discuss Member States’

military spending plans could instil greater coherence in defence planning

and capability development. This should take place in full coherence with

NATO’s defence planning process. The European Defence Agency (EDA)

has a key role to play by strengthening the Capability Development Plan,

acting as an interface between Member States and the Commission, and

assisting Member States to develop the capabilities stemming from the

political goals set out in this Strategy.

Defence cooperation between Member States will be systematically

encouraged. Regular assessments of EDA benchmarks can create positive

peer pressure among Member States. Crucially, EU funding for defence

research and technology, reflected first in the mid-term review of the

Multiannual Financial Framework, and then in a fully-fledged programme

in the next budget cycle, will prove instrumental in developing the defence

capabilities Europe needs.

A sustainable, innovative and competitive European defence industry is

essential for Europe’s strategic autonomy and for a credible CSDP. It can

also stimulate growth and jobs. A solid European defence, technological

and industrial base needs a fair, functioning and transparent internal

market, security of supply, and a structured dialogue with defence relevant

industries. Furthermore, ensuring participation of small and medium sized

enterprises (SMEs) in the defence sector can improve innovation and

investment in the military technologies of tomorrow.

A Responsive Union

We live in a world of predictable unpredictability. We will therefore equip

ourselves to respond more rapidly and flexibly to the unknown lying ahead. A

more responsive Union requires change. We need it in diplomacy, CSDP and

development, as well as investment in the knowledge base underpinning

our external action.

First, our diplomatic action must be fully grounded in the Lisbon Treaty. EU

foreign policy is not a solo performance: it is an orchestra which plays from

the same score. Our diversity is a tremendous asset provided we stand

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

united and work in a coordinated way. Cooperation between Member States

can strengthen our engagement in the world. A Member State or a group

of Member States who are willing and able to contribute may be invited by

the High Representative (HR), under the responsibility of the Council, to

implement agreed positions of the Council. The HR shall keep the Council

fully informed and shall ensure consistency with agreed EU policies.

“EU foreign policy is not a solo performance: it is

an orchestra which plays from the same score.

Our diversity is a tremendous asset provided we

stand united and work in a coordinated way.”

Second, CSDP must become more rapid and effective. Europeans must be

ready to rapidly respond to crises in full compliance with the UN Charter. This

requires Member States to enhance the deployability and interoperability of

their forces through training and exercises. We must develop the capacity

for rapid response also by tackling the procedural, financial and political

obstacles which prevent the deployment of the Battlegroups, hamper force

generation and reduce the effectiveness of CSDP military operations. At

“We must develop the capacity for rapid

response also by tackling the procedural,

financial and political obstacles which prevent

the deployment of the Battlegroups. Enhanced

cooperation between Member States should

be explored in this domain. If successful and

repeated over time, this might lead to a more

structured form of cooperation, making full use

of the Lisbon Treaty’s potential.”

the same time, we must further develop our civilian missions – a trademark

of CSDP – by encouraging force generation, speeding up deployment, and

providing adequate training based on EU-wide curricula. A responsive CSDP

also requires streamlining our institutional structure. We must strengthen

operational planning and conduct structures, and build closer connections

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

between civilian and military structures and missions, bearing in mind that

these may be deployed in the same theatre. Enhanced cooperation between

Member States should be explored in this domain. If successful and repeated

over time, this might lead to a more structured form of cooperation, making

full use of the Lisbon Treaty’s potential.

Third, development policy will become more flexible and aligned with our

strategic priorities. We reaffirm our collective commitment to achieve

the 0.7% ODA/GNI target in line with DAC principles. Development funds

must be stable, but lengthy programming cycles limit the timely use of EU

support, and can reduce our visibility and impact. The availability of limited

sums for activities on the ground, notably for conflict prevention and civil

“Development policy will become more flexible

and aligned with our strategic priorities.”

society support, should be made more flexible. Across the Commission,

flexibility will be built into our financial instruments, allowing for the use of

uncommitted funds in any given year to be carried on to subsequent years

to respond to crises. This will also help fill the gaps between financial

instruments and budgetary headings. In parallel, the time has come to

consider reducing the number of instruments to enhance our coherence

and flexibility, while raising the overall amount dedicated to development.

Responsive external action must be underpinned by a strong knowledge

base. Targeted approaches to resilience, conflict prevention and resolution

require deeper situational awareness. The EU will invest in the EEAS and

coordinate better across institutions and Member States. Putting our diverse

national cultures at the service of our shared interests is a challenge, but

the pool of talent available to us is unrivalled. To make the most of this, we

will invest in people, particularly those on the ground. This means equipping

our delegations with the necessary expertise, including on sectoral issues

and in local languages, valuing experience in and of a region, beefing up the

political sections of delegations, and encouraging operational staff to use

their expertise more politically. It means strengthening the participation

of women in foreign policy-making. It means investing in the EU Conflict

Early Warning System, and making all our external engagement conflict-

and rights-sensitive. We will also pursue greater information sharing

and joint reporting, analysis and response planning between Member

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

State embassies, EU Delegations, Commission services, EU Special

Representatives and CSDP missions. We will encourage cross-fertilisation

between us and regional and international organisations, civil society,

academia, think tanks and the private sector. We will do so both in traditional

ways – through dialogue, cooperation and support – and through innovative

formats such as exchanges, embedded personnel and joint facilities,

harnessing knowledge and creativity in our system.

A Joined-up Union

Finally, our external action will become more joined-up. Over the years,

important steps have been taken to this effect: these include institutional

innovations, such as the Lisbon Treaty’s creation of the double-hatted High

Representative and Vice President of the European Commission (HRVP)

and the European External Action Service (EEAS). A strong EEAS working

together with other EU institutions lies at the heart of a coherent EU role in

the world. Efforts at coherence also include policy innovations such as the

“comprehensive approach to conflicts and crises” and joint programming in

development, which must be further enhanced. New fields of our joined-up

external action include energy diplomacy, cultural diplomacy and economic

diplomacy.

“Joint programming in development must be

further enhanced. New fields of our joined-up ex-

ternal action include energy diplomacy, cultural

diplomacy and economic diplomacy. A more

prosperous Union calls for greater coordination

between the EU and Member States, the EIB and

the private sector. We must become more joined-

up across internal and external policies.”

A more prosperous Union requires economic priorities to be set in relations

with all countries and regions, and integrated into the external dimensions of

all internal policies. A more prosperous Union calls for greater coordination

between the EU and Member States, the EIB and the private sector. The

Sustainable Development Goals also represent an opportunity to catalyse

such coherence. Implementing them will generate coherence between

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

the internal and external dimensions of our policies and across financial

instruments. It allows us to develop new ways to blend grants, loans and

private-public partnerships. The SDGs also encourage us to expand and

apply the principle of policy coherence for development to other policy

areas, and encourage joint analysis and engagement across Commission

services, institutions and Member States.

We must become more joined-up across internal and external policies. The

migration phenomenon, for example, requires a balanced and human rights-

compliant policy mix addressing the management of the flows and the

structural causes. This means overcoming the fragmentation of external

policies relevant to migration. In particular, we will develop stronger links

between humanitarian and development efforts through joint risk analysis,

and multiannual programming and financing. We will also make different

external policies and instruments migration-sensitive – from diplomacy

and CSDP to development and climate – and ensure their coherence with

internal ones regarding border management, homeland security, asylum,

employment, culture and education.

In security terms, terrorism, hybrid threats and organised crime know

no borders. This calls for tighter institutional links between our external

action and the internal area of freedom, security and justice. Closer ties

will be fostered through joint Council meetings and joint task forces

between the EEAS and the Commission. Defence policy also needs to

be better linked to policies covering the internal market, industry and

space. Member State efforts should also be more joined-up: cooperation

between our law enforcement, judicial and intelligence services must be

strengthened. We must use the full potential of Europol and Eurojust, and

provide greater support for the EU Intelligence Centre. We must feed

and coordinate intelligence extracted from European databases, and put

ICT – including big data analysis – at the service of deeper situational

awareness. Our citizens need better protection also in third countries

through joint contingency plans and crisis response exercises between

Member States.

We must become more joined-up in our security and development policies.

CSDP capacity building missions must be coordinated with security sector

and rule of law work by the Commission. Capacity Building for Security and

Development can play a key role in empowering and enabling our partners

to prevent and respond to crises, and will need to be supported financially

by the EU. Our peace policy must also ensure a smoother transition from

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

short-term crisis management to long-term peacebuilding to avoid gaps

along the conflict cycle. Long-term work on pre-emptive peace, resilience

and human rights must be tied to crisis response through humanitarian aid,

CSDP, sanctions and diplomacy.

Finally, we will systematically mainstream human rights and gender issues

across policy sectors and institutions, as well as foster closer coordination

regarding digital matters. Greater awareness and expertise on such issues

is needed within the EEAS and the Commission. Better coordination between

institutions would also add consistency and spread best practices, helping

us build a stronger Union and a more resilient, peaceful and sustainable

world.

The Way Ahead

This Strategy is underpinned by the vision of, and ambition for, a stronger

Union, willing and able to make a positive difference to its citizens and in the

world. We must now swiftly translate this into action. First, we will revise

existing sectoral strategies, as well as devise and implement new thematic

or geographic strategies in line with the political priorities of this Strategy.

Such work must begin with clear procedures and timeframes agreed

promptly by all relevant players. Second, the EU Global Strategy itself will

require periodic reviewing in consultation with the Council, the Commission

and the European Parliament. On a yearly basis we will reflect on the state

“We must now swiftly translate this vision into

action.”

of play of the Strategy, pointing out where further implementation must

be sought. Finally, a new process of strategic reflection will be launched

whenever the EU and its Member States deem it necessary to enable the

Union to navigate effectively our times. Our citizens deserve a true Union,

which promotes our shared interests by engaging responsibly and in

partnership with others.

European Union Global Strategy

Acknowledgements

All EU Member States:

Foreign Ministers

Defense Ministers

Development Ministers

Secretaries General

COREPER

PSC

National Points of Contact

Political Directors

Defence Policy Directors

Security Directors

EUMC

European Commission:

College

Commissioners’ Group on External Action

Informal Task Force

EPSC

European Parliament

EU Member States’ National Parliaments

Foreign Affairs and Defence Committees

InterParliamentary Conference

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

European Union Institute for Security Studies (EUISS)

European Economic and Social Committee (EESC)

European Investment Bank (EIB)

Adelphi

Amnesty International

Aspen Institute Italia

Barcelona Center for International Affairs (CIDOB)

Budapest Centre for Genocide and Atrocities Prevention

Bulgarian Diplomatic Institute

BUSINESSEUROPE

Carnegie Europe

Carnegie Washington

Central European Policy Institute (CEPI)

Central European University

Center for European Perspective Friedrich-Ebert-Stiftung

Center for European Policy Studies (CEPS)

Commission of the Bishops’ Conference of the European Community

(COMECE)

Compagnia di S. Paolo

CONCORD

Council for Security Cooperation in Asia Pacific (CSCAP-EU)

Crisis Management Initiative (CMI)

Danish Institute for International Studies (DIIS)

Egmont

Elcano Royal Institute

Erasmus and Erasmus Mundus Alumni

European Centre for Development Policy Management (ECPDM)

European Council on Foreign Relations (ECFR)

European Leadership Network (ELN)

European Peacebuilding Office (EPLO)

European Policy Centre (EPC)

European Security and Defence College (ESDC)

European Think Tanks Group (ETTG)

European Stability Initiative (ESI)

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

European Values

EUROPEUM Institute for European Policy

Finnish Institute of International Affairs (FIIA)

Friends of Europe

Hellenic Foundation for European and Foreign Policy (ELIAMEP)

International Centre for Defence and Security (ICDS)

Institut du Développement Durable et des Relations Internationales (ID-

DRI)

Institut Français des Relations Internationales (IFRI)

Institute of International and European Affairs (IIEA)

Institute for Development and International Relations (IRMO)

Institute for Political Science and International Relations (ISPRI)

Institute of International Relations (IIR)

International Trade Unions Confederation (ITUC)

Istituto Affari Internazionali (IAI)

Italo-Latin America Institute (IILA)

Jean Monnet Community

Konrad Adenauer Stiftung

Latvian Institute of International Relations

London School of Economics (LSE)

National Defence Institute (IDN)

New Strategy Center (NSC)

NGO Voice

Norwegian Institute of International Affairs (NUPI)

Open Society European Policy Institute (OSEPI)

Polish Institute of International Affairs (PISM)

Stiftung Wissenschaft und Politik (SWP)

Swedish Institute for International Affairs (UI)

The Diplomatic Academy of the University of Nicosia

The German Marshall Fund (GMF)

The Hague Institute for Global Justice

Transparency International

University of Malta

Special thanks to our partners that have contributed with initiatives and

ideas: Brazil, Georgia, Japan, Norway, US.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

European Union Global Strategy

This Strategy wouldn’t have been possible without the daily work of the

European External Action Service (EEAS), and in particular the Strategic

Planning Division, and the tireless dedication and inspiring thinking of

Nathalie Tocci.

URU, Alm.del - 2015-16 - Bilag 320: Brev fra Federica Mogherini om den globale strategi for EU's udenrigs- og sikkerhedspolitik

http://europa.eu/globalstrategy/en