国际事务研究院-非盟-欧盟和平与安全关系(英)-2021.11-19正式版.docx
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1、POLICYBRIEFOctober2021FEPSFOUNDATIONFOREUROPEANPROGRESSIVESTUDiESAUTHORBERNARDO VENTURIDirector and Co-Founder of the Agency for Peacebuilding (AP), IAI Research AssociateAU-EURELATIONSONPEACEANDSECURITYABSTRACTPeaceandsecurity(P&S)isakeyComPonenWaeferelationsbetweentheAfricanUnionandthe甲Union,andis
2、likelytocontinuetoplayacentrathefuture.Yet,somesignificantchangesaretheroleplayedbytheAfricanUnionduetothetheEuropeanPeaceFund.Againstthisbackdrc三paperaimstoanalysethe,stateoftheart”ofAU-WrelationsonpeaceandsecurityandtoconsideritsQ.trajectories.Inthisframework,itanalysessomekeylessonslearnedfromAU-
3、EUcooperationonpeaceansecurityfromthelastseventeenyears.Itthenconsidersthemainstructuralasymmetriesanddriversbetweenthetwocontinents.Theassumptionisthatasymmetriescontinuetoplayanindirectbutrelevantrole,eveniftheyarerarelyaddressedsystematicallyoronlyspecifically.Furthermore,thepaperanalysestheEurop
4、eanPeaceFacilityandthecurrenttrajectoryinAU-EUrelationsonP&S.Finally,asetofpolicyrecommendationsareprovidedtotheAUandEU.FocdationwJeanJaures3aIstitutoAffariInternazionaliTABLEOFCONTENTS1.Stateoftheart:TrendsandpracticesinAU-EUpeaceandsecurityrelations32. Lessonslearned43. Themainstructuralasymmetrie
5、s94. Thewayforward:theEuropeanPeaceFacilityandothertrends105. Conclusionsandrecommendations14References16Abouttheauthor18FEPSFOUNDATIONFOREUROPEANPROGRESSIVESTUDIESTHEFOUNDATIONFOREUROPEANPROGRESSIVESTUDIES(FEPS)EuropeanPoliticalFoundation-Nq4BE896.230.213AvenuedesArts461000Brussels(Belgium)www.feps
6、-europe.euFEPS_EuropeFOneaICrJeanJauresFondationjeanjaures12CiteMalesherbes,75009Paris+33(0)140232400www.iean-iaures.ora/jJauresIlalIstitutoAffariInternazionaliINPARTNERSHIPWITHsuoaffariInternazionaliViadeiMontecatini,17,00186Roma+39066976831www.iai.it/enIAIonline1. Stateoftheart:Trendsandpracticesi
7、nAU-EUpeaceandsecurityrelationsPeaceandsecurity(P&S)isakeycomponentoftherelationsbetweentheAfricanUnion(AU)andtheEuropeanUnion(EU).TheEUistheAU,ssecondmostimportantfinancialpartneronpeaceandsecurityaftertheUnitedNations(UN).Comparedwithothertopics,suchasmigrationoreventrade,overallobjectivesonpeacea
8、ndsecuritylargelyconvergeonjointinterestsandpriorities.iAddisAbabaandBrusselscanbothbenefitfromacommonapproachtoaddressarmedconflictsandviolentextremism.Yet,themodusoperand!,mutualperceptionsandtheEU,snewfinancialarchitecturecouldincreasedivergenciesinthecomingyears.Inthepast,relationsbetweenthetwoc
9、ontinentsweremainlybasedontheeconomicanddevelopmentdimension,butissuesofpeaceandsecurityhaveprogressivelygrowninimportancesincetheearly-mid-1990s.2P&SgainedrelevanceintheframeworkoftheJointAfrica-EUStrategy(JAES)adoptedattheLisbonSummitinDecember2007.TheJAESwasdesignedtoaddressissuesofcommonconcernj
10、3andtojointlypromoteandsustainasystemofeffectivemultilateralism”一mentioning,inparticular,uthereformoftheUnitedNations(UN)systemandofotherkeyinternationalinstitutions”.41VolkerHauckandLidetTadesseShiferaw,uContinuityandChangeinEuropeanUnion-AfricaRelationsonPeaceandSecurity,ACCORDAnalysis,March24,202
11、1,httos:/WWW.accord.ora.za/?p=32199.2FernandaFaria,uCrisisManagementinSub-SaharanAfrica.TheRoleoftheEuropeanUnion,EUISSOccasionalPapers,no.51(2004),https:WWW.iss.europa.eu/node/68.3Includingwpeace,security,democraticgovernanceandhumanrights,fundamentalfreedoms,genderequality,sustainableeconomicdevel
12、opment,includingindustrialisation,andregionalandcontinentalintegrationinAfrica,asdetailedin:EU-AfricaSummit,TheAfrica-EUStrategicPartnership.AJointAfrica-EUStrategy,2ndEU-FromtheEU,sperspective,since2016andtheintroductionoftheEUGlobalStrategy(EUGS),5Brusselshastriedtointegrateitsexternalprojectionth
13、roughtwoapproaches-firstly,byenhancingtheintegratedapproach,includingmorespheresofinterventionandimprovingfieldcoordinationandpolicyconsistency;secondly,byapplyingthe,principled-pragmatismnapproachwherebyEuropeaninterestsandvaluescoexistwithoneanother.TheEUGSstatesthattheunion,willinvestinAfricanpea
14、ceanddevelopmentasaninvestmentinitsownsecurityandprosperityFromtheAU,sperspective,thepartnershiponpeaceandsecuritywithBrusselsisparamount.However,thereisaperceptionthatEU,sapproachesareincreasinglymoreinfluencedbydomesticneedsandperceivedthreatsrelatedtoextremismandirregularmigration.?Furthermore,ma
15、nyAfricanleadersandinstitutionswanttodiversifytheirpartners-fromChinatoRussiaorTurkey-eventhoughthosepartnersstillhavelimitedengagementonP&S.WhilethenextAU-EUSummitwillnotnowbehelduntilFebruary2022,somesignalscanbededucedfromthecommunicationuTowardsaAfricaSummit,Lisbon,December8-912007,point8(ii),ht
16、tp:/WWW.africa-eu-partnershiD.orsitesdefaultfilesdocumentseas2007jointStrateqVen.pdf.4Ibid.,point8(iii).5EuropeanExternalActionService(EEAS)1SharedVision,CommonAction:AStrongerEurope.AGlobalStrategyfortheEuropeanUnionsForeignandSecurityPolicy,June2016,https:/europa.eu/!Tr66Qx.6Ibid,p.36.7AlfonsoMedi
17、nillaandChloeTeevan5BeyondGoodIntentions:TheNewEU-AfricaPartnership,ECDPMDiscussionPapers,no.267(March2020),https:ecdpm.Ora/?p=prehensiveStrategywithAfricanreleasedbytheEuropeanCommissionandtheEuropeanExternalActionService(EEAS)inMarch2020.Sectionfourofthedocumentisdedicatedtopeace,security,governan
18、ceandresilience.TheEUindicatesthatpriorityshouldbegiventostrategiccooperationonthemaincrisisareaswhilemaintaininganintegratedapproachtotheentirecycleofconflicts(Actionno.6).Cooperationshouldalsofocusonimprovinggovernance(Action7)asapreconditionforsecurityanddevelopment,andonactionstoincreasetheresil
19、ienceofAfricancountries(Action8).Beyondtwogeneralpoliticalmessagesoncoordination(EUinstrumentsandAfricancapacitiesshouldbefurtheraligned)andfinances(wdespiteprogressontheAUPeaceFund,thefinancingofAfrican-ledpeacesupportinitiatives,includingthroughUN-assessedcontributions,remainstobeaddressed),9theim
20、pressionisthatthisdocument-overall,ratherfocusedonEuropeanneedsandwithlittleattentionpaidtoreciprocity-W川notreceivemuchattentioninthefuture.ThismeansthatthenextAU-EUSummitwillgrounditsworkon2. LessonsLearnedSince2004,theEUhasprovidedfundingtotheAU,toAfricanRegionalEconomicCommunities(RECs)andtoother
21、coalitionsthroughtheAfricanPeaceFacility(APF).TheAPFrepresentsoneoftheP川arsunderpinningtheAU-EUrelationship;itsgoalisthreefold:enhanceddialogue,operationalisingtheAfricanPeaceandSecurityArchitecture(APSA)andunderpinningpeacesupportoperationsinAfrica.TheAPSAwasestablishedbytheAUasastructuralandeEurop
22、eanCommissionandEEAS,TowardsaComprehensiveStrategywithAfrica(JOIN/2020/4),March9,2020,https:eur2ex.europa.eu/Iegai-COntDntZenTXT?Uri=CeIeX:52020JeOOo4.otherdocumentsandissues,aspresentedinthelastsectionofthispaper.However,officersoftheEEAShavedefineditas“comprehensive”andwstillthebaseofourthinking,.
23、oAtthesametime,theyumissaclearandsimilarresponsefromtheAfricancounterpartinordertodefinenewjointprioritiesforthefuture,.nAgainstthisbackdrop,thispaperaimstoanalysethestateoftheartofAU-EUrelationsonP&Sandtoconsideritsmaintrajectories.Inthisframework,thefollowingsectionW川analysesomekeylessonslearnedfr
24、omAU-EUcooperationonP&Sfromthelastseventeenyears.Asubsequentsectionisdedicatedtothemainstructuralasymmetriesanddriversbetweenthetwocontinents.Theassumptionisthatasymmetriescontinuetoplayanindirectbutrelevantrole,eveniftheyarerarelyaddressedsystematicallyoronlyspecifically.ThepaperthenanalysestheEuro
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