Parliamentarization of the CFSP through informal institution-making? The fifth European Parliament and the EU high representative

Abstract

This article examines whether the European Parliament has been able to use the institution of the High Representative as a lever to increase its powers in the EU's common foreign and security policy. Since it is found that the EP's strategy towards the HR has neither brought it any informal powers nor been instrumental in forcing the proposal of an EU Foreign Minister, a formal intergovernmentalist position appears to be vindicated. Yet from an institutionalist perspective it may be retorted that the few attainments of the EP so far are a consequence of it having a far higher sensitivity to failure on CFSP-related issues than on well-institutionalized European Community policies. As a future Foreign Minister will be better able than the HR to secure some degree of political independence from the Council, this may well lead the European Parliament to reassess its strategy and to adopt a more assertive stance.

Keywords:

• Common foreign and security policy
• European Parliament
• EU Constitution
• EU High Representative
• EU Minister for Foreign Affairs
• informal governance
• institutional change.

Acknowledgements

Research for this article has been made possible by the support of a Marie Curie Fellowship of the European Community under contract number HPMF-CT-2002-01706. Research assistance by Michał Mia¸skiewicz (Harvard University) has been of invaluable help. I also gratefully acknowledge the willingness and useful contributions of nine politicians and administrators from both the Council of the EU and the European Parliament who were interviewed for this article. I thank Christoph Meyer, Louise van Schaik, Jeff Stacey and two anonymous referees for stimulating comments on earlier drafts.

Notes

1. At least if they establish a special institutional framework, have important budgetary implications or involve competences where the EP enjoys full legislative powers (Art. 300.4 ECT).

2. As put by an official in the Council secretariat, interview, 30 July 2003.

3. Interview with senior official of the Council Legal Service, 27 August 2003.

4. As is indeed suggested by people in the Council secretariat and conceded by people in the EP.

5. Interviews with senior officials of the Council secretariat, 30 July and 27 August 2003.

6. Various interviews with MEPs and EP staff, 2003 to 2004.

7. Interview with senior official of the Council Legal Service, 27 August 2003.

8. Interview with senior official of the Council Legal Service, 27 August 2003.

9. Interview with a member of the EP Foreign Affairs Committee, 1 September 2003 and confirmed in other interviews with MEPs and EP staff, 2003 to 2004.

10. Interviews with a member of the EP Foreign Affairs Committee (8 July 2003) and with a member of the secretariat of the EP's Foreign Affairs Committee (10 July 2003).

11. Interview with official of the Council secretariat, 29 August 2003.