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Original Articles

EU Counterterrorism and the Southern Mediterranean Countries after the Arab Spring: New Potential for Cooperation?

, &
Pages 137-156 | Published online: 11 Mar 2013
 

Abstract

The European Union's (EU) relationship with North African countries has long been the subject of intense academic enquiry. For many years, the EU has performed a difficult balancing act between managing the security concerns of its member states, dealing with authoritarian regimes that have questionable human rights records, creating and maintaining good economic relations, and pursuing more normative objectives. Have security objectives overridden other concerns? While the EU has cooperated with regimes with questionable human rights records, counterterrorism cooperation between the EU and North African countries has not developed as much as previous academic studies believe. However, what are the prospects of this changing with more recent developments after the Arab Spring? This article examines in detail the reasons why the EU does not currently conduct significant counterterrorism cooperation with North African countries and discusses whether this situation is likely to change as a result of the events of the Arab Spring, which has swept through North Africa and the Middle East since 2010.

Notes

Research for this article was supported by two Marie Curie Intra-European Fellowships awarded to Christian Kaunert and Sarah Léonard within the 7th European Community Framework Programme.

1. European Union, “European Security Strategy—A Secure Europe in a Secure World,” Council of the European Union, Brussels, December 12, 2003, 7.

2. European Union, “Report on the Implementation of the European Security Strategy—Providing Security in a Changing World,” Brussels, December 11, 2008, 3.

3. Ibid., 7.

4. F. Cameron and R. Balfour, The European Neighbourhood Policy as a Conflict Prevention Tool (Brussels: European Policy Centre, 2006); H. Haukkala, “The European Union as a Regional Normative Hegemon: The Case of the European Neighbourhood Policy.” Europe-Asia Studies 60(9): 1601–1622 (2008); M. Pace,“Norm Shifting from EMP to ENP: The EU as a Norm Entrepreneur in the South?” Cambridge Review of International Affairs 20(4): 657–673 (2007).

5. G. Bosse and E. Korosteleva, “Changing Belarus? The Limits of EU Governance in Eastern Europe.” Cooperation and Conflict 44 (2): 143–65 (2009); A. Vieira, “Opening the European Commission's Delegation in Minsk: Do EU–Belarus Relations Need a Rethink?” UPI Briefing Paper 18, 7 April 2008.

6. C. Kaunert, “The External Dimension of EU Counter-Terrorism Relations: Competences, Interests, and Institutions.” Terrorism and Political Violence 22(1): 41–61 (2010) ; C. Kaunert, “Europol and EU Counterterrorism: International Security Actorness in the External Dimension.” Studies in Conflict & Terrorism 33(7): 652–671 (2010); C. Kaunert, European Internal Security: Towards Supranational Governance in the Area of Freedom, Security and Justice? (Manchester: Manchester University Press, 2010).

7. F. Reinares, “The Madrid Bombings and Global Jihadism.” Survival 52(2): 83–104 (2010).

8. For more information on the academic debate on EU counter-terrorism, see Bossong, R., “The Action Plan on Combating Terrorism: A Flawed Instrument of EU Security Governance.” Journal of Common Market Studies 46(1): 27–48 (2008); F. Cameron, “Transatlantic Relations and Terrorism,” in D. Spence, ed., The European Union and Terrorism (London: John Harper Publishing, 2007); O. Bures, “EU Counterterrorism: A Paper Tiger?” Terrorism and Political Violence 18(1): 57–78 (2006); O. Bures, “Europol's Fledgling Counterterrorism Role.” Terrorism and Political Violence 20(4): 98–517 (2008); M. den Boer, “Fusing the Fragments. Challenges for EU Internal Security Governance on Terrorism,” in D. Mahncke and J. Monar, eds., International Terrorism. A European Response to a Global Threat? (Brussels: Peter Lang, 2006), 83–111; M. den Boer and J. Monar, “Keynote Article: 11 September and the Challenge of Global Terrorism to the EU as a Security Actor.” Journal of Common Market Studies 40(4): 11–28 (2002); M. den Boer, C. Hillebrand, and A. Nölke, “Legitimacy under Pressure: The European Web of Counter-Terrorism Networks.” Journal of Common Market Studies 46(1): 101–124 (2008); D. Dubois, “The Attacks of 11 September: EU–US Cooperation Against Terrorism in the Field of Justice and Home Affairs.” European Foreign Affairs Review 7(3): 317–355 (2002); J. Friedrichs, Fighting Terrorism and Drugs (London: Routledge, 2005); D. Zimmermann, “The European Union and Post-9/11 Counterterrorism: A Reappraisal.” Studies in Conflict and Terrorism 29(1): 123–145 (2006); F. Gregory, “The EU's Response to 9/11: A Case Study of Institutional Poles and Policy Processes with Special References to Issues of Accountability and Human Rights.” Terrorism and Political Violence 17(1): 105–123 (2005); C. Kaunert, “The Area of Freedom, Security and Justice: The Construction of a ‘European Public Order.’” European Security 14(4): 459–483 (2005); C. Kaunert, “Without the Power of Purse or Sword': The European Arrest Warrant and the Role of the Commission.” Journal of European Integration 29(4): 387–404 (2007); C. Kaunert, “The External Dimension of EU Counter-Terrorism Relations: Competences, Interests, and Institutions.” Terrorism and Political Violence 22(1): 41–61 (2010); C. Kaunert, “Europol and EU Counterterrorism: International Security Actorness in the External Dimension.” Studies in Conflict & Terrorism 33(7): 652–671 (2010); C. Kaunert, European Internal Security: Towards Supranational Governance in the Area of Freedom, Security and Justice? (Manchester: Manchester University Press, 2010); Reinares, F., ed., European Democracies against Terrorism—Government Policies and intergovernmental Cooperation (Aldershot: Ashgate, 2000); J. Occhipinti, The Politics of EU Police Cooperation—Towards a European FBI? (Lynne Rienner Publishers: Colorado, 2003); V. Mitsilegas, EU Criminal Law (Oxford: Hart Publishing, 2009); M. Deflem, “Europol and the Policing of International Terrorism: Counter-Terrorism in a Global Perspective.” Justice Quarterly 23(3): 336–359 (2006); K. Eling, “The EU, Terrorism and Effective Multilateralism,” in D. Spence, ed., The European Union and Terrorism (London: John Harper Publishing, 2007), 105–123; D. Spence, ed., The European Union and Terrorism (London: John Harper Publishing, 2007); S. Stetter, EU Foreign & Interior Policies: Cross-pillar Politics & the Social Construction of Sovereignty (New York: Routledge, 2007); B. Müller-Wille, “The Effect of International Terrorism on EU Intelligence Co‐Operation.” Journal of Common Market Studies 46(1): 49–73 (2008).

9. O. Bures, “EU Counterterrorism: A Paper Tiger?” 57.

10. D. Zimmermann, “The European Union and Post-9/11 Counterterrorism: A Reappraisal,” 123–145; C. Kaunert, “‘Without the Power of Purse or Sword’: The European Arrest Warrant and the Role of the Commission.”

11. In the remainder of this article, the term Southern ENP states is used as a shortcut to designate the Mediterranean and Middle Eastern states that have actively engaged with the ENP (Morocco, Tunisia, Egypt, Jordan, Lebanon, Israel, the Palestinian Authority). As the ENP builds upon the Association Agreements between the EU and its partners, the ENP is not yet “activated” for Libya and Syria since no such Agreements are yet in force. Algeria has recently ratified its Association Agreement with the EU but has not negotiated an ENP Action Plan yet.

12. On the security dimension of the ENP, see R. Dannreuther, “Developing the Alternative to Enlargement: The European Neighbourhood Policy.” European Foreign Affairs Review 11(2): 183–201 (2006) ; J. Kelley, “New Wine in Old Wineskins: Promoting Political Reforms Through the New European Neighbourhood Policy.” Journal of Common Market Studies 44(1): 29–55 (2006); R. A. Del Sarto, and T. Schumacher, “From EMP to ENP: What's at Stake with the European Neighbourhood Policy towards the Southern Mediterranean?” European Foreign Affairs Review 10: 17–38 (2005); E. Johansson-Nogués, “'Ring of Friends'? The Implications of the European Neighbourhood Policy for the Mediterranean.” Mediterranean Politics 9(2): 240–247 (2004); R. Aliboni, “The Geopolitical Implications of the European Neighbourhood Policy.” European Foreign Affairs Review 10(1): 1–16 (2005); K. E. Smith, “The Outsiders: the European Neighbourhood Policy.” International Affairs 81(4): 757–773 (2005); S. Lavenex, “EU External Governance in ‘Wider Europe.” Journal of European Public Policy 11(4): 680–700 (2004); S. Pardo, “Europe of Many Circles: European Neighbourhood Policy.” Geopolitics 9(3): (2004); V. Khasson et al., Everybody Needs Good Neighbours: The EU and Its Neighbourhood, (Aldershot: Ashgate, 2008); J. Orbie, Europe's Global Role: External Policies of the European Union (Aldershot: Ashgate, 2008).

13. G. Joffé, “The European Union, Democracy and Counter-Terrorism in the Maghreb.” Journal of Common Market Studies, 164; Dannreuther, R., “Developing the Alternative to Enlargement: The European Neighbourhood Policy.” European Foreign Affairs Review 11(2): 198 (2006); J. Jeandesboz, “The Genesis of the European Neighbourhood Policy. Alternative narratives, bureaucratic competitions,” in T. Balzacq, ed., The External Dimension of EU Justice and Home Affairs. Governance, Neighbours, Security (London: Palgrave MacMillan, 2009); G. Bosse, “Values in the EU's Neighbourhood: Political Rhetoric or Reflection of a Coherent Policy?” European Political Economy Review 7:38–62 (2007); S. Wolff, “The Mediterranean Dimension of EU's Internal Security,” in T. Balzacq, ed., The External Dimension of EU Justice and Home Affairs. Governance, Neighbours, Security (London: Palgrave MacMillan, 2009); S. Wolff, “The Mediterranean Dimension of EU's Counter-Terrorism.” Journal of European Integration 31(1): 137–156 (2009). For more on the ENP and an in-depth literature review, see C. Kaunert and S. Leonard, “EU Counterterrorism and the European Neighbourhood Policy.” Terrorism and Political Violence 23(2), 286–309.

14. G. Joffé, “The European Union, Democracy and Counter-Terrorism in the Maghreb,” 164.

15. R. Dannreuther, “Developing the Alternative to Enlargement: The European Neighbourhood Policy,” 198.

16. R. Bossong, “The Action Plan on Combating Terrorism: A Flawed Instrument of EU Security Governance”; F. Cameron, “Transatlantic Relations and Terrorism,” in D. Spence, ed., The European Union and Terrorism (London: John Harper Publishing, 2007); O. Bures, “EU Counterterrorism: A Paper Tiger?”; O. Bures, ”Europol's Fledgling Counterterrorism Role”; D. Dubois, “The Attacks of 11 September: EU-US Cooperation Against Terrorism in the Field of Justice and Home Affairs”; J. Friedrichs, “Fighting Terrorism and Drugs”; D. Zimmermann, “The European Union and Post-9/11 Counterterrorism: A Reappraisal”; F. Gregory, “The EU's Response to 9/11: A Case Study of Institutional Poles and Policy Processes with Special References to Issues of Accountability and Human Rights”; C. Kaunert, “The Area of Freedom, Security and Justice: The Construction of a ‘European Public Order’”; C. Kaunert, “The External Dimension of EU Counter-Terrorism Relations: Competences, Interests, and Institutions”; C. Kaunert, “Europol and EU Counterterrorism: International Security Actorness in the External Dimension”; C. Kaunert, “European Internal Security”; F. Reinares, ed., European Democracies against Terrorism – Government Policies and Intergovernmental Cooperation; J. Occhipinti, “The Politics of EU Police Cooperation”; M. Deflem, “Europol and the Policing of International Terrorism: Counter-Terrorism in a Global Perspective.”

17. R. Youngs, Europe and the Middle East—In the Shadow of September 11 (Boulder, Colorado: Lynne Rienner Publishers, 2006), 19.

18. See: Euro‐Mediterranean Partnership, 10th Anniversary Euro‐Mediterranean Summit, Barcelona, 27–28 November 2005, Annexes. Doc. EURO-MED 2/05, November 2005.

19. For more on these Association Agreements, see C. Kaunert and S. Leonard, “EU Counterterrorism and the European Neighbourhood Policy.” Terrorism and Political Violence 23(2), 286–309.

20. W. Rees, Transatlantic Counter-Terrorism Cooperation (London: Routledge, 2006).

21. Ibid.

22. P. de Hert and B. de Schutter, “International Transfers of Data in the Field of JHA: The Lessons of Europol, PNR and Swift” in B. Martenczuk, and S. van Thiel, eds., Justice, Liberty, Security: New Challenges for EU External Relations (Brussels, VUBPRESS Brussels University Press, 2008), 323.

23. Council of the European Union, Council decision of 27 March 2000 authorizing the Director of Europol to enter into negotiations on agreements with third states and non-EU related bodies. OJ C106, 13.04.2000, 1–2.

24. The Action Plan for Israel includes the following action: “Enhance cooperation between Israel and relevant services of EU Member States (including specialized bodies at European level).”

25. P. de Hert and B. de Schutter, “International Transfers of Data in the Field of JHA: The Lessons of Europol, PNR and Swift,” 305.

26. V. Mitsilegas, “EU Criminal Law,” 183.

27. Council of the European Union, Chairman's Summary of the High Level Conference on the Future of Europol, 23 and 24 February 2006, Doc. 7868/06, 29 March 2006, p. 3/

28. Council of the European Union, Friends of the Presidency's Report to the Future of Europol, Doc. 9184/1/06, 19 May 2006, p. 23.

29. EuropeAid Web site, Our Neighbours: Panorama of Regional Programmes and Projects in the Mediterranean Countries. http://ec.europa.eu/europeaid/where/neighbourhood/documents/infonotes_south_2010_en.pdf 2010 (accessed July 6, 2012).

30. P. Wennerholm, E. Brattberg, and M. Rhinard, The EU as a Counter-Terrorism Actor Abroad: Finding Opportunities, Overcoming Constraints, EPC Issue Paper 60, September 2010. http://www.epc.eu/documents/uploads/pub_1152_eu_as_a_counter-terrorism_actor_abroad.pdf (accessed 6 July 2012), 14.

31. W. Rees and R. J. Aldrich, “Contending Cultures of Counterterrorism: Transatlantic Divergence or Convergence?” International Affairs 81(5): 910 (2005).

32. EuroMed Website, EuroMed Justice I. http://www.enpi info.eu/mainmed.php?id_type=10&id=5 (n.d.) (accessed April 20, 2011); EuropeAid Website, Our Neighbours: Panorama of Regional Programmes and Projects in the Mediterranean Countries. http://ec.europa.eu/europeaid/where/neighbourhood/documents/infonotes_south_2010_en.pdf (2011) (accessed April 20, 2011).

33. J. Vlastnik, “Eurojust – A Cornerstone of the Federal Criminal Justice System in the EU?,” in E. Guild and F. Geyer, eds., Security versus Justice? Police and Judicial Cooperation in the European Union (Aldershot: Ashgate, 2008).

34. Although the Action Plan for Israel does not contain any explicit reference to terrorism, it contains an action (“deepen cooperation in maritime security by focusing on the SOLAS/ISPS Code implementation requirements”) that is very similar to that contained in the Action Plans for Morocco, Tunisia, Jordan, and Egypt.

35. A ninth Special Recommendation was adopted in October 2004, concerning cash couriers.

36. K. L. Gardner, “Fighting Terrorism the FATF way.” Global Governance 13(3): 342 (2007).

37. Ibid.

38. M. de Moraes Ruehsen, “Arab Government Responses to the Threat of Terrorist Financing,” in J. K. Giraldo and H. A. Trinkunas, eds., Terrorism Financing and State Responses: A Comparative Perspective (Stanford, CA, Stanford University Press, 2007), 165; J. Gunning, “Terrorism, Charities and Diasporas: Contrasting the Fundraising Practices of Hamas and al Qaeda among Muslims in Europe,” in T. J. Biersteker and S. E. Eckert, eds., Countering the Financing of Terrorism (London: Routledge, 2008), 93–125.

39. J.-F. Thony, and C.-A. Png, “FATF Special Recommendations and UN Resolutions on the Financing of Terrorism.” Journal of Financial Crime 14(2): 154 (2007).

40. M. de Moraes Ruehsen, “Arab Government Responses to the Threat of Terrorist Financing.”

41. United Nations Security Council, Report by the Chair of the Counter-Terrorism Committee on the problems encountered in the implementation of security Council resolution 1373 (2001), S/2004/70, 26 January 2004.

42. United Nations Security Council, Report by the Chair of the Counter-Terrorism Committee.

43. Council of the European Union, “EU Action Plan on Combating Terrorism,” 15 November 2010, 15893/10.

44. European Commission Web site, European Neighbourhood and Partnership Instrument Algeria Strategy Paper 2007–2013 and National Indicative Programme 2007–2010. http://ec.europa.eu/world/enp/pdf/country/enpi_csp_nip_algeria_en.pdf (accessed April 21, 2011).

45. European Union, A New Response to a Changing Neighbourhood—A review of European Neighbourhood Policy. http://ec.europa.eu/world/enp/pdf/com_11_303_en.pdf (accessed 6 July 2012).

46. L. Watanabe, EU-Maghreb Counter-Terrorism Cooperation: The Need for a More Holistic Approach, GSCP Policy Paper 24, December 2011.

47. European Commission, Partnership for Democracy and Shared Prosperity: Report on activities in 2011 and Roadmap for future action. http://ec.europa.eu/world/enp/docs/2012_enp_pack/pship_democracy_report_roadmap_en.pdf (accessed July 18, 2012)

48. For the latest set of ENP documents, see European Commission Website, European Neighbourhood Policy. http://ec.europa.eu/world/enp/documents_en.htm#3 (accessed July 18, 2012)

49. European Commission, ENP Package – Libya. http://ec.europa.eu/world/enp/docs/2012_enp_pack/libya_memo_2011_en.pdf (accessed July18, 2012)

50. A. Arieff, Algeria: Current Issues, Congressional Research Service. http://www.fas.org/sgp/crs/row/RS21532.pdf (accessed July 18, 2012)

51. L. Watanabe, “EU-Maghreb Counter-Terrorism Cooperation: The Need for a More Holistic Approach.”

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