EU special representatives in the eye of the storm

(BRUSSELS2) The format of special representatives as we have known it so far will indeed be reviewed. Even if on the side of Catherine Ashton, the EU's chief diplomat, we are working to deny any desire for outright suppression. A reorganization is essential, arrival of the European diplomatic Service obliges. It is also true that the new High Representative of the EU for Foreign Affairs has never really valued these envoys and special representatives of the EU (1) established under the leadership of Javier Solana, who have acquired a little too much autonomy and who do a little too much "what they want". Their mandate was thus only temporarily renewed, until the end of August normally (read: EU Special Representatives confirmed, provisionally).

A reorganization

Already, one fact can be taken for granted: there will no longer be - with some exceptions - a special representative confined to a single country. The transformation of EC delegations into "EU embassies" will, in effect, propel heads of delegation into "ambassadors". And certain posts of special representatives could therefore be "merged" with heads of delegation. This is the first line of work, already applied with Afghanistan recently - where the new special representative, the Lithuanian, Vygaudas Usackas, holds the position of head of delegation; and in advance to the Treaty of Lisbon with the Belgian Koen Vervaeke at the African Union and Erwan Foueré in Fyrom (Macedonia). This solution could be applied to other countries: in Sudan for example, or even in Moldova.

Another line of work: the integration of special representatives into the new diplomatic service. Which is not obvious because the post of "Special Representative" is the only foreign policy function, provided for and organized by the Treaties. He exercises under the authority of the High Representative, in other words "directly" (2), and cannot therefore be integrated into a hierarchical structure that is too constrained. Moreover, it would lose interest in the function of a special representative.

Third line of work: who seems to have Catherine Ashton's preference (for the moment) would be to make this position more eminently political than diplomatic by bringing in leading political figures.

Those who would stay, those who would leave

In concrete terms, Catherine Ashton reportedly told EU ambassadors that she planned to review three posts: the Hungarian Kálmán Mizsei in Moldova (a little later), the Swede Peter Semneby in the South Caucasus, and - more surprisingly - the Belgian Marc Otte in the Middle East. Others would be confirmed, such as the post of special representative for the Great Lakes or that for Central Asia. The representatives with a double European and international hat – the Austrian Valentin Inzko in Bosnia-Herzegovina and Pieter Feith in Kosovo – would also be maintained. These positions are confined to States but it is too complicated to decouple the two functions, at least quickly. Even if certain officials of Member States consider it necessary (see: P. Lellouche : it is necessary to close the post of OHR in Bosnia).

Paddy's Return...

Considered as "a rumor", by Catherine Ashton herself, the hypothesis of a return of Paddy Ashdown on the European and Balkan scene "does not seem far-fetched" according to a European diplomat. The former special envoy of the international community in Bosnia and Herzegovina from 2002 to 2006, and also former leader of the LibDem, only dreams of returning to the field.And he would be supported by the Foreign Office according to the British daily The Guardian. In the absence of a post of special representative as such, he could obtain the post of "special adviser" on the Balkans. A very political way for the High Representative to get closer to the power of London.

(Nicolas Gros-Verheyde)

(1) The EU currently has 11 special representatives: Moldova, South Caucasus, Central Asia and conflict in Georgia, Afghanistan, Sudan, Great Lakes, African Union, Kosovo, Fyrom, Bosnia and Herzegovina, peace in the Middle East. Read : EU Special Representatives confirmed, provisionally

(2) Article 33: The Council may, on a proposal from the High Representative of the Union for Foreign Affairs and Security Policy, appoint a special representative to whom a mandate is conferred in connection with specific political questions. The Special Representative exercises his mandate under the authority of the High Representative.