human securitya new strategic narrative for europe

7/28/2019 Human SecurityA New Strategic Narrative for Europe

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Human Security: A New Strategic Narrative for EuropeAuthor(s): Mary Kaldor, Mary Martin and Sabine SelchowSource: International Affairs (Royal Institute of International Affairs 1944-), Vol. 83, No. 2,Europe at 50 (Mar., 2007), pp. 273-288Published by: Wiley on behalf of the Royal Institute of International Affairs

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Human ecurity:a newstrategicarrativeor urope

MARYKALDOR,MARYMARTIN NDSABINE ELCHOWAbsoluteespair ouldbethewrong esponsetothe urrentituationn raq]. nsteadthedisasterhatstheWest'surrenttrategyn raqmust e used s a constructiveallto the nternationalommunityoreconfiguretsforeignolicy round umanecurityratherhan ationalecurity.Jan geland, N UndersecretaryorHumanitarianffairs'Humansecurityeferso thesecurityf individuals ndcommunities,xpressedas both freedom rom ear' nd freedom romwant'. Severe hreats o humansecurity angefrom enocide nd slavery o natural isasters uch as hurricanesor floods o massive iolations f theright o food,health ndhousing. n thisarticle, e argue hat he doption f a human ecurityoncept epresentsquali-tative hange n the conductofforeignnd security olicy.This step-changesparticularlyelevant or heEuropeanUnion as it seeks o improvets effective-ness ndvisibilitys a collective lobalactor.Termsmatter,nd human ecurityis not simply leitmotif orEU security olicies,2 r an analyticalabelwhichcategorizesheEU's internationalole nthewaythat oncepts uch s normativepoweror civilianpowerhavedone.3Rather,tprovidesnenduringnddynamicorganizing rame orsecurity ction,a framewhichEuropeanforeign olicytexts ndpracticesurrentlyack.Thus human ecurityan be seen s a proactivestrategicarrative ith hepotential o furtherU foreign olicy ntegration.To elaboratehisorganizingrame, eexamine wo distinctspects fahumansecurityoctrine:exis, rwhat ssaidand written bout t; andpraxis, rwhat tmeans nterms feverydayctions, rom olicies o tactics n theground.The lexisof human ecuritymattersecause tdeals withhowpolicy-makersand theEuropeanpublicview and articulatessuesof external ecurity. his isnot ustthe tuff f academicdiscussions; e need to know whatwe meanwhenwe talk bout the deas,values, nterestsndgoalsof EU external elations. venpractitionersho regard onceptswithsuspicion s abstract ndunhelpful se

Quoted bySarahBoseley,One in50 Iraqis"killed since nvasion"',Guardian, 2 Oct. 2006.2 Sascha Werthes nd David Bosold, Caught betweenpretensionnd substantiveness:ambiguities f HumanSecurity s a political eitmotif',n Tobias Debiel and SaschaWerthes, ds, HumanSecuritynforeignolicyagendas, hanges,onceptsnd ases(Duisburg:Eigenverlag, 006).Ian Manners, Normativepower Europe: a contradictionn terms?',working paper 38/2000,CopenhagenPeace Research nstitute; rangois uch~ne, Europe'srole n worldpeace', nR. Mayne,ed.,Europeomorrow:sixteenuropeansook head(London: Fontana,1972).

InternationalAffairs3: 2 (2007)273-288 2007TheAuthor(s).ournal ompilation 2007 lackwell ublishingtd/The oyalnstitutef International

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Mary aldor, aryMartinnd abineelchowthemnconsciouslysmindmapsnpracticalnalysisnd roblem-solving.t hesame ime, ecent ebatesbout he emanticsftheglobalwar nterrorism',rwhether hat sgoing n nSudan hould ecalled enocide,eveal cute olit-ical ensitivityowardsolicy ermsnd abels.na Europe f27 membertates,conceptsanhelpus to reach ommonnderstandingsnd xpressionsf ssues.Thepraxisfhumanecurityealswith ow his octrinalonceptranslatesntopracticalction,ndwhethert s usefulnguidinghe ctions fpolicy-makers,plannersnd xpertsnthe ield.Lexisnd exiconWe lreadyohumanecurity,eust on'tall t hat.4This s a commonesponsendiscussionsith ractitionersbout he onceptfhumanecurity.tpresupposeshatheres adifferenceetweenallingomething'humanecurity'nd ctuallyoinghumanecurity',hats,betweenonceptsrideas ndpoliticalractice.etpoliticalonceptsake old nlyfthey esonate,ifthey ontain ealmeaningsprovidingither guide o action ra descrip-tion fpractice,nd f ubsequentlyction onfirmshe ightnessfthe escrip-tion.Termsikehumanitarianism'r democracy'ave fteneendiscreditedsOrwellianypesfNewspeak henwars re onductedntheir ame, reciselybecauseheyre mptyinguisticessels.Developmentsnthe uropeanommon oreign nd ecurityolicyCFSP)havehelped atalysenemerginguropean iscourse,ut he exicon ftermsused s muddledffair,hich bscuresatherhan larifieshe aturefEuropeanforeignolicy. hreekey ermshat reused o namewhat is done'providetleast partialiew fwhatwe mean y European ecurityndDefence olicy(ESDP): these re risis anagement,ivil-militaryoordinationnd onflictrevention.Wehave electedheseonceptssones hatre xplicitlysedwithinexts boutESDP, ndicatinghatertainssentialeaturesfthedea f humanecurity'anbe foundncurrentSDPdiscourse,nd eadingstoasserthathumanecurity'seemsnessence o besomethingEuropean'. owever, eargue hat sing hespecificermhumanecurity'anhelp otakewhat s done stage urther.CrisismanagementGenerallypeaking,crisisssomethinghatsconsideredn urgenthreatothecore alues f polity'.5hetermcrisismanagement'xemplifieshemprecisionof theEU'sCFSP andESDP languagend llustratesheterminologicalungle'that urroundsollectiveecurityolicy.6 erms ikecrisis esponse',civilian risis4 Interview,ostConflict econstructionnit, epartmentor nternationalevelopment,ondon, July

2006.s Arjen oin,Magnus kengrenndMark hinard,Funtionalecuritynd risismanagement:apacityntheEuropean nion',April 006,p. 2,http://www.eucm.leidenuniv.nl/content_docs/eucmreportapril2006web_publication_version.pdf,ast ccessedFeb.2007.6 InternationalrisisGroup,EU crisisesponseapability:nstitutionsndprocessesor onflictreventionandmanagement',ssueseport,26Juneo2ol0,russels.274Internationalffairs3: 2, 2007 2007TheAuthor(s).ournal ompilation 2007Blackwell ublishingtd/The oyalnstitutef International




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Humanecurity:newtrategicarrativeor uroperesponse'nd humanitarianesponse',nd conflict'ndcrisis',re ften sed s fthey erenterchangeable.'heEuropeanommissionefinesrisis anagementas humanitarianndrescue asks, eacekeepingasks ndcombat-forceasks ncrisismanagement,ncludingeacemaking'.8here sa tendencyithin heEUdiscourseoequatecrisis' ith onflict.lthoughrises re fficiallyeferredoaseitherman-made'r natural',t susuallyman-made'riseshatre onsideredan urgenthreatothe ore fvalues nd he ystemfthe U as a polity'.The EU definesrisismanagementntermsfcapabilities,ocusingn theinstrumentsfcivilian risismanagementCCM),such s thepolice, he ule flawand ivil rotection.sRenata wanpointsut, ivilianrisismanagement'isparticularothe Uandhasnoequivalentaralleln heexiconsfUN,OSCEornon-Europeanegionalrganisations'.9The European ouncildefines CM as designedo help restore iviliangovernment'longsidethernstruments,uch smilitaryeans orestoreeaceand conomicmeans o restorehe iabilityfconflictones,nd onsidersothmilitaryndcivilian risismanagements short-termnstrumentsppliedntheimmediateeactiono a crisis.IoheCommission,y ontrast,onsidersCM tobe a long-term ctivity."Recenteffortso integrateong-and short-termCMactionsepresentart f nattemptobuild more oherentndproactive,atherthan eactive,pproacho CCM.Itwas nly fterhe nd f heColdWar,nthe ace f he risesnthe alkans,that heEU and tsmembertatesxplicitlydentifiedheneedfor iable ndsynchronisedrisismanagementtructuresndfeltobliged o engagemoredirectlynconflictreventionnd risis anagement'.12Thefirsttepn the stablishmentf newproceduresndstructuresor hedevelopmentf coherentnd omprehensiverisismanagementCM)capabilitywas he wedish-Finnishnitiativeo ntegratehe o-calledetersbergasksntotheAmsterdamreatyn 1996. heprimaryoncernntheBalkans riseswastheEU's lackofmilitaryapabilities;ence hemain ocuswas onbuildingEuropeanmilitaryorce, hile he oncern or ivilianapabilitiesame econd.Since 002, thenegativeermnon-military'as been ncreasinglyeplaced ythepositiveermcivilian',llustratingdiscursivehift hich tresseshemulti-facetedharacterfCM, nvolvingwide arietyfpersonnelromolice fficers7 BenitaFerrero-Waldner,The roleof crisisresponse n external elations: fromneedsto solutions: nhanc-ingcivilian risisresponse apacity f theEuropeanUnion"', paper presented o conferenceorganizedbytheEuropeanCommission ncooperationwith theCrisisManagement nitiativeCMI), Brussels, 4Nov. 2005,speech/o5/684.www.ec.europa.eu/comm/external_relations/cfspp/cppcm/cm.htm,ccessed14Jan. 007.9 Quoted inAgnieszkaNowak, 'Civilian crisismanagementwithinESDP', inAgnieszkaNowak, ed., Civiliancrisismanagement:he U way,ChaillotPaper90o,June2006.'o A secureEuropen better orld:European ecuritytrategy,ocumentproposedbyJavier olana and adoptedbythe heads of state ndgovernmentt theEuropeanCouncil inBrussels, 2Dec. 2003." 'We recognise hat conflictprevention nd crisismanagement re long termundertakings':ChrisPatten,'Debate on conflict revention/crisisanagement', uropeanParliamentplenary, trasbourg, 4March2000,

speech/oI/I23.i2 ChrisPatten,The EU's evolving foreign olicydimension: he ESDP afterHelsinki',oint meetingof theEuropean ParliamentForeignAffairs ommittee with membersof the NATO Parliamentary ssembly,speech/oo/5I, russels, 2 Feb. 2000.275

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Mary aldor, aryMartinnd abine elchowtoudges nd iremen.his sconsistentith evelopmentsn the round,herethemajorityf EU missionsave een ivilian.mportantly,talsoreflectshefoundationaldea speciallytrongnGermanynd heNordicmembertates ftheEU as a civil ower'.The deaof civilianrisismanagementasgiven rominenceuringhe 006Finnishresidencyia the doptionf theAction lanforNon-militaryrisisManagementf theEU, intendedo establishffectiveechanismsf rapidcoordinationnddeployment.apidresponse,nce een s theguidingdeaofa collectiveuropeanecurityresence,s now subsumednder risismanage-ment.Meanwhilehemperativefrespondingo the sunamifDecember004extended heconceptfcrisismanagementocovernaturalisastersndcivilprotectionf ocalpopulations.

Civil-militaryoordinationCMCO)The EU's crisismanagementffortsre ncreasinglyharacterizedya drivefor ntegrationndcomprehensiveness.his referso integrationetween hedifferentpillars'fEU activity,'3swell stothe oherencend ntegrationfcivil ndmilitaryapabilities.comprehensiveivil-militarypproacho crisesis embeddedntheEU'sunderstandingfcontemporaryhallengesnd hreats.Accordingo theEuropeanecuritytrategyESS), In contrastothemassivevisiblehreatntheColdWar, one f thenew hreatsoutlinedntheESS] ispurelymilitary;or an ny etackledypurelymilitaryeans. achrequiresmixturef nstruments."'4TheconceptfCMCO adoptedy heCouncilnNovember003 efersotheinternaloordinationfthe U'smilitarynd ivilianrisis anagementfforts."5In contrastonationalonceptionsf ivil-militaryoordination,he U'sversionispoliticalatherhanmilitary-operational.norderoachieveoherence,he UconceptfCMCO, as expressedntheCouncil aper, romoteshe dea of a'culturefco-ordination':Ratherhaneekingoput oomuchmphasisndetailedtructuresrprocedures..The immust eto ncouragend oensurehe o-ordinationn hectionsfrelevantEUactorsn llphasesf he peration.nthisontext,t s mportantorecognisehatthis MCOcultureeeds o be builtnto' he U'sresponseo a crisistthe arliestpossibletagend or hewhole urationf heperation,atherhaneingboltedn' ta atertage.his ulturef o-ordinationsbasedn ontinuedo-operationnd haredpoliticalbjectives.'6"3 SeeCatriona ourlay,Civil-civiloordinationnEU crisismanagement',nAgnieszkaowak, d.,Civiliancrisis anagement:he Uway. haillot aperNo.9,June006,pp.103-19.14Asecureuropen betterorld,. 12."5 Civil-militaryoordinationCMCO) inthe ontextfCFSP/ESDP ddressesheneed or ffectiveoordin-ation f he ctionsf llrelevantU actorsnvolvedn he lanningnd ubsequentmplementationfEU'sresponseo the risis.or noverviewfthedevelopmentfCMCO within he U,seee.g.RadekKhol,'Civil-militaryo-ordinationnEU crisismanagement',nNowak,d.,Civilianrisis anagement,p.123-36.I6 Europeanouncil, ivil-militaryo-ordinationCMCO),Doc. 14457/03, November003.276Internationalffairs3:2,2007 2007TheAuthor(s).ournal ompilation 2007Blackwellublishingtd/The oyalnstitutef International




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Humanecurity:newtrategicarrativeor uropeCivil-militaryoordinationounds ike,but s differentrom, ivil-militarycooperationCIMIC), a more ontroversialonceptwhichnEU terminologyrefersocooperationith xternalctorsnEU-ledmissions.he deas f civil-militaryoordination,ooperationrsynergytheUnion snot urewhich fthese ouns tprefers)regivennstitutionalxpressionhroughheCivilian/Military ell (Civ/Mil ell),establishednder he talian residency."7TheCivilian/Militaryell nhanceshe U'scapacityor risismanagementlanning,reinforcesationalQ designatedoconductnEUautonomousperation,ssistsinco-ordinatingivilianperationsndgenerateshe apacityoplan ndrun nautonomousUoperation.'"snothermportantnitiativeas akenlace njointcivil-militaryraining,ith woprogrammeselatedo CMCO (onerun y heCommissionince20ooandone offeredytheCouncil ince 004).While heseinitiativeseceive ocal upportand heCommissionas womembersttachedto theCivilian/Militaryell), npracticeivil-militaryooperationemainsmarginalnd ontestedractice.'9ConflictreventionUnlike risismanagementndCMCO, which reprimarilyelatedoCounciloperations,onflictreventions a key iscourse ithinheEuropean ommis-sion,which efinesreventionntermsfaddressingoth he ong- nd hort-term auses f conflicthroughction npoverty,evelopment,ocialnjustice,aid, rade,rms ontrolndgovernance,lthought s also ssociated ith trat-egies f preventivengagement'etout n theESS. As Commissionolicy,tcombinesong-nd hort-termeasures.ong ermncludeevelopmentoliciesandcooperationith argettates o reduce overty,nd nemphasisn cross-cuttingssues uch s traffickingndrugs,mall rms ndpeople; hort erminitiativesnclude endingbserverso elections,iving mergencyconomicassistance,pplyinganctionsndundertakingivilianmissions. onfusingly,givenhe verlap ithCouncil erminologyhortermcrisismanagement's ashort erm ommissionoolwithints verallesponsesoconflict.This deaofconflictreventionscloselyelatedo thenotion f sustainablepeace,which iguresn the iscoursef theUN andof nternationalivil ocietyactors.20ustainableeacewasseen stheultimateoalofconflictrevention,managementndresolution,or xamplen the nitiativeythe Finnish ndSwedish oreign inistersn 1996,with egardothePetersbergasks eferredtoabove, nd actionsnBosnia ndMacedoniahroughhich heEU triedopromotehe dea at theUN.2' The conflictreventioniscourseas tsorigins17 'Europeandefence:NATO/EU consultation,lanning nd operations',e.eu.int/uedocs/cmsUpload/78414%20-%20oEU-NATO%2OConsultation,%2oPlanning%2oand%2oOperations.pdf,ccessediJan.007.'8 www.consilium.europa.eu/cms3_fo/showPage.asp?id=04&lang=DE&mode=g,ccessediJan. 007.19 CommentsyUmbertoncisa,uropeanarliamentearing,ecurityndDefenceub-Committee,russels,19 ept. 006.20 NGOs and thernternationalrganizations,ncludingheUN,preferhe ermpeacebuilding.2' Jaap amaker,Craftingsustainableeace: upportingonflictrevention,onflictmanagementnd onflictresolution',tatementotheUN Parliamentaryorum, Oct.1997.

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Mary aldor, aryMartinnd abine elchowin apoliticalthos ootedncivil ociety,ollectivection,he ublicpherendreconciliation.Conflictreventionttemptsobreakicious irclesf nstability,ith ifferententry oints or nterventiont thevarioustagesf conflictycles,ncludingsubsidiaryools fearly arningnd nalysisnthe nehand,nd apid esponseon the ther.thas lso ome oencompassapacity-buildingntargettatesnda shift rom he ulture fdonorshipytheEU toownershipythevictimsfconflict,lteringhe ontractualelationshipetweenhe wo.Despitets ootsncivil ctivism,he ermscurrentlysed lso mpliesfocuson he ation-state,s nstitutionaleform-ofhe ecurityector,hejudiciaryndgovernance-formssignificantartf he oolkiteployednder his eading.tthe evel f ndividual embertates,onflictreventionndpost-conflictecon-structionre ftenllied ostrategieshichargetfailedrfragiletates'.22Thedividingines etweenonflictreventionnd risismanagementre lsoincreasinglylurred,utwhile he wo onceptsre een scomplementary,heycan lso lash: heong-termpproachnvolvedn onflictreventionsfrequentlyknocked ff ourse ythe mperativesf short-termrisismanagement.23heconflictreventioniscourselacesmuch mphasisnavarietyfpolicynstru-ments,nd heir oordinatedse, nbridginghegapbetweenhronictructuralproblemsnstatesnd he utbreakfviolence.t also ntersectsithmultilater-alism,n eekingo ddressonflictyworkingithargettatesnd heiregionalneighbours,nd hroughartnershipsithNGOs and ocal ivil ociety.Implicationsor umanecurityHuman ecurity,s a term,anbe understoodo encompassheconceptsfconflictrevention,risismanagementndcivil-militaryoordination,ut ttakes hem urther.t draws nthedebateseneratedy heseonceptss well sother ermssedmore roadlynthe urrentlobal iscourse,uch s responsi-bilityoprotect',effectiveultilateralism'nd human evelopment'.First fall, nsecurityscloselyelatedocrisis. uman ecurityanbe treatedas the crisis nd' oftermsikehuman ightsnd human evelopment.t hastodowithhuman eed tmomentsfextremeulnerability,otonlynwarsbut nnaturalnd echnologicalisastersswell.Securitysoften iewed s theabsence fphysicaliolence, hiledevelopments viewed smaterialevelop-ment,mprovedivingtandards.nmuch he ameway, uman ightsreoftentreatedscivil ndpolitical ights,ven houghroperlypeakinguman ightsshould nclude conomic nd social ights.hesedistinctionservademuch fthe iteraturebout human ecuritys a policyconcept,yetthey remisleading.Manyconceptual oundaries,uch s thosedividing hepolitical, ivil, conomicandmilitary,ave o be redrawnnan eraofglobalizationecause hey redefinedlargely n terms f a nation-state rame.All three oncepts-human security,22Activeiplomacyor changingorld:heUK's nternationalriorities,hite aper, K ForeignndCommon-wealth ffice,ondon,8March oo6.23 Benita errero-Waldner,Conflictrevention:ookingo the uture',peech,russels,2 ept. o006.278InternationalAffairs3: 2, 2007 2007TheAuthor(s).ournal ompilation 2007 lackwellublishingtd/The oyalnstitutef International




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Humanecurity:newtrategicarrativeor uropehuman ightsndhuman evelopment-includefreedomrom ear' s well s'freedomrom ant'. usts human ightsncludes conomicnd social swellas civil ndpolitical ights,o human evelopmentsaboutmore han decentstandardfliving.t is also aboutfeelingafe n the treetsndbeing ble toinfluenceolitical ecision-making.uman nsecurity,ven nconflict,s notjustabout he mpactfmilitaryiolence;t s also about he onsequencesfhumanightsiolations,iolent rimend hematerialonsequencesf conflict.Incontemporaryars,nly minorityfdeaths ccurnbattle. ost eoplewhodiedo soeitherecausefviolenceeliberatelyargetedgainstivilianssaresultofterror,thnicleansingrgenocide,rbecause f the ndirectffectsfwar:lack faccess ohealthare, isease,ungerndhomelessness.Ratherhaneeinghese ermssrelatingodifferentieldsf ctivityeconomic,social, ivil, olitical,tc.)we canmore sefullynderstandhem sdifferentaysofaddressinguman eed.Human evelopments about apabilities,nd boutthe onstructionf nstitutionshat ive ights eaning. owadaysherule flaw,governance,ommunity-buildingnd soonare llconsideredey ompo-nents f human evelopmenttrategies,longwith oliciesnablingeople omake ustainableivelihoods.uman ightsxpresssense fhuman ignity,nacknowledgementhathuman eings ave herightodevelop hose apabili-ties-thatmeetingrgenteeds snot harityrpaternalism.So humanecurityspart fhumanevelopmentndhumanights;ut t s, fyou ike, tthe harpnd fhuman evelopmentndhumanights-itddresseswhatAmartyaenhasdescribeds the downside isks' aced y ndividualsndcommunities.24ome uthorsse he ermvulnerabilities'sopposedo threats',preferringhebroadererm hat llows ormore ubtle orms f nsecurity,otlinked o immediateiolence.25erhapshe ndicatorhat omes losest o ameasuref humanecuritysdisplaced ersons. isplaced ersonsre typicalfeaturefcontemporaryrises,othnatural isastersndwars. ince he1970sthere asbeen steadyncreasen thenumberfdisplaced ersonsrisingromeach onflict.nLebanon,n2006 or xample,verI,oooLebaneseivilians erekilled nd over 00,000 eoplewereforced o leave heir omes.Hundreds fthousandsadto eaveNew Orleanss a result f Hurricane atrina. isplacedpersonsre he ictimsfboth hysicalndmaterialnsecurity.Thus,while umanecuritys about risismanagement,t s aboutmore hanthat, or t offersperspectiven crisistself.fa 'crisis's an event repisodethat epresentsnurgenthreato the core alues nd ystemfapolity',umansecuritys abouthowwe respondo anurgenthysicalr materialhreat oindividualsnd communities.rom human ecurityerspective,he aim snot ust political tability;t encompasses notionof usticeand sustainability.Hitherto,tabilityastended obe definednterms f the bsence f overt onflictor, n an economicperspective,bouthalting downward piral f GDP or the24 Seewww.humansecurity-chs.org/,ccessedII Jan.2007.25 P. Liotta, Boomerangeffect: heconvergence f national nd humansecurity', ecurityialogue 3: 4, 2002,pp. 473-88.

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Mary aldor, aryMartinnd abineelchowvalueof a currency.nrecent ears,he nternationalommunityoes eem ohave earned ow o stabilizeonflicts,ow oreachnd ustaineace greementsandhowtostabilizeconomies.26ut t hasnotyet earned owto addresshesecurityf ndividualsnd ommunitiesnddealwith rime,umanightsiola-tions ndoblessness.heparlancef crisismanagement,speciallynthe ivilside,withinhe Udoes, f ourse,mphasizeome f hesevulnerabilities'-forexample,nthe riticalocus nstrengtheninghe rule f aw'.The anguagefhumanecurityould urtherntrenchhis ind fthinkingndwouldhelp ounderlineheneed oaddresshesevulnerabilities'nd herebyo reduce he iskofrenewedrisis.Human ecurityapabilities,ikecrisismanagement,equire ivil-militarycoordination.ut t smore hanust matterf coordination-orintegration',or synergies',o borrow rom urrentarlance;umanecuritysabout ow ndwhyivil ndmilitaryapabilitiesre ombined,atherhan heirutomaticnclu-sion spartf standardonflictoolkit.n classic ars,ivilianslwaysnsistedntheirutonomyromhemilitary.heir bilityooperate ependedn humani-tarianpace'-theirneutralitynd mpartialityere mportanto allowthemtohelpnon-combatants,risonersfwar ndthewoundedn all sides.Manyhumanitariannddevelopmentgenciesear hat ssociation ith hemilitarywillundermineheirbilityowork,nd ndeed his ashappenedn raqandAfghanistan,here he nternationalnstitutionsre erceivedobeonthe ide fthe oalition orces. uman ecurity,owever,sspelledut n thenext ection,is not aboutwar-fighting;t is aboutprotectionf individualsnd communi-ties,nd t s about xpandinghe ule f aw,while queezinghe rena f war.In contemporaryars,where iviliansretargets,umanitarianpace sdisap-pearing.na humanecurityperation,heob ofthemilitarystoprotectndpreservehatpace atherhan ofightnenemy.hushumanecuritys notustabout evelopingculture fcivil-militaryooperation;t s about nentirelynewway ffunctioningncriseshatsbest escribedy newanguagefhumansecurity.he discussionurroundingMCO does, fcourse,mphasizehatt sabout oliticaloordinationndnotust bout rganizationalrrangements,utsuch oliticaloordinationeeds obespelledut nterms fcoherentoals ndmethodsndhow heyredefined.Crisismanagement,hether e aretalkingbout onflictsr humanitariandisasters,susuallyhoughtoencompassllphasesfcrisis-prevention,itiga-tion,recoverynd reconstruction.here s a tendencyorthe nternationalcommunityo bepreoccupiedithphases ndtoassumehat ifferenthasescallfor ifferentools nd nstruments.onflictreventionddresseshe vulner-abilities' hat re associatedwith ackofhuman ecurity-joblessness, eak ruleof lawresultingncrime nd humanrights iolations,weakcapacity oprovidepublic ervices. hese can beregardeds the tructuralonditions hatmake risesmore ikely.Theyare notnecessarilyhecausesof conflicts r natural isasters,26 Final eportfthe ommissionn Human ecurity',May 003,www.humansecurity-chs.org/finalreport/index.html,ccessediJan.007.280Internationalffairs3:2,2007 2007 TheAuthor(s).ournal ompilation 2007Blackwellublishingtd/The oyalnstitutef International




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Humanecurity:newtrategicarrativeor uropebut heyweakenociety'sapacityocopewith rises. hesevulnerabilities'reusuallyxacerbatedothbyconflictndbydisasters.hus nthe ftermathfcrises,he onditionsor uturerises renot uppressedutfurtherggravated.Oursolutionso crisis ecome art fa futureroblem.ntermsfdealing ithconflict,hismeans hat econstructions alsoprevention,ndthat oth reven-tion ndreconstructioneed o focus n the ecurityf ndividualsatherhanonly nthe tabilityf states.Humanecurityould econsideredbridgingoncept'etweenhemmediateneedfor tabilizationnd theneed, imultaneouslynd over he ongterm,oaddresshesetructuralonditions.atherhaneeingtabilizationnd tructuralassistancesrelevantodifferenthases fcrisis,t s mportanto combine othduringllphases,ven houghhemix f nstrumentsay aryccordingothespecificituation.Inthe ase f he U,the ublicanguagefforeignolicyhatsbeginningoemergeromhe xperiencesf ollectivection eedsohave clearerocus. heEU has istinctiveublic ositionsn ssues uch sthe eath enalty,umanightslegislation,uantinamoay nd xtraordinaryendition. edia orrespondentsandrepresentativesf civil ocietyroups,romnionsoNGOsandbusinesses,arewideningheir orizons eyondhetechnocraticocabularyf economicintegrationo take ccount f thenew andgrowing oreignolicy imensiontotheUnion.Atpresenthis iscourses strandednfragmentedhetoricndmultipleolicyabels. hese dd tothe onfusionfpurpose ehind SDP andCFSP,andthey lso contributeo a lackoftransparencyndvisibility.umansecurity,lreadymplicitnthis iscourse,ouldoffer new dimensiono theway heEU dealswith onflictnd nstability.he next ection laborateshisargumenty pellingutwhat humanecurityolicywouldmeannpractice.PraxisHumanecuritysutopian.venfwehad he apabilities,t snot racticalrrealistic.27To espouse umanecurityanberegardedsrequiringparadigmhift romtraditionalationalecuritypproachesoforeignolicy. notherommonriti-cism fthe onceptfhumanecurity,hichppearsocontradicthe sowhat?'criticismnstancedt thebeginningf thepreviousection,s thechargehatis too dealistic.ut t canbearguedhat his aradigmhiftsactuallylreadyunder ay-and,moreover,hat henew utlooksmore ealistichanraditionalnationalecuritypproachesincetrepresentshe nly ossiblepproacho thekindsf nsecuritieshat umaneingsacenthe ontemporarylobal ra.Howwe develop heconcept fhuman ecuritynd mbue t withrelevantmeaningsactually art f theprocess f mplementinghis aradigmhift.The failure f theEuropeanconstitutionalreatyn 2005 and the presentuncertaintyverwhether nd how itmight e revived ave imited he copefor27Authors'iscussion ith olicy lannersttheGermanoreign ffice,9June 006.

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Mary aldor, aryMartinnd abineelchowinnovationnforeignolicy-making.hetreaty'sroposalsor n EU foreignminister,nd or combinedxternalctionervice,ould ave rovidednstitu-tionalupportor nexpandedU externalresence;ut, erhapss mportantly,theFrenchndDutch eferendumsparkedcrisis f democraticccountabilityamonghe 5membertatesnd ed toa paralysisf ntegration,xacerbatedydomesticoliticaltalematesuringhis eriodn theBigThree oreignolicymembertates, ermany,rancend heUK.Thefirstearsf thenew enturyave lso oincided ith he assingf thehigh-waterark fEU enlargementith he ccessionf17new centralndeastEuropeantates,uture oundsnvolving urkeynd someof theBalkanstatesemainingighlyontested.nlargementasbeen rguablyhe U's mostsuccessfuloreignolicy,nd uccessorolicies esignedosystematizeelationswithneighbourso the ast nd outh ftheUnion's ordersfferess lear-cutavenuesfexternaltabilization.

Despite llthis,ecurityolicytgroundevel as een nprecedentedrowth.TheEU currentlyas roundI0,000 personneleployedn13missionsnthreecontinents,ithAceh, udan nd heDRC (Congo) ddednthe astyearndmajor ew ngagementnKosovo lannedor 007. hediversitynd mbitionfthesemissions,rommonitoringbordernRafah omonitoringpeaceprocessinAceh, refuellingwealth fexperiencend essonsearned ndbuildingforeignolicy cquisapable f nforminguturexternalecurityolicy.Atthesame ime,hebuild pofcapabilitiesas ontinued,oth hroughhemilitaryforce enerationrocessndthe reation,rainingnddeploymentf rostersfcivilianxperts,s well s the evelopmentfplanningnd perationsnfrastruc-turenBrusselsomeet he eadlineoals f2008civilian)nd 010omilitary).hecreationf13battlegroupsndof civilianesponseeamsCRTs) s the utwardsign fthis apacityevelopment.Notwithstandinghis ositive ictureverall,henagginguestionemains:what stheEU actuallyoingwith tsforeignnd ecurityolicies?hepolit-icalandstrategicoals fESDP arepoorlyrticulated,nBrussels,nnationalcapitalsndon theground here heUnion ntervenes.andates or xternalsecurityction atebackto theTreatyfEuropean nionof 1992, exist nEuropean ouncildeclarationsating ackto 1999,28nd are best odifiednthe 003ESS. Inall these ocuments,he mphasiss onsecuritysfulfillingheEuropeanntegrationroject,nd s a necessarydjuncto theUnion's evelop-ment; uestionsbout he pecificoals ndmodes fa commonecurityolicyarenot ddressed.29he ESS itself, ithtsfocus nthreats,esponsibilitiesndcapabilities,eaves nansweredey uestionsboutwhy heUnion houldnter-venebeyond tsborders,where t should do so, andaccording o what criteria.A growing orpusof knowledge nd experience romts diverse nterventionsto date remains ractured,acking ny trategicverview r road map'to enable28Europeanouncil, residencyonclusions,ologne, une999,AnnexII,para. ,p.33.29See Stefanielechtner,European ecuritynddefenseolicy: etweenoffensiveefense"nd "humansecurity"',nternationaleolitikndGesellschaft,Oct.2006.282Internationalffairs3:2, 007 2007TheAuthor(s).ournal ompilation 2007 lackwellublishingtd/The oyalnstitutef International




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Humanecurity:newtrategicarrativeor uropethesexperienceso nformuturection. hus ome riticsake he iew hatheEU'ssecuritytrategys nfactnly pre-strategiconcept'.30Theadvantagef the ermhumanecurity's that t canbe used o combinemany ftheconceptsnd deas hathavebeendevelopedntheESDP. It canencompassonflictrevention,risismanagementnd ivil-militaryooperation,and ndeedt draws n the ssumptionsnherentn these oncepts.ut t alsooffersway oact, set fprinciplesor risismanagement,onflictreventionand ivil-militaryooperation.owan nstitutionctsncrisesecomessymbolof how t sperceivedngeneral.ecuritys bound pwith oliticalegitimacy.Wefeel afefwe trustur nstitutions,ndwe trustur nstitutionsfwe see hattheyct ffectivelyncrises.There s a lotofdiscussionowadaysbout heresponsibilityoprotect'ndthe onditionsnderwhich t srighto usemilitaryorce. here s much essdiscussionbouthowmilitaryorcehould e used nsuch role; ndyet hisis critical or ffectiverotection.here re lsodiscussionsboutwhy ivilianelementsf crisismanagementhould eused,with nemphasisnhelpingoestablishrule f aw,butmuch ess bouthowandwhen heywork ogetherwith hemilitary.uman ecurityffers setofprincipleshat pply o both'why' nd how',both nds ndmeans.3' key lementsthe stablishmentfthe ule f awand he ssociatednstitutions,ndfrom his erspectivehe oleofthemilitarys neitherar-fightingor eacekeepingut atherupportingheestablishmentfthe ule f aw.The firstrinciplef humanecurityolicysrespector umanights.hisisthe ey onceptndmost adicallyifferent,or hemilitary,romhe lassic seofmilitaryorce. orcivilianst s more bvious,ince hiss howwe behavena domesticetting.or hemilitary,tmeans he rimaryoal sprotectingivil-ians atherhan efeatingn dversary.fcourse,ometimest snecessaryotrytocapturer even efeatnsurgents,ut his as obe seen s a means o anend,civilianrotection,atherhan he ther ay ound.Thisprinciplemplies differentayofthinkingbout ollateralamage.Proportionateollateralamage anbe ustified ithin heframeworkf tradi-tionalwars gainstoreignnemies. heproblemsthat owadayst s difficultodistinguishetween ars ndhuman ightsiolations. hat ppearso Ameri-cans r sraeliss collateralamages a result f egitimatettemptsodestroyanenemyppearsootherss massive uman ightsiolations. humanecurityoperations more ike domesticperation-everyones, neffect,citizen.hisprinciplentailsminimizingll ossof ife,ncludinghe ives f the erroristsor nsurgents,ho should e treateds criminalsatherhan nemiesndwherepossible rrested atherhankilled.Thisalsomeans hat uman ecurityperationsmay e more iskyhan ontem-porarymilitary perations, ecausesaving he lives of civilianswhatever heir30 J.Lindley-French,Therevolutionnsecurityffairs:ard nd oftecurityynamicsnthe 1stcentury',Europeanecurity3: , 2004, p.1-IS.3' A humanecurityoctrineforurope:he arcelonaeportfhetudy roupn urope'securityapabilities,resentedtoEUHighRepresentativeor ommon oreignnd ecurityolicy,avierolana, arcelona,5 ept. 004,www.lse.ac.uk/Depts/global/2securitypub.htm,ccessedIIJan. 007.

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Mary aldor, aryMartinnd abine elchownationalityomes eforeorcerotection.his ssomethinghatsrecognizedyhumanightsctivists,hodo risk heirives,fnot ypoliticians.Justs ncopingwith iolence he ocussontheneeds f the ndividualndnotonly veralltabilization,neconomic ermshehuman ecurityrincipleimpliesfocusn ndividualeed atherhan n macrondicatorsike conomicgrowthrbudgetarytability.The second rinciples the establishmentf legitimateolitical uthority.Human ecurityependsnthe xistencef egitimatenstitutionshat ain hetrustf thepopulationndhave ome nforcementapacity.gain,his ppliesboth ophysicalecurity,here he ule f aw nd well-functioningystemfjusticere ssentialnconstructingn ndividualense f ecurity,nd o materialsecurity,here he rovisionf egitimatemployment,nfrastructurendpublicservices asto beunderpinnedya regulatoryramework.egitimateoliticalauthorityoesnotnecessarilyave o be wielded y state;tcould estn ocalgovernment,rregionalr internationaloliticalrrangementsikeprotector-ates rtransitionaldministrations.ince tate ailures oftenheprimaryauseofconflict,hereasons or tate ailure ave o be takennto ccountnrecon-structingegitimateoliticaluthority.easuresikeustice nd ecurityectorreform,isarmament,emobilizationnd e-integrationDDR) and xtensionfauthorityndpublicervice eformre riticalor he stablishmentf egitimatepoliticaluthority.This econdrinciplexplicitlyecognizeshe imitationsnthe se fmilitaryforce. he im f nynterventions to tabilizehe ituationo that space anbecreated or peaceful olitical rocessatherhan o win hrough ilitaryeansalone.Themilitary,ike he ivilians,lay nenablingole. hemilitaryupportand make ossible arious ivilianasks hat ontributeo theconstructionfinstitutionsapable fsolvingrmanagingonflict.n the nd, t sonly hosewhoare ngagednconflict hocan ndviolence.he most hatxternalctorscando istohelpprovideonditionshatmake his ossible.notherwords,hejobofhumanecurityorcess stabilizationrpeace upportatherhanwinning.This s obvious or ivilian risismanagementut essobvious or hemilitary,who reused obelievinghat olutionsanbe mposedhroughorce.Actually,n most ounter-insurgencyperations,ictorysvery ifficultoachieve nd canonlybe reached,fatall,through idespreadestructionndrepression.heChechenapital fGrozny,or xample, as beenreduced orubble,ut poradiciolence ontinues.he sraelis ave ucceedednslowingdownsuicide ttacks,utthe overall ituations worsening.uman ecurityprinciplesxplicitlyecognizehempossibilityf wiftutrightictorynd iminstead o establish afe ones wherepolitical olutions an be sought r wherecivilian nstrumentsan help to providethe conditions orpoliticalprocesses.Techniques uchas the establishmentf safehavens, umanitarianorridors rno-flyones aretypical f a human ecuritypproach.In this pproach, olitics s incommand.Botheconomic ndsecurity olicieshaveto beguidedbypolitical onsiderationsnd, noperationalerms,hismeans284Internationalffairs3: 2, 2007O 007 heAuthor(s).ournalompilation 200oo7 lackwellublishingtd/The oyalnstitutef nternational




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Humanecurity:newtrategicarrativeor uropethathere eeds o be a singleommander,oliticalrmilitary,hounderstandspoliticsndhas ccess opoliticaluthority.The thirdrinciples multilateralism.Effectiveultilateralism's anothereytermntheEuropeaniscourse. ultilateralismeansmore han implyactingwith/asart fa group fstates'.n that arrowense, earlyll nternationalinitiatives ight e considered ultilateral.ultilateralisms closely elatedto legitimacynd s whatdistinguisheshumanecuritypproachrom eo-colonialism.First,multilateralismeans commitmentoworkwith nternationalnstitu-tions,nd hroughheproceduresf nternationalnstitutions.hismeans, irstandforemost,orking ithin heUN framework,ut talsoentails orkingwith rsharinguttasksmong ther egionalrganizations,uch s theOSCEandNATO nEurope,heAU,SADCandECOWASnAfrica,rtheOAS nthewesternemisphere.Second,multilateralismntails commitmentocreatingommon ules ndnorms,olvingroblemshroughulesnd ooperation,nd nforcinghe ules.Nowadays,egitimateoliticaluthorityasto be situated ithin multilateralframework.ndeed,tate ailurespartlyobeexplainedntermsfthe ailureftraditionallynilateralisttatesoadapt o multilateralays fworking.Third,multilateralismas o ncludeynthesisnd nteroperability,atherhanduplicationrrivalry.n ffectiveumanecuritypproachequiresoordinationbetweenntelligence,oreignolicy,radeolicy, evelopmentolicynd ecuritypolicynitiatives;etweenhemembertates;etweenhe uropeanommissionandtheCouncil; ndbetweenhese ndothermultilateralctors,ncludingheUN,theWorld ank,he MF and egionalnstitutions.reventivendproactivepoliciesannote effectivef heyre solated,et lone ontradictory.The fourthrinciples thebottom-uppproach.t is criticalo have goodgrasp fthe ocal situation.hisrequiresntensiveonsultation,ot implyowinhearts ndminds ut norder ogainknowledgendunderstanding.hisprincipleeemsbvious,ut heres often built-inendencyothinkwe knowbest'.Women'sroupsreparticularlymportantincewomen reusuallymorelikelyhanmen obeengagednthe verydayonsequencesfconflictatherhanin sectariantrugglesor ower.Human ecuritys about mpoweringulnerableommunities,ven ncondi-tions f conflictndcrisis,atherhan oercingrregulatinghem oproducepeace.Abottom-uppproachlsomeans new ontractualelationshipetweentheEU on the ne hand nd, n the ther,tates nd ocalpeoplewho arethetargetf ntervention.t salsomore onduciveothe uccessfexternal issionsto build better oleforocal ntelligencendforonger-termustainableelations,tomakemissionsmore ccountable olocalpopulations.

The final rinciplesregional ocus.There s a tendencyo focus nparticularcountrieswhendealingwith crises.Yet insecurity pillsoverborders hroughrefugees,ransnationalriminal etworks,raden llegal ommodities, inorities,extremistdeologies nd so on. It is impossible o managethe conflictn Sierra285

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Mary aldor, aryMartinnd abine elchowLeonewithoutddressingther risesnWestAfrica,speciallyiberia. he warinAfghanistanillnot ndwithoutooperationith akistan,ran ndTajiki-stan. nd hereremanytherxamplesf badneighbourhoods'.n ts elationswithneighbouringtates,heEU hasrecognizedhe mportancef a regionalapproach.tsNeighbourhoodolicyowards ussia nd urroundingtates,ndtheBarcelonarocess/Euro-Mediterraneanartnership,oth ely n the deaofa regional ialogue,utthis rincipleasbeen ess ystematicallyppliedo itscrisis olicies.The caseofAfghanistan,hough ottheonly xample,llustrateshat ango wrongwhen heprinciplesfhuman ecurityrenotapplied.nAfghani-stan,NATOhas riedoput ntopracticeome f the urrentdeas bout risismanagementnd ivil-militaryooperationn he rovincialeconstructioneams(PRTs).Moreover,hese ffortsreundertakenithin multilateralrameworkinvolvingheUN, theEU and ndividualtates,ncludingU membertates.However,heoverallpproach epresentsmixof traditionalationalecuritythinkinglongsideome lementsf what ould mount o a human ecurityapproach.irst fall, nthe outh nd outh-east,he riorityasbeen efeatingtheTaleban atherhan rotectingeople. ince t s oftenmpossibleo distin-guish aleban ightersromivilians, any iviliansetkilled.HowevermuchNATO andUS forcesroclaimheirhearts ndminds'trategy,hekillingfciviliansndermineshose rotestations.oreover,RTs notheregionsre, sitwere,ontaminatedywhat shappeningnthe outh nd outh-east.econd,the nclusionf warlordsndopium oppy-growersnthepoliticalnstitutionsandtheweakrule f aw, ncludingeliancen,for xample,hari'aourts, asmeant failureoestablishegitimateoliticaluthority.hepresentovernmentisdependentnthe nternationalresence;espiteome eal dvancesuch s theelection fwomen,rustn nstitutionssveryow, nd hismakestextremelydifficulto mobilizeopular upportor ffortso defeatheTaleban. hird,heinclusionfwarlords,hile artly,fcourse,xplainedy heAmericanelianceon theNorthernlliancentopplinghe aleban,s also he utcome f nexces-sively op-downpproachnd failureo nvolve ivil ociety,speciallyntheinitial oliticalettlement.inally,lthoughheres now talk boutPakistan'sresponsibilityor arbouringheTaleban/Al-Qaeda,otnearlynough mphasishas beenplacedon relations ithneighbours,hus llowingnsurgentso berecruitedrombroad.Is itutopianosuggesthat he onceptf humanecurityanbeappliednsuch ifficult,angerousnd omplexrisessAfghanistan?t sevidenthat radi-tionalecuritypproacheso notwork.Moreover,lementsf a humanecurityapproach lready xist nmuchEU thinkingnddoing.What we aresuggestingis thatdeveloping henarrativendputtingntopractice heprinciplesf humansecurityhould t east etried fwe are erious boutfacing pto currentecuritychallenges.

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Humansecurity:new trategicarrativefor uropeHumanecuritys value ddedWhatwouldhumansecurity rinciplesdd towhat sbeingdonealready? ssen-tially, hey mount o a strategicarrative ith everalconsequences:* Coherence.t is verydifficulto achieve oherence hroughnstitutional ea-

sures.Turfbattles nd bureaucraticompetitionre nevitablenany argeor-ganization. dditional oordinationmechanismsanoftenjustdd to the ayersof competition.What s reallyneeded s conceptual oherence:clarity boutshared oals ndprinciples,ncouraging otions fpublic ervice nd commit-ment.* Effectiveness.heprinciplesfhuman ecurity rovide focus or xternalman-dates.Theyoffer frameworkor tandardizingoctrines nd rules fengage-ment.Essentially,heprinciples,dapted o eachsituation,ould be expressedon a card carried y personnel eployed o crisisregions.Theycould also beused as a checklist or hose nvolvednplanningndevaluatingperationsndprovide referenceointfor heEU's intervention.* Visibility.tpresent, ublicawareness f the EU role ndealingwith crises svery imited.A readily nderstandablepolicy concept ouldhelpto increasethepublic mpact f EU missions.A human ecuritypproachwould addressboth he nternalndexternallegitimacyf ntervention,nderpinningtwitha set of norms ndvalues, ndofferingoth EU citizens nd those n targetcountries ithclearprinciplesnd ustificationsor ecurityolicy.Whyshould heEU adopta humansecuritypproach nd exicon?The first ndobvious rguments self-interest.Europecan no longer nsulate tself rom risesabroad.Terrorism,ransnationalrime ndmigrationre ll ntertwined ith risesin the MiddleEast,Africa nd elsewhere.A focuson the humanfactors ehind(in)securitylso allowsus toconstructmoreplausible inks etween ur nternal/domestic ecuritynd external elations,nstead f toleratinghedichotomyfbombing nsurgentsbroad and building ommunity rogrammeso head offpotentialuicide ombers t home.But even ftherewerenot elf-interest,heresanethical rgument.uropeanswatch television nd browsethe nternet,nd if they re aware of tragediesnother arts f theworld, hey o want o be able to contributeo their lleviation.Concern boutwars,humanrights,he environmentndpovertyrepart ftheidentityfEuropeans.Perhapsmostimportantly,here s a legal argumenthatbrings ogether heethical ndself-interestarguments. uropeans ave n nterestnthe xtension finternationalaw,and nternationalaw has to be underpinned y globalnorms.Humansecuritys aboutupholdinghosenormsncrisisituations.t could erve sa 'symbolic ignpost'n thedevelopmentf theEU's strategiculture, econcilingthe Union's normative ndvalue-driven radition ith a questfor effectivenesswhichhas ed theEU todevelopmilitaryapabilities.32human ecurityoctrine32Manners,Normativeower urope'.

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Mary aldor, aryMartinnd abine elchowfor urope ringsogetheroth nternalnd xternalspectsf ecurity,nd lsosuggestsewways fcombininghem.The foundationaldeas ehind uropeanxternalelationseflectbackwardglanceohistoryswell s n ttempto ook orwardo henternationalnviron-ment f the wenty-firstentury. anyEuropeansrave rolefor heEU ontheworld tage sa peacepromoternorder o banish hedemonsfEurope'sown onflict-riddenxperience;heyeek o extendeyond urope'sordershezone ofpeace nd tabilityhich he ntegrationroject ashelped oachieve;and hey elieve hathe U canuse ts ransformativeower opersuadetherstomove rom ar opeace ndto universalizetsownnormsndethics.33headoptionf anexplicitumanecuritypproach ould eaway oreiteratendreinforcehose oundationaldeas ndhelp obreakhroughhe olitical aralysisthat ollowedhe renchndDutch epudiationfthe onstitution.ConclusionInthis rticle e have roposedumanecuritysthe asis fboth discursive/linguistichiftnd changenoperatingrinciples. ebelievehathe anguageofEuropeanecuritys mportantnd hat he urrentragmentationntomultiplepolicyabels dds ayersf inguisticonfusionoanalreadyncoherentnstitu-tionalrchitecture.uropeansn27differentembertates eed ofind ommonmeaningshat xpressheunique haracterfCFSP/ESDP ndenable hem oprojectheEU'spersonalityn theworld tage.Wehave lsoexamined hathumanecuritypproach eansnpractice,o show hat t s not implylabelservinghe U's own mages a securityctor,ut llows he U toput nplacea coherentnd nnovativeolicyailoredo the omplex eeds fcontemporaryglobal ecurity.There rethose, f course,who see the EU as a means or trengtheningEuropean ation-statesn aneraofglobalization,ndenvisage foreignolicybased nself-interest.hile hefoundationaldea(l)s ftheEU led to tsbeingcharacterizeds anormative,thical rcivilian/civilizingower,therdeas avealwaysxistedlongsidehis ominanthread,or xamplehat heEU, ratherthan heWesternuropean nion, hould e a guarantorlongside ATO ofEuropeanefence.34uman ecurityffersway oreiteratendreinforcehosefoundationaldeas,which renspirationalomanyuropeans,nd odistanceheEU fromspirationsogreatower tatus.Finally,humanecuritypproach ay e the nlyway o closewhat anbedescribedsthe ecurityap.Conventionalilitarypproacheso not eemobeworkingnplacesike raqorAfghanistanr Lebanon.Millionsfpeopleive nsituations fdeep nsecurity,n argeparts fAfrica,heMiddleEast, heBalkans,CentralAsia and theCaucasus. The inability f our institutionso address hechallenge fglobal nsecurityreatly eakens heiregitimacy.33SeeJavierolana,Three easonsor urope', RCHandelsblad,7May 005.34Javierolana,Remarkso the ressnthe esultsfthe renchonstitutionaleferendum,0May 005', nEUsecuritynd efence:ore ocumentsoos, haillot aper 7,March 006.288Internationalffairs3:2,2007 2007 TheAuthor(s).ournal ompilation 2007Blackwellublishingtd/The oyalnstitutef International

human securitya new strategic narrative for europe

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