斯德哥尔摩国际和平研究所-Towards-a-more-capable-European-Union-civilian-CSDP_20页_811kb

Summary of the TOWARDS A MORE CAPABLE EUROPEAN UNION CIVILIAN CSDP Document

Core Content

The Civilian Common Security and Defence Policy (CSDP) Compact, established in November 2018 by EU member states, aims to enhance the capability, effectiveness, and coordination of civilian CSDP missions. The compact outlines 10 strategic guidelines and 22 political commitments, with a key objective of increasing the share of seconded personnel (from member states or non-EU countries) to at least 70% by 2023. While the compact is not binding, member states have committed to fully implementing it.

The document evaluates the progress made in achieving these commitments and analyzes the evolution of demand and supply for civilian capabilities in CSDP missions, highlighting challenges in burden sharing and contribution imbalances.

Main Points and Key Information

1. Member State Contributions to CSDP Missions

• Since the Lisbon Treaty in 2009, member state contributions to civilian CSDP missions have been declining.
• As of June 2019, 700 personnel were seconded to civilian CSDP missions, a significant drop from nearly 2000 in 2010.
• Only 65% of the international personnel in missions are seconded, with the remaining being contracted.
• The share of seconded personnel in missions has remained low in several key missions, including those in Iraq, Libya, Mali, Niger, and Somalia.

2. Trends in Personnel Demand

• The total number of authorized personnel in civilian CSDP missions has decreased from over 3000 in 2010 to around 1400 in 2019.
• The geographic distribution of demand has shifted from Europe to MENA and sub-Saharan Africa.
  • The share of European missions in total demand fell from 78% to 57%.
  • MENA missions increased from 6% to 15%.
  • Sub-Saharan African missions increased from 2% to 28%, mainly due to the expansion of EUCAP Sahel Mali and EUCAP Sahel Niger.
• The functional distribution of personnel has also changed:
  • The share of operational personnel in missions has dropped from 81% in 2009 to 59% in 2019.
  • Support roles (e.g., logistics, medical, and security) are increasingly filled by contracted staff.

3. Supply and Contribution Imbalances

• Poland, Sweden, Germany, France, Denmark, Finland, Italy, and the Netherlands are the largest contributors to civilian CSDP missions.
• The top eight contributors provide 69% of all seconded personnel, with Nordic states (Denmark, Finland, Sweden) contributing 23% of total personnel.
• The contribution share of the five largest EU economies (France, Germany, Italy, Spain, UK) is substantially lower than their share of the EU’s total GNI (71%) and population (63%).
• Burden sharing is increasingly uneven, with some states contributing more than others, and non-EU countries also providing personnel, particularly in sub-Saharan Africa.

4. Challenges in Implementation

• The decline in personnel contributions has led to an increase in reliance on contracted staff, especially in sub-Saharan Africa.
• Operational positions are prioritized in the compact, but the share of operational personnel has not increased.
• Member states are more likely to contribute to European missions due to cultural proximity, safety, and political interest.
• French language requirements in Sahel missions continue to be a challenge for other member states.

5. Recommendations

• Member states should increase personnel contributions, participate in more missions, and develop both operational and support capabilities.
• The European External Action Service (EEAS) should professionalize recruitment and systematically inform member states about capability needs.
• The representation of women in missions should not be compromised in the pursuit of more personnel.
• The compact includes a separate policy brief on promoting gender equality in CSDP missions.

Conclusion

Despite the ambitious goals of the CSDP Compact, progress has been limited. The decline in contributions and the increasing reliance on contracted staff have undermined the effectiveness and credibility of civilian CSDP missions. Geographic and functional shifts in demand have further complicated burden sharing, with major imbalances in the distribution of contributions. To achieve the objective of a more capable CSDP, member states must realign their efforts and address these challenges through better coordination, recruitment, and resource allocation.