The European Union (EU) has emerged as a major player in the field of international mediation, skilfully using its diplomatic expertise and extensive resources to promote peace and stability. This overview examines the evolution of the EU’s role in mediation from its beginnings after the Second World War to its current strategies and capacities. Rather than providing a critical review or assessment, this overview aims to highlight the significant milestones, institutional developments, and key frameworks that have shaped the EU’s mediation efforts over the decades. From its early conflict prevention initiatives within Europe to its current global mediation activities, the EU has continuously adapted its approach to address the increasing complexity of international conflicts. This narrative explores how the EU has positioned itself as a prominent mediator on the world stage, emphasising its commitment to peace and stability through structured and strategic mediation efforts.

Early Beginnings: The Seeds of Peace

The roots of EU mediation can be traced back to the period after the Second World War when the European Coal and Steel Community (ECSC) was founded in 1951. The ECSC aimed to link the European economies so closely together that war would not only be unthinkable, but materially impossible. This initiative laid the foundations for the EU’s lasting commitment to peace and stability.

As the ECSC evolved into the European Economic Community (EEC) and later the European Union, the prevention of conflicts within Europe continued to take centre stage. The EU’s early mediation efforts focussed primarily on internal disputes and regional stability and formed the basis for its broader international role.

Broadening Horizons: The Balkans and Beyond

 The 1990s marked a significant turning point for EU mediation, triggered by the violent break-up of Yugoslavia. The EU’s involvement in the Balkans, in particular its role in co-mediating the Dayton Agreement in 1995, demonstrated its growing capabilities and ambitions in conflict resolution. The Dayton Agreement, which ended the Bosnian war, highlighted the EU’s potential as a mediator in complex multi-party conflicts. In response, the EU decided to develop a Regional Approach aimed at fostering cooperation between the countries of the former Yugoslavia and the EU, promoting stability and integration within the region (Pippan, 2004).

Building on this experience, the EU began to extend its mediation efforts beyond Europe. The creation of the Common Foreign and Security Policy (CFSP) in 1993 established a formal framework for the EU’s external action, including mediation. The CFSP enabled the EU to take a more coherent and effective approach to international disputes by utilising its collective diplomatic weight.

The Lisbon Treaty and the European External Action Service

 The Treaty of Lisbon, which came into force in 2009, was an important milestone in the development of EU mediation. The Treaty created the European External Action Service (EEAS), a diplomatic body designed to improve the coherence and effectiveness of EU foreign policy. The EEAS plays a central role in coordinating the EU’s mediation efforts, supporting the EU Special Representatives and integrating diplomatic, security and development policy instruments. Before its creation, the EU faced limitations in mediation due to insufficient internal capacity and coordination (O’Donnell, 2016). The EEAS consolidates the EU’s mediation capacities by pooling diplomatic resources and expertise.

The High Representative of the Union for Foreign Affairs and Security Policy (HR/VP), a position also introduced by the Lisbon Treaty, has further strengthened the EU’s internal coordination and cooperation capacity, which is crucial for mediation efforts  (Scalera & Wiegand, 2018). The High Representative, who is also Vice-President of the European Commission, ensures that the EU’s foreign policy measures, including mediation, are harmonised and strategic.

Institutionalisation and EU Special Representatives

 To enhance its mediation capabilities, the EU developed specialized institutions and roles. A cornerstone of this strategy is the appointment of EU Special Representatives (EUSRs), who are entrusted with specific regional or thematic mandates. This structure allows the EU to engage intensively in various conflict situations, tailoring its approach to the unique dynamics of each case.

EUSRs work closely with High Representatives, EEAS officials, and EU delegations, taking the lead in mediating conflicts. Their responsibilities include participating in peace negotiations, undertaking mediation tasks, and monitoring the implementation of peace agreements. Their roles are instrumental in advancing EU policies and interests in specific regions, actively contributing to peace, stability, and the rule of law.

According to the EEAS website (2023), EU Special Representatives are instrumental in shaping the EU’s diplomatic efforts. They act as the voice of the EU in conflict zones, providing a consistent and dedicated presence that helps to build trust and promote dialogue between conflicting parties. There are currently nine EU Special Representatives, each focussing on specific regions and crises, such as the Middle East peace process, the Horn of Africa and the South Caucasus.

By deploying EU Special Representatives with specific mandates, the EU ensures that its mediation efforts are tailored to the unique challenges and dynamics of each conflict. This strategic approach allows the EU to address both the immediate and underlying causes of conflict, promoting long-term stability and peace. Thanks to their expertise and presence on the ground, EU Special Representatives can navigate complex political landscapes, liaise with a wide range of actors and provide crucial support to local peace initiatives.

The Mediation Support Unit

The integration of mediation into the EU’s foreign policy toolbox is also supported by the Mediation Support Team (MST) within the EEAS, which provides expertise, training and resources to EU delegations and missions involved in peace processes (Bergmann, 2020).

The MST plays a crucial role in ensuring that the EU’s mediation efforts are effective and coherent. It provides technical support, develops mediation strategies and helps coordinate mediation activities in different regions and conflicts. The team also participates in capacity-building initiatives and supports both EU and local mediators in improving their skills and knowledge.

By integrating the MST into the EEAS, the EU leverages its existing diplomatic infrastructure to strengthen its mediation capacities. This arrangement allows for a more streamlined and coherent approach to conflict resolution and ensures that the EU’s mediation efforts are well coordinated and aligned with its overall foreign policy objectives.

Strengthening EU Mediation: Key Frameworks and Guidelines

 While the Treaty of Amsterdam, which came into force in 1999, consolidated the EU’s CFSP structures and instruments, it wasn’t until nearly a decade later that mediation became a central focus of EU foreign and security policy with the adoption of the 2009 “Concept for strengthening the EU’s mediation and dialogue capacities” (Bergmann, 2020).

This concept was an important step towards formalising the EU’s approach to mediation. Given the increasing complexity and frequency of conflicts, the EU wanted to strengthen its capacity to effectively mediate and support dialogue processes worldwide. This concept outlined a comprehensive strategy to strengthen the EU’s mediation capacities. It showcased the EU’s increasing expertise as a mediator and highlighted its ambition to implement a more structured approach to mediation, which included enhancing its capacities (Council of the European Union, 2009).

 After eleven years, the Concept of EU Peace Mediation, adopted in December 2020, updated the 2009 Concept. The 2020 Concept revised the policy foundation for EU mediation, outlining specific features, strengths, and comparative advantages of EU mediation practices based on lessons learned over the previous decade.  The 2020 concept strongly emphasizes the importance of the EU’s partnership with the United Nations in peace mediation. It “reconfirms its strategic solidarity with the United Nations and Provides the policy foundation for EU mediation” (Council of the EU, 2020). Key aspects of this updated concept include strategic integration, inclusive processes, local ownership, encouraging innovative approaches, the use of new technologies in mediation, and adapting strategies to the specific dynamics of each conflict.

The EU Peace Mediation Guidelines represent the latest evolution of the EU’s approach to mediation. The Guidelines were updated in 2023 to address new and emerging challenges and consider significant global changes following Russia’s military aggression against Ukraine. The purpose of these Guidelines is to translate the EU Peace Mediation Concept into practical guidance for EU mediators, as well as inspire the broader community of EU peace mediation practitioners, including EU Member States and NGOs.

The 2023 Guidelines serve as a comprehensive EU reference, complementing other international materials like the UN Guidance for Effective Mediation. The Guidelines are divided into two sections: Thematic Priorities, which includes sixteen chapters covering EU policies, frameworks, and best practices, and Mediation Capacities and Support, focusing on practical capacity-building aspects such as training, coaching, and evaluation.

EU`s 2016 Global Strategy: Combining Diplomacy, Development, and Security

With the 2016 EU Global Strategy, the EEAS declared mediation as its second main priority, reflecting a significant strategic shift in the EU´s foreign policy approach. This move underscores the EU’s evolving role on the global stage, where it seeks to balance military constraints with its considerable economic influence to develop its own identity as a mediator in international conflicts (Herrberg, 2018).

The EU’s 2016 Global Strategy emphasises the EU’s commitment to promoting peace and stability through diplomatic means rather than relying primarily on military intervention. This strategic reorientation is in line with the EU’s wider foreign policy responsibilities, which recognise the limits of hard power and the importance of using its economic and diplomatic strengths to influence global affairs. By prioritising mediation, the EU recognises that sustainable peace can best be achieved through comprehensive dialogue and negotiated solutions.

By placing mediation at the top of its priorities, the EEAS aims to improve the EU’s ability to act as a neutral and credible mediator in conflicts around the world. This includes not only direct mediation efforts but also supporting local peace initiatives, promoting dialogue between conflicting parties and building institutional capacity for conflict resolution. The EU pursues a holistic approach that addresses the root causes of conflicts such as poverty, inequality and governance deficits.

Conclusion

The EU’s journey as a mediator has evolved significantly from its early beginnings with the European Coal and Steel Community, aimed at ensuring peace within Europe by making war materially impossible. This foundation laid the groundwork for the EU’s lasting commitment to peace and stability, initially focusing on internal disputes and regional stability within Europe. The 1990s marked a pivotal shift with the EU’s involvement in the Balkans, particularly its role in co-mediating the Dayton Agreement, which showcased its growing capabilities and ambitions in conflict resolution.

The Lisbon Treaty in 2009 further solidified the EU’s mediation framework by establishing the EEAS, enhancing internal coordination and capacity. The appointment of EUSRs, each with specific regional or thematic mandates, allowed for a more tailored and strategic approach to mediation efforts, addressing the unique dynamics of each conflict. The integration of the MST within the EEAS provided essential technical support and resources, further strengthening the EU’s mediation capacity.

Key frameworks like the 2009 Concept on Strengthening EU Mediation and Dialogue Capacities and its subsequent update with the 2020 Concept on EU Peace Mediation have been instrumental in formalizing the EU’s approach to mediation. These concepts have emphasized the importance of strategic integration, inclusive processes, local ownership, and innovative approaches in mediation. The updated 2023 EU Peace Mediation Guidelines reflect the latest evolution of the EU’s approach, addressing new challenges and significant global changes, including the impact of Russia’s aggression against Ukraine.

 The 2016 EU Global Strategy underscored the EU’s commitment to combining diplomacy, development, and security to promote peace and stability. By prioritizing mediation, the EU recognizes the limits of hard power and emphasizes the importance of comprehensive dialogue and negotiated solutions to achieve sustainable peace. This holistic approach addresses the root causes of conflicts and leverages the EU’s economic and diplomatic strengths to influence global affairs positively.

 Looking forward, the EU aims to enhance its mediation capabilities by strengthening early warning systems, fostering collaboration with regional organisations, and investing in local mediation capacities. Despite the challenges posed by geopolitical rivalries, internal divisions, and the complexity of modern conflicts, the EU remains committed to its role as a mediator, continually adapting and evolving its strategies to support global peace and stability.

References:

Bergmann, J. (2020). The European Union as international mediator brokering stability and peace in the neighbourhood. Springer International Publishing. https://link.springer.com/book/10.1007/978-3-030-25564-0

Council of the European Union. (2009). Concept on strengthening EU mediation          and dialogue capacities. Brussels.https://eeas.europa.eu/archives/docs/cfsp/conflict_prevention/docs/concept_strengthening_eu_med_en.pdf Accessed 02 January 2023.

Council of the EU. (2020b). “Concept on EU Peace Mediation.” At: https://eeas.europa.eu/sites/default/files/st13951.en20.pdf.

Herrberg, A. (2018). Effective mediative diplomacy and its seven virtues: The case of the European Union. Peace & Change, 43(3), 292–317. https://doi.org/10.1111/pech.12299

O’Donnell, H. (2016). The European Union as a Mediator in Israel-Palestine: Operations Cast Lead and Protective Edge. EU Diplomacy Papers, 1.Pippan, C. (2004). The rocky road to Europe: The EU’s stabilisation and association process for the Western Balkans and the principle of conditionality. European Foreign Affairs Review, 9(2), 219–245.

Scalera, J. E. & Wiegand, K. E. (2018): The motivation of European Union mediation in civil conflicts, European Security, DOI: 10.1080/09662839.2018.1514388. https://doi.org/10.1080/09662839.2018.1514388