2012年-CEPS欧洲政策研究中心_Is_the_EU_5页_586kb

报告摘要

EUCAM Summary: EU-Central Asia Strategy Analysis

Core Content

The EU-Central Asia Strategy is entering its fourth year of implementation and has been structured around seven engagement priorities. Despite some progress in dialogue and specific areas of cooperation, the strategy is facing growing challenges in effectiveness and sustainability. This analysis highlights the limitations and suggests a more focused and values-driven approach to EU engagement in the region.

Main Points

1. Deficit in Defining EU Interests

The EU has not clearly integrated its normative, technical, and interest-based agendas in Central Asia.
The strategy lacks tangible progress in building regional cooperation due to hostile personal relations among leaders and interdependent yet non-cooperative economies.
There is a need for internal EU coordination and engagement with other international actors.

2. Three Challenges to the Strategy

a. Limited Funding and Broad Priorities

The EU allocated €321 million (≈ €20 million per country per year) for the 2011-2013 period, which is considered modest compared to its neighbors.
The current list of priorities is too broad, leading to diffuse funding and limited impact.
There is a risk of funding being redirected to other regions, undermining the EU's credibility in Central Asia.

b. Divided EU Approach to Authoritarian Regimes

The EU's approach to Central Asian leaders is inconsistent, with some being more flexible due to energy interests.
Uzbekistan is a notable case, where human rights dialogues have been separated from other policy discussions.
EU institutions (Commission and Council) are divided in their engagement, and NATO's interests in Afghanistan have influenced the EU's approach.

c. Unclear Security Objectives

The EU's security-related activities are often indirect, focusing on governance and local engagement.
The Border Management Programme (BOMCA) is the only direct EU-funded security project.
The EU lacks clear objectives and measurable outcomes in addressing regional security challenges, such as narco-trafficking, inter-state conflicts, and internal instability.

Key Recommendations

The EU should integrate security and development more closely, particularly through Security Sector Reform (SSR).
Focus on good governance, rule of law, democracy, and human rights as core components of the strategy.
Use values-based frameworks like the EU Initiative on Rule of Law to promote reform and regional cooperation.
Prioritize funding on areas where it can have the greatest impact, such as border management, disaster response, and water security.
Address intra-regional security threats, such as water scarcity, corruption, and ethnic tensions, through coordinated EU efforts.

Regional Security Challenges

Central Asia faces drug trafficking, human trafficking, organised crime, and terrorism.
External threats from Afghanistan and Iran compound internal instability.
Water resource disputes between upstream and downstream states represent a significant intra-regional security risk.
The EU's narcotics control efforts risk being misused by local elites for internal political purposes.

Conclusion

The EU has the potential to make a meaningful impact in Central Asia if it focuses its resources and links security to development.
A values-based approach is essential to ensure alignment between EU interests and Central Asian realities.
The EU must move beyond mere dialogue and towards concrete action to build trust and cooperation in the region.

EUCAM Overview

EUCAM (European Union Central Asia Monitoring) was established in 2008 to monitor the implementation of the EU Strategy for Central Asia.
It has evolved into a knowledge hub on Europe-Central Asia relations, focusing on security, development, and democratic values.
The project is coordinated by FRIDE, with support from the Karelian Institute, CEPS, and the Finnish Ministry of Foreign Affairs.
Outputs include policy briefs and comprehensive reports on key issues affecting the Europe-Central Asia relationship.