荷兰国际关系研究所-解构欧洲开放式战略自主-从概念到实践（英）-2021.11-54页_1mb

Summary of "Unpacking Open Strategic Autonomy"

Core Content

This report explores the concept and practical implications of the EU's open strategic autonomy (OSA) agenda, focusing on its impact on industrial and trade policy, and particularly on the defence industrial sector from a Dutch perspective. The report is structured into two parts and includes an executive summary, introduction, and key findings.

Main Points

1. Open Strategic Autonomy: A Contested Concept

• Definition: Open strategic autonomy refers to the EU's desire to enhance its strategic independence while maintaining openness in trade and economic relations.
• Origins: The concept was first introduced in 2013 in the context of security and defence policy, and has since expanded into other areas such as industrial and trade policy.
• Rationale: The idea gained traction after the Covid-19 pandemic highlighted vulnerabilities in global supply chains and the need for resilience in strategic sectors.
• Concerns: Some member states, including the Netherlands, fear that the pursuit of strategic autonomy may lead to protectionism, unfair advantages for French and German industries, and eroded interdependence that has historically benefited the EU.

Key Initiatives and Proposals in Industrial and Trade Policy

The EU has outlined six main goals for its open strategic autonomy agenda, as detailed in Table 1:

1. Strengthening resilience and reducing strategic dependencies in key sectors

   • Periodic review of strategic dependencies
   • Diversification of international supply chains
   • Investment in industrial alliances
   • Mobilisation of public and private investments via IPCEI
   • Revision of state aid guidelines
   • Increased investment in strategic sectors and R&D
   • Stockpiling of critical goods

2. Protecting against economic coercion and unfair trade practices

   • Drafting an anti-coercion instrument
   • Legal tools to counter foreign subsidies
   • International Procurement Instrument
   • WTO reform (dispute settlement, trade policy monitoring, industrial subsidy rules)

3. Protecting critical infrastructure and technology

   • Monitoring critical technologies via the EU Observatory
   • Implementing a robust FDI screening mechanism across all member states

4. Protecting and advancing the EU's values and standards

   • Strengthening EU trade agreements and internal regulations
   • Modernising export control regulations
   • Engaging with like-minded partners
   • Launching sustainability initiatives in the WTO

5. Protecting the EU's internal playing field

   • Applying a proportional and inclusive approach
   • Ensuring openness for all member states in investment and alliances
   • Supporting start-ups and SMEs

6. Fostering and protecting an open global economy

   • Engaging with like-minded partners
   • Developing new partnerships
   • Reforming the WTO

Compatibility of Strategic Autonomy and Openness

• The report argues that strategic autonomy and openness are not inherently incompatible, and can even be complementary.
• However, there are tensions and trade-offs, such as the potential for defensive responses and retaliation.
• Some initiatives, like the Carbon Border Adjustment Mechanism (CBAM) and revised state aid rules, directly affect the openness of the EU economy.

Recommendations for the EU and the Netherlands

For the EU (Commission):

• Apply the principle of proportionality consistently in industrial and trade policy.
• Make strengthening the international framework of interdependence a core part of the OSA agenda.
• Prepare measures to prevent and protect against potential retaliation from other countries.
• Reform the WTO to restore its functionality and establish new rules on industrial subsidies.

For the Netherlands:

• Conduct regular strategic dependency reviews.
• Be proactive in facilitating cross-border industrial cooperation where beneficial.
• Play an active role in shaping instruments to counter economic coercion and unfair trade practices.
• Leverage the European Defence Fund (EDF) and other procurement programmes to support its Defence Technological and Industrial Base (DTIB).

Part II: Open Strategic Autonomy in Defence Industrial Policy

Key Findings:

• The European Defence Technological and Industrial Base (EDTIB) is protected nationally under Article 346 of the TFEU, which allows member states to exempt defence procurement from EU common market rules.
• The main challenge is overcoming intra-European fragmentation and ensuring cooperation among member states.
• The European Defence Fund (EDF) provides financial incentives for cross-border cooperation, which is crucial for SMEs.
• The Netherlands, with its SME-dominated DTIB, benefits from European procurement programmes and the EDF, but needs government co-funding to ensure follow-through.

Conclusion

The EU's open strategic autonomy agenda is a response to a changing strategic context, including the rise of multipolarity, global supply chain vulnerabilities, and economic coercion. While the agenda aims to enhance resilience and autonomy, it must be pursued in a way that preserves openness and multilateralism. The Netherlands, as a cautious supporter, has the potential to benefit and shape this agenda through strategic review, cross-border cooperation, and active participation in policy development.