Human Security: A New Strategic Narrative for Europe Author(s): Mary Kaldor, Mary Martin and Sabine Selchow

Source: International Affairs (Royal Institute of International Affairs 1944-), Vol. 83, No. 2, Europe at 50 (Mar., 2007), pp. 273-288 Published by: Wiley on behalf of the Royal Institute of International Affairs Stable URL: http://www.jstor.org/stable/4541698 . Accessed: 03/04/2013 06:48
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Human security: forEurope a newstrategic narrative

AND SABINESELCHOW MARTIN MARY MARY KALDOR,

in Iraq].Instead situation Absolute wouldbe thewrong response [tothecurrent despair call in must be used as a is theWest's current constructive thedisaster that strategy Iraq its around human to to theinternational policy security community reconfigureforeign than rather national security. Affairs' UN Undersecretary for Humanitarian Jan Egeland, to thesecurity of individuals and communities, Human security refers expressed fromwant'. Severethreats to human fromfear'and 'freedom as both 'freedom to natural disasters such as hurricanes security rangefromgenocideand slavery to food,healthand housing.In this or floodsto massiveviolationsof the right a qualiwe arguethattheadoptionof a humansecurity article, conceptrepresents This is and security tativechangein the conductof foreign policy. step-change it seeks to its effectivethe Union as relevant for improve European particularly and humansecurity nessand visibility as a collective globalactor.Termsmatter, or an label which is not simplya leitmotif forEU security analytical policies,2 in role the that such as normative the EU's international way concepts categorizes itprovides an enduring and dynamic powerhavedone.3Rather, poweror civilian a frame which for frame action, European foreign policy organizing security can be seenas a proactive textsand practices lack. Thus humansecurity currently to further EU foreign narrative withthepotential policyintegration. strategic of a human thisorganizing we examinetwodistinct To elaborate frame, aspects or is and written about and or whatit doctrine: what said lexis, it; praxis, security of everyday from to tactics on the meansin terms actions, ground. policies becauseit dealswithhow policy-makers The lexis of humansecurity matters This is issuesof externalsecurity. and the Europeanpublicview and articulate we need to knowwhatwe meanwhen notjust thestuff of academicdiscussions; Even and goalsof EU external relations. we talkabouttheideas,values,interests use and unhelpful who regardconceptswith suspicionas abstract practitioners
2

12 Oct. 2006. Quoted by SarahBoseley,'One in 50 Iraqis "killed sinceinvasion"',Guardian, of Human and substantiveness: Sascha Werthesand David Bosold, 'Caught betweenpretension ambiguities onforeign eds, Human Security policy Securityas a political leitmotif',in Tobias Debiel and Sascha Werthes, andcases(Duisburg: Eigenverlag, 2006). agendas, changes, concepts in terms?', Ian Manners, 'Normativepower Europe: a contradiction workingpaper 38/2000,Copenhagen tomorrow: Peace ResearchInstitute; Frangois Duch~ne, 'Europe'srolein worldpeace', in R. Mayne,ed., Europe look ahead(London: Fontana, 1972). sixteen Europeans

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Martin andSabine Selchow Kaldor, Mary Mary them asmind inpractical andproblem-solving. Atthe unconsciously analysis maps same recent debates ofthe'global about thesemantics waron terrorism', or time, whether what is going on in Sudanshould be called reveal acute genocide, politicalsensitivity In a Europe towards terms andlabels. of27 member states, policy canhelpus to reach common andexpressions ofissues. concepts understandings Thepraxis ofhuman with how this deals doctrinal into translates security concept inguiding andwhether itis useful theactions ofpolicy-makers, action, practical and in the field. planners experts

Lexis andlexicon
Wealready dohuman don't call itthat.4 we security, just Thisis a common indiscussions with about theconcept of response practitioners human It there is a that difference between security.presupposes something calling 'human andactually 'human that or is,between security' security', doing concepts ideasandpolitical if Yet take hold resonate, practice. political concepts only they if they contain realmeaning either as providing a guideto action or a descriptionofpractice, andifsubsequently action confirms therightness ofthedescription.Terms like'humanitarianism' or 'democracy' have often as beendiscredited Orwellian of wars are conducted in when their name, types Newspeak precisely because areempty vessels. they linguistic intheEuropean AndSecurity Common Developments Foreign Policy (CFSP) havehelped an butthelexicon of terms discourse, catalyse emerging European used isa muddled which obscures rather than clarifies the nature ofEuropean affair, Three terms that are used to name at what 'is done' foreign policy. key provide least a partial viewofwhat we mean a and Defence by European Security Policy arecrisis coordination andconflict (ESDP): these management, civil-military prevention. Wehave selected these asonesthat areexplicitly usedwithin texts about concepts that features oftheideaof'human certain essential can ESDP,indicating security' incurrent befound andleading ustoassert ESDP discourse, that 'human security' in essence seems to be something we argue the that However, 'European'. using term 'human canhelptotake what isdonea stage further. specific security'

Crisis management
a crisis issomething that isconsidered an'urgent threat tothe Generally speaking, values ofa polity'.5 core Theterm 'crisis the management' exemplifies imprecision of theEU's CFSP andESDP language andillustrates the'terminological jungle'
that surrounds collective Terms like'crisis crisis 'civilian security response', policy.6
PostConflict 4 Interview, Reconstruction forInternational Unit, London, 7 July Department Development, 2006. andMark andcrisis inthe Boin, Rhinard, 'Funtional s Arjen Magnus Ekengren security management: capacity Union', European April 2006, p. 2, http://www.eucm.leidenuniv.nl/content_docs/eucmreportapril2006 lastaccessed web_publication_version.pdf, I Feb.2007. Crisis andprocesses 'EU crisis institutions forconflict 6 International Group, response capability: prevention andmanagement', Brussels. issues 2,26June report zo2ol0, 274
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Human a new narrative security: strategic Europe for and'conflict' and'humanitarian and'crisis', areoften usedasif response', response' The defines were Commission crisis they interchangeable.' European management as 'humanitarian andrescue tasks andcombat-force tasks in tasks, peacekeeping crisis There is a tendency within theEU management, including peacemaking'.8 'crisis' with conflict. crises are discourse to equate referred to Although officially aseither 'man-made' or'natural', itisusually 'man-made' crises that areconsidered an 'urgent tothecoreofvalues oftheEU as a polity'. threat andthesystem in of The EU defines crisis terms on the management capabilities, focusing of civilian instruments crisis such as the the rule of (CCM), management police, As Renata lawandcivil Dwan points crisis out,civilian protection. management tothe in the of EU andhasnoequivalent lexicons 'isparticular UN, OSCE parallel ornon-European organisations'.9 regional The European Councildefines CCM as designed to help 'restore civilian other such as means to restore instruments, government' alongside military peace andeconomic means to restore theviability ofconflict andconsiders both zones, andcivilian crisis as short-term instruments in the military management applied immediate reaction toa crisis.Io TheCommission, considers CCM to contrast, by
be a long-term Recentefforts to integrate CCM activity." long- and short-term

ofanattempt a more actions tobuild coherent andproactive, rather part represent than to CCM. reactive, approach the inthe ofthe inthe Itwasonly after endofthe ColdWar, face crises Balkans, that theEU anditsmember states identified the need for viableand explicitly crisis felt structures and to synchronised management 'obliged engagemore in conflict and crisis directly prevention management'.12 The first of newprocedures and structures forthe stepin theestablishment of a coherent and crisis (CM) capability development comprehensive management initiative tointegrate theso-called wastheSwedish-Finnish tasks into Petersberg in in theAmsterdam The concern the Balkans crises was Treaty 1996. primary theEU's lackof military hencethemainfocus was on building a capabilities; while the concern for civilian came second. force, military European capabilities Since2002, thenegative term hasbeenincreasingly 'non-military' replaced by thepositive term a discursive shift which stresses themulti'civilian', illustrating ofCM,involving ofpersonnel faceted character a widevariety from officers police
7 Benita Ferrero-Waldner, 'The role of crisisresponsein externalrelations:"fromneeds to solutions:enhanc-

to conference organizedby the ing civiliancrisisresponsecapacityof theEuropean Union"', paperpresented European Commissionin cooperationwith the CrisisManagementInitiative (CMI), Brussels,14 Nov. 2005, speech/o5/684. accessed 14Jan.2007. www.ec.europa.eu/comm/external_relations/cfspp/cppcm/cm.htm, 9 Quoted in AgnieszkaNowak, 'Civilian crisismanagement withinESDP', in AgnieszkaNowak, ed., Civilian the EU way,Chaillot Paper 90o, crisis management: June2006. ina better world: documentproposedbyJavier Solana and adopted by 'o A secure Europe European Security Strategy, the heads of stateand government at theEuropean Council in Brussels, 12 Dec. 2003. " 'We recognisethat conflict preventionand crisismanagementare long termundertakings':Chris Patten, 'Debate on conflict 14March 2000, prevention/crisis management', plenary, Strasbourg, European Parliament speech/oI/I23. Helsinki',joint meetingof the policy dimension:the ESDP after i2 Chris Patten,'The EU's evolvingforeign Committee with membersof the NATO Parliamentary European ParliamentForeign Affairs Assembly, 22 Feb. 2000. Brussels, speech/oo/5I,

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Martin andSabine Selchow Kaldor, Mary Mary tojudges andfiremen. Thisisconsistent with ontheground, where developments themajority of EU missions havebeencivilian. it also reflects the Importantly, foundational ideaespecially in the and Nordic member states of strong Germany theEU as a 'civil power'. The ideaofcivilian crisis wasgiven the2006 management prominence during Finnish via the of the Action Plan for Crisis presidency adoption Non-military of the EU, intended effective to establish mechanisms of rapid Management coordination anddeployment. once seen as the ideaof Rapidresponse, guiding a collective is now subsumed under crisis security European presence, management. Meanwhile theimperative ofresponding ofDecember tothetsunami 2004 extended theconcept of crisis to cover natural civil disasters and management of local protection populations.

coordination (CMCO) Civil-military

The EU's crisis efforts are increasingly characterized management by a drive forintegration and comprehensiveness. Thisrefers to integration between the different of EU as to and well as the coherence of 'pillars' activity,'3 integration civilandmilitary A to crises capabilities. comprehensive civil-military approach in theEU's understanding is embedded of contemporary and challenges threats. to the 'In contrast to themassive According European Security Strategy (ESS), in visible threat theCold War, noneof thenewthreats in theESS] is [outlined nor can be means. tackled Each a purely military; any military bypurely requires mixture ofinstruments."'4 inNovember Theconcept ofCMCO adopted tothe refers 2003 bytheCouncil internal coordination ofthe EU's military crisis andcivilian management efforts."5 Incontrast tonational ofcivil-military the EU'sversion coordination, conceptions ispolitical rather than In order achieve to theEU coherence, military-operational. of in theCouncil theideaof a concept CMCO, as expressed paper, promotes 'culture ofco-ordination': Rather than toputtoomuch ondetailed structures orprocedures ... seeking emphasis Theaim must betoencourage andtoensure inthe the co-ordination actions ofrelevant EU actors inallphases ofthe Inthis itisimportant torecognise that context, operation. CMCO culture this needs tobe 'built toa crisis into' the EU'sresponse attheearliest and for the whole duration rather than ofthe on'at 'bolted stage possible operation, being a later This culture ofco-ordination oncontinued isbased and shared stage. co-operation political objectives.'6
'Civil-civil inEU crisis inAgnieszka coordination Nowak, ed.,Civilian "3 SeeCatriona Gourlay, management', crisis the EU way. Chaillot No. 9,June management: Paper 2006,pp. 103-19.

ina better 14A secure world, p. 12. Europe coordination ofCFSP/ESDP theneed for addresses effective coordin"5 Civil-military (CMCO) inthecontext ation oftheactions ofallrelevant EU actors inthe andsubsequent involved ofEU's implementation planning to thecrisis. Foran overview ofthedevelopment ofCMCO within theEU, seee.g.RadekKhol, response inEU crisis co-ordination inNowak, crisis ed.,Civilian 'Civil-military management', management, pp. 123-36. co-ordination Council, 7 November 2003. Civil-military (CMCO), Doc. 14457/03, I6 European

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Human a new narrative security: strategic for Europe coordination soundslike,but is different from, Civil-military civil-military a in EU terminology more which controversial cooperation (CIMIC), concept refers to cooperation inEU-ledmissions. Theideasofcivilwith external actors is or Union notsure which of coordination, military (the cooperation synergy aregiven these nounsit prefers) institutional the through Civilian/ expression Cell (Civ/Mil underthe Italian 'The Military Cell), established presidency."7 Cell enhances the EU's for crisis Civilian/Military management capacity planning, national anEU autonomous reinforces toconduct assists HQ designated operation, inco-ordinating civilian to run an and the and operations generates capacity plan hastaken autonomous EU operation.'"s Another initiative important place injoint with to CMCO run two related (one civil-military programmes bythe training, since and the since these Commission one offered Council While 2004). by 20oo initiatives receive vocalsupport hastwomembers attached (andtheCommission a in remains to theCivilian/Military Cell), practice civil-military cooperation and contested practice.'9 marginal

Conflict prevention
and CMCO, which related Unlike crisis areprimarily to Council management the conflict is a within discourse European operations, prevention key Commisin terms of addressing boththelong-andshortwhich defines sion, prevention term causes ofconflict action on poverty, social development, injustice, through it is also arms control andgovernance, associated with strataid,trade, although it out in the ESS. As Commission of set policy, engagement' egies 'preventive include measures. combines andshort-term policies longLongterm development an on andcooperation withtarget states to reduce and emphasis crosspoverty, as in small arms and term issues such cutting traffickingdrugs, people;short economic initiatives include observers to elections, sending giving emergency and undertaking missions. sanctions civilian assistance, applying Confusingly, term 'crisis is a the with Council short given overlap terminology management' conflict. short term toolwithin itsoverall to Commission responses Thisideaof conflict to thenotion of sustainable is closely related prevention which in the of the UN and of international civilsociety discourse peace, figures of Sustainable seen as ultimate conflict was the actors.20 goal peace prevention, in theinitiative and resolution, forexample and by theFinnish management in 1996, referred Swedish ministers withregard to thePetersberg tasks foreign in BosniaandMacedonia which to andactions the tried to above, EU through discourse its the idea at the The conflict has prevention origins promote UN.2'
and operations', 'Europeandefence:NATO/EU consultation, ue.eu.int/uedocs/cmsUpload/ planning ii Jan. accessed 2007. 78414%20-%20oEU-NATO%2OConsultation,%2oPlanning%2oand%2oOperations.pdf, ii '8 www.consilium.europa.eu/cms3_fo/showPage.asp?id= accessed 2007. Jan. 104&lang=DE&mode=g, 19 Comments Umberto Parliament andDefence Sub-Committee, Brussels, Incisa, Security by European hearing, 2006. 19Sept. 20 theterm NGOs andother international theUN, prefer organizations, including peacebuilding. 2' Jaap conflict andconflict a sustainable conflict Ramaker, 'Crafting peace:supporting prevention, management totheUN Parliamentary statement resolution', Forum, 9 Oct. 1997.
17

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Martin and Sabine Selchow Kaldor, Mary Mary in a political incivilsociety, ethos rooted collective thepublic and action, sphere reconciliation. Conflict tobreak vicious circles ofinstability, with different prevention attempts for intervention at the various of conflict entry points stages cycles, including tools ofearly andanalysis ontheonehand, andrapid subsidiary warning response on theother. It hasalsocometo encompass intarget states and capacity-building a shift from theculture of donorship the victims of bytheEU to ownership by the contractual the two. between conflict, altering relationship incivil itsroots theterm ascurrently usedalsoimplies a focus activism, Despite onthe asinstitutional reform-of the and nation-state, sector, security thejudiciary a of the toolkit under this At governance-forms significant part heading. deployed thelevel ofindividual member conflict and reconstates, prevention post-conflict struction tostrategies areoften allied which orfragile 'failed target states'.22 The dividing lines between conflict and crisis arealso prevention management but while the two are seen as blurred, increasingly concepts complementary, they canalsoclash: the involved inconflict isfrequently long-term approach prevention knocked off course of short-term The crisis bytheimperatives management.23 conflict much discourse a on of instruprevention emphasis variety policy places andtheir coordinated thegapbetween chronic structural ments, use,inbridging in states and the outbreak of violence. It also intersects with multilaterproblems inseeking toaddress conflict with states andtheir alism, byworking target regional andthrough with NGOs andlocalcivil neighbours, partnerships society.

for human Implications security

Humansecurity, as a term, can be understood of to encompass theconcepts conflict crisis and but coordination, it prevention, management civil-military takes them further. It draws on thedebates as wellas generated bythese concepts in thecurrent other terms usedmore such as discourse, broadly 'responsiglobal toprotect', multilateralism' and'human 'effective bility development'. First ofall,insecurity isclosely related tocrisis. Human canbe treated security as the'crisis end' of terms likehuman and human It has rights development. to do withhuman needat moments of extreme in not vulnerability, only wars butin natural andtechnological as well.Security disasters is often viewed as the absence of physical whiledevelopment is viewed as material violence, developIn standards. much the same human are ment, improved living way, rights often treated as civilandpolitical even human rights, though properly speaking rights should include economic andsocialrights. Thesedistinctions much of pervade
theliterature about humansecurity as a policyconcept, yettheyare misleading. suchas thosedividing thepolitical, boundaries, civil,economic Manyconceptual andmilitary, in an eraof globalization haveto be redrawn becausethey aredefined in terms of a nation-state frame. All three largely concepts-human security,

22 Active diplomacy for a changing world: the UK'sinternational White UK Foreign andCommonpriorities, Paper, wealth 28March 2oo6. Office, London, 23 Benita tothefuture', 'Conflict 12Sept. Ferrero-Waldner, Brussels, prevention: looking speech, 2o006.

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a new Human narrative security: strategic for Europe andhuman 'freedom from fear' human as wellas rights development-include from want'. as human includes economic as well 'freedom and social Just rights is so human about than as civilandpolitical more a decent rights, development safeon thestreets and beingableto It is also aboutfeeling of living. standard even is not Human influence decision-making. insecurity, in conflict, political of it is also about the of the about violence; consequences just impact military andthematerial ofconflict. violent crime human violations, consequences rights in battle. who a of deaths occur Most Incontemporary wars, only minority people a ofviolence civilians as result because diedo soeither targeted against deliberately or genocide, of theindirect effects ofwar: ethnic orbecause of terror, cleansing homelessness. and lackofaccess tohealth care, disease, hunger todifferent fields ofactivity than these terms asrelating Rather (economic, seeing them asdifferent wecanmore understand civil, social, etc.) usefully ways political, is aboutcapabilities, andabout human need.Humandevelopment of addressing theruleof of institutions that theconstruction Nowadays giverights meaning. andso on areall considered law,governance, keycompocommunity-building with nents of human enabling strategies, along policies peopleto development human an Human a sense of make sustainable livelihoods. rights express dignity, to that human have the those capabilibeings right develop acknowledgement not or needs is ties-that charity paternalism. meeting urgent ofhuman andhuman butitis,if ispart So human development rights; security and human addresses end of human at the development rights-it youlike, sharp and Senhasdescribed as the'downside risks' faced what byindividuals Amartya usetheterm 'vulnerabilities' asopposed to'threats', Someauthors communities.24 more subtle forms ofinsecurity, not thebroader term that allows for preferring thatcomesclosest to a theindicator linked to immediate Perhaps violence.25 is are a of human measure persons typical security displaced persons. Displaced andwars.Sincethe1970s bothnatural disasters feature of contemporary crises, increase in thenumber of displaced from there hasbeena steady persons arising in2006for over civilians were In Lebanon, Lebanese eachconflict. example, I,ooo were forced to leave their homes. Hundreds of killed and over400,000 people as a result ofHurricane Katrina. thousands hadto leaveNew Orleans Displaced the victims of both and material are insecurity. physical persons itis about more than human is aboutcrisis while Thus, security management, If a 'crisis' is an event or it offers a on crisis for itself. that, episode perspective ofa polity', human anurgent threat tothe'corevalues andsystem that represents threat to we to an or material is about how physical respond urgent security the aim is Froma humansecurity individuals and communities. perspective,
it encompasses a notionof justice and sustainability. notjust politicalstability; in to terms of theabsence of overt has tended be defined conflict Hitherto, stability a downwardspiralof GDP or the about halting or, in an economicperspective,
24 See www.humansecurity-chs.org/, accessed II Jan.2007.

25 P. Liotta,'Boomerang effect: the convergence of nationaland human security', Security Dialogue33: 4, 2002, pp. 473-88.

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Martin andSabine Selchow Kaldor, Mary Mary In recent doesseemto theinternational valueof a currency. community years, andsustain howtoreach have learned howtostabilize conflicts, peaceagreements howto address the Butit hasnotyetlearned andhowto stabilize economies.26 human violaofindividuals andcommunities anddealwith crime, rights security The parlance the civil tions andjoblessness. of crisis on management, especially of of within the EU some these 'vulnerabilities'-for does, course, side, emphasize inthecritical of focus on strengthening the'ruleoflaw'.The language example, kind of and would human would further entrench this thinking helpto security these andthereby toreduce therisk underline theneedtoaddress 'vulnerabilities' ofrenewed crisis. like crisis Humansecurity civil-military capabilities, management, require coordination. Butitis more than ofcoordination-or 'integration', justa matter is about or 'synergies', toborrow from current human how and parlance; security civil and are rather than their automatic inclucombined, military why capabilities on sion aspart ofa standard conflict toolkit. Inclassic civilians insisted wars, always their from themilitary. Their tooperate on 'humaniautonomy ability depended were tarian and to space'-theirneutrality impartiality important allowthem of warandthewounded on all sides. to helpnon-combatants, prisoners Many humanitarian and development fear thatassociation withthemilitary agencies willundermine this in Iraqand their to work, andindeed hashappened ability where the international are to be theside of institutions on Afghanistan, perceived Human thecoalition forces. as spelled outinthenext however, section, security, is notaboutwar-fighting; it is aboutprotection of individuals and communianditis about theruleoflaw,while thearena ofwar. ties, expanding squeezing In contemporary where civilians aretargets, humanitarian wars, spaceis disapIn the is and a human the of to protect security operation, job military pearing. that rather an Thus human is not than to preserve space fight enemy. security just aboutdeveloping a culture of civil-military it is aboutan entirely cooperation; incrises newway offunctioning that isbest described ofhuman bya newlanguage of that itis The discussion CMCO does, course, security. surrounding emphasize not but about coordination and about political just organizational arrangements, in be and such coordination needs to out terms of coherent goals political spelled methods aredefined. andhowthey Crisis whether we aretalking aboutconflicts or humanitarian management, is to all of disasters,usually thought encompass phases crisis-prevention, mitigaand reconstruction. Thereis a tendency forthe international tion,recovery to be preoccupied withphases that andto assume different community phases callfor different tools andinstruments. addresses the'vulnerConflict prevention
weak rule abilities' thatare associated withlack of humansecurity-joblessness, in crimeand humanrights of law resulting to weak violations, capacity provide These canbe regarded as thestructural conditions that makecrises publicservices. morelikely.They are not necessarily or natural the causesof conflicts disasters,

26 'Final report ofthe Commission onHuman Security', I May2003, www.humansecurity-chs.org/finalreport/ ii Jan. accessed index.html, 2007.

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Human a new narrative security: strategic for Europe butthey weaken to copewith crises. These'vulnerabilities' are society's capacity and in exacerbated both conflict disasters. Thus the aftermath of by usually by the conditions for future not crises are but further crises, suppressed aggravated. tocrisis become In terms ofdealing Our solutions ofa future with part problem. this means that reconstruction is alsoprevention, andthat both conflict, prevenneedto focus on thesecurity of individuals rather tionandreconstruction than ofstates. onlyon thestability a 'bridging could between the Human immediate security beconsidered concept' needforstabilization and theneed,simultaneously andoverthelongterm, to these than andstructural address structural conditions. Rather stabilization seeing as relevant of assistance to different it is to combine both crisis, important phases all mix even the of instruments to during phases, though may vary according the situation. specific In thecaseofthe offoreign that isbeginning to EU, thepublic language policy from of to the collective action needs have a clearer focus. The emerge experiences EU hasdistinctive onissues such asthe death human positions public penalty, rights and rendition. Media legislation, Bay extraordinary correspondents Guantinamo andrepresentatives ofcivilsociety from to NGOs andbusinesses, unions groups, arewidening their horizons thetechnocratic of economic beyond vocabulary to take account of the new and integration growing foreign policydimension in fragmented to theUnion.At present thisdiscourse is stranded rhetoric and Theseaddto theconfusion labels. ofpurpose behind ESDP and policy multiple alsocontribute to a lackof transparency andvisibility. Human CFSP,andthey in a this could offer new dimension to the discourse, security, already implicit andinstability. The nextsection elaborates this waytheEU dealswithconflict in out what a human would mean argument byspelling security policy practice.

Praxis
ifwehad itisnot Human isutopian. Even the orrealistic.27 security capabilities, practical To espouse human canbe regarded a paradigm as requiring shift from security traditional national to Another common critisecurity approaches foreign policy. cism oftheconcept ofhuman which tocontradict the'so what?' security, appears criticism instanced at thebeginning of theprevious is thecharge that section, is too idealistic. Butit canbe argued that this shift is actually paradigm already under that the newoutlook ismore realistic than traditional way-and,moreover, since national itrepresents theonlypossible to the security approaches approach inthecontemporary ofinsecurities face kinds that human era. beings global How
we developtheconceptof humansecurity and imbueit withrelevant is meaning of implementing thisparadigm shift. actually partof theprocess The failureof the European constitutional treatyin 2005 and the present overwhether and how it might be revived havelimited thescope for uncertainty
27 Authors' discussion with attheGerman Office, policy 29June planners Foreign 2006.

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and Martin Sabine Selchow Kaldor, Mary Mary in foreign The treaty's foran EU foreign innovation policy-making. proposals andfor a combined would have external action instituminister, service, provided tional for an EU external as but, expanded support presence; perhaps importantly, theFrench andDutchreferendums a crisis of democratic sparked accountability the member states and led to a of exacerbated 25 among paralysis integration, by domestic stalemates this in theBig Threeforeign political during period policy France member andtheUK. states, Germany, of the new thepassing The first havealsocoincided with ofthe years century EU mark of with the accession new central and of 17 high-water enlargement eastEuropean future rounds and someof theBalkan states, involving Turkey states contested. has been theEU's most highly arguably remaining Enlargement successful and successor to relations designed systematize foreign policy, policies withneighbours to theeastandsouth of theUnion's borders offer lessclear-cut ofexternal stabilization. avenues allthis, level atground hasseen growth. Despite security policy unprecedented The EU currently hasaround in missions on three 13 personnel deployed I0,000 inthepast with andtheDRC (Congo)added and Sudan Aceh, continents, year a in The of new Kosovo for and ambition major engagement planned 2007. diversity inRafah these from a border tomonitoring a peaceprocess missions, monitoring in Aceh,arefuelling a wealth of experience andlessons learned andbuilding a of future external At the foreign capable informing security policy acquis policy. thebuildup of capabilities boththrough sametime, hascontinued, themilitary force and the and of of creation, process training deployment rosters generation civilian as well as the and of infrastrucexperts, development planning operations inBrussels ture tomeet the headline and2010o The of2008 (civilian) (military). goals andof civilian teams creation of 13battlegroups (CRTs)is theoutward response ofthis sign capacity development. this remains: thenagging overall, Notwithstanding question positive picture whatis theEU actually The politandsecurity doingwithitsforeign policies? in ical and strategic ESDP in of are national articulated, Brussels, goals poorly on the and where the intervenes. Mandates for external Union ground capitals actiondatebackto theTreaty Union of 1992, existin of European security in Councildeclarations backto 1999,28 and arebestcodified European dating the2003ESS. In all these is on security as fulfilling the theemphasis documents, andas a necessary to theUnion's integration project, developEuropean adjunct thespecific about of a common ment; security questions goalsandmodes policy with and arenotaddressed.29 The ESS itself, itsfocus on threats, responsibilities leaves interunanswered about the Union should why capabilities, keyquestions
vene beyondits borders, whereit shoulddo so, and according to what criteria. A growingcorpusof knowledgeand experience fromits diverseinterventions to date remains overviewor 'road map' to enable fractured, lackinganystrategic
28 European Annex Council, Conclusions, III, para.I, p. 33. Presidency Cologne, June I999, 29 See Stefanie and defense "offensive and "human defense" Flechtner, 'European security policy:between Politik Internationale und 4, Oct.2006. security"', Gesellschaft 282
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a new narrative Human Europe security: strategic for toinform Thussome these future action. critics take the viewthat the experiences is in fact a EU's security strategy only 'pre-strategic concept'.30 of theterm 'human is that itcanbe usedto combine The advantage security' in theESDP. It can the and ideas that have been of concepts many developed andcivil-military conflict crisis management cooperation, prevention, encompass it draws on theassumptions inherent in these Butit also andindeed concepts. for crisis conflict a wayto act,a setofprinciples offers management, prevention incrises becomes a symbol How aninstitution acts andcivil-military cooperation. in general. is boundup with ofhowitis perceived Security political legitimacy. ifwe seethat ifwetrust ourinstitutions, andwetrust safe ourinstitutions Wefeel incrises. acteffectively they aboutthe'responsibility There is a lotofdiscussion to protect' and nowadays under to usemilitary theconditions which it is right force. Thereis much less abouthowmilitary should be usedin sucha role;andyetthis discussion force is critical foreffective Therearealsodiscussions aboutwhycivilian protection. of crisis should be with an on helping elements to used, management emphasis a ruleof law,butmuch lessabouthowandwhenthey establish worktogether Humansecurity a setof principles withthemilitary. offers that applyto both A both ends and element is establishment of and the 'how', 'why' means.3' key and theruleoflawandtheassociated from this the role institutions, perspective isneither norpeacekeeping ofthemilitary butrather the war-fighting supporting oftheruleoflaw. establishment isrespect Thefirst ofa human for human This principle security policy rights. and for the from the classic use isthe most different, military, key concept radically force. Forcivilians itis more since is howwe behave in ofmilitary this obvious, For it means the is civila domestic the setting. military, primary goal protecting Of course, itisnecessary totry iansrather than anadversary. sometimes defeating to orevendefeat but this has be seen as a means to an to capture end, insurgents, rather than theother civilian wayround. protection, Thisprinciple a different aboutcollateral implies wayof thinking damage. collateral can be within theframework of tradidamage justified Proportionate isthat tional wars enemies. Theproblem itisdifficult to foreign against nowadays wars between and human to Ameriviolations. Whatappears distinguish rights as collateral as a result of legitimate cansor Israelis to destroy damage attempts to A anenemy others as massive human violations. human rights appears security ismore likea domestic a citizen. This is,ineffect, operation operation-everyone of the entails all loss of the lives terrorists life, minimizing principle including whoshould be treated as criminals rather than enemies andwhere orinsurgents,
rather thankilled. possiblearrested thancontemThisalsomeansthat humansecurity maybe morerisky operations because savingthe lives of civilianswhatever their operations, porarymilitary
30

'The revolution in security affairs: hard andsoft in the21stcentury', J.Lindley-French, security dynamics 13:I, 2004, Security pp. 1-IS. European the Barcelona the onEurope's 3' A human security doctrinefor Europe: of Study Group Report Security Capabilities, presented for toEU HighRepresentative Common andSecurity Solana, Barcelona, 15Sept. 2004, Foreign Policy, Javier accessed 2007. www.lse.ac.uk/Depts/global/2securitypub.htm, II Jan.

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Martin and Sabine Selchow Kaldor, Mary Mary comes before force Thisissomething that is recognized nationality protection. by human who do risk their if not activists, lives, rights bypoliticians. as incoping with violence thefocus is on theneeds oftheindividual and Just notonlyoverall in economic thehuman terms stabilization, security principle on a focus individual rather need than on macro indicators like economic implies orbudgetary growth stability. The second is theestablishment of legitimate principle political authority. Humansecurity on of the existence institutions that depends legitimate gainthe trust of thepopulation andhavesomeenforcement this capacity. Again, applies both tophysical where theruleoflawanda well-functioning of system security, in are essential an of individual sense and to material justice constructing security, where the andpublic oflegitimate infrastructure security, provision employment, services hasto be underpinned framework. political bya regulatory Legitimate inlocal not have to be wielded a it rest does could state; by authority necessarily or or international like government, regional arrangements protectorpolitical atesor transitional is often cause administrations. Sincestate failure theprimary of conflict, in reconthereasons forstate failure haveto be taken intoaccount Measures like andsecurity sector political authority. justice structing legitimate demobilization andre-integration of reform, disarmament, (DDR) andextension the and service reform are critical for establishment of authority public legitimate political authority. Thissecond the limitations onthe useofmilitary principle explicitly recognizes force. Theaimofany istostabilize the situation sothat canbe intervention a space created for a peaceful rather to win than means political process through military alone.Themilitary, likethecivilians, anenabling role. Themilitary support play of tasks thatcontribute to theconstruction various civilian and makepossible In the institutions of or conflict. it is those end, only capable solving managing inconflict Themost that actors whoareengaged whocanendviolence. external In other cando is to helpprovide that make this the conditions words, possible. of human forces is stabilization or rather than job security winning. peacesupport forthemilitary, Thisis obvious forcivilian crisis butlessobvious management whoareusedtobelieving that solutions canbeimposed force. through in mostcounter-insurgency is very difficult to Actually, victory operations, if at all,through achieve andcan onlybe reached, destruction and widespread The Chechen of Grozny, forexample, hasbeenreduced to repression. capital havesucceeded in slowing butsporadic violence continues. The Israelis rubble, down suicide but theoverall is worsening. Humansecurity situation attacks, ofswift andaim theimpossibility principles explicitly recognize outright victory
insteadto establish safezones wherepoliticalsolutionscan be soughtor where civilianinstruments can help to providethe conditions forpoliticalprocesses. of safehavens, humanitarian corridors or Techniquessuch as the establishment zones aretypical of a humansecurity no-fly approach. In thisapproach, politicsis in command.Both economicand security policies haveto be guidedbypolitical thismeans considerations terms, and,in operational

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a new narrative Human strategic Europe security: for ormilitary, whounderstands tobe a single there needs that commander, political topolitical andhasaccess authority. politics isanother multilateralism' 'Effective is multilateralism. Thethird key principle more than means discourse. Multilateralism in theEuropean term simply 'acting all international In that narrow of states'. of a group with/as sense, nearly part is closelyrelated Multilateralism be considered multilateral. initiatives might from a human and is whatdistinguishes to legitimacy neosecurity approach colonialism. with international institua commitment towork means multilateralism First, institutions. This first of international the and means, tions, through procedures butit also entails within theUN framework, andforemost, working working such as the other OSCE or sharing outtasks with among regional organizations, in inthe or the and ECOWAS OAS the SADC andNATO inEurope, Africa, AU, western hemisphere. and common rules entails a commitment to creating multilateralism Second, and and the rules. rules norms, through cooperation, enforcing problems solving hasto be situated within a multilateral authority Nowadays, political legitimate interms ofthe failure of ispartly tobe explained state failure framework. Indeed, of to to multilateral states unilateralist ways working. adapt traditionally rather than hastoinclude andinteroperability, multilateralism Third, synthesis An coordination effective human or security approach requires duplication rivalry. andsecurity trade between policy, policy, development policy intelligence, foreign the the member between between states; initiatives; Commission European policy the these andother multilateral andtheCouncil;andbetween actors, including Preventive andproactive theIMF andregional institutions. UN, theWorld Bank, if be effective are let alone cannot isolated, contradictory. they policies It is critical to havea good is thebottom-up The fourth principle approach. notsimply to of thelocalsituation. Thisrequires intensive consultation, grasp andunderstanding. This winhearts andminds butin order to gainknowledge think 'we know there is often a built-in to seems but obvious, tendency principle more areparticularly since women areusually best'. Women's groups important intheeveryday than tobeengaged ofconflict rather than men likely consequences insectarian for struggles power. even incondiis about vulnerable Human communities, security empowering andcrisis, rather or regulating them to produce tions of conflict thancoercing a newcontractual between alsomeans relationship approach peace.A bottom-up states andlocalpeoplewho arethe theEU on theone handand,on theother, tothesuccess ofexternal missions ofintervention. Itisalsomore conducive target
rolefor andfor sustainable to builda better localintelligence relations, longer-term moreaccountable to local populations. to makemissions to focuson particular The final is regional focus.Thereis a tendency principle when dealingwith crises.Yet insecurity countries spillsover bordersthrough inillegalcommodities, criminal trade transnational networks, minorities, refugees, in Sierra extremist to managethe conflict ideologiesand so on. It is impossible 285
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Martin andSabine Selchow Kaldor, Mary Mary Leonewithout inWest other crises Liberia. Thewar Africa, addressing especially in Afghanistan willnotendwithout with IranandTajikiPakistan, cooperation stan. Andthere aremany other of 'bad In itsrelations examples neighbourhoods'. withneighbouring the EU has the of a regional states, recognized importance ItsNeighbourhood towards Russia andsurrounding and states, approach. Policy theBarcelona Process/Euro-Mediterranean both on the idea of Partnership, rely a regional but this has been less to its dialogue, principle systematically applied crisis policies. The caseof Afghanistan, nottheonlyexample, illustrates whatcan though when the of In human are not go wrong principles security applied. AfghaniNATO hastried to putintopractice someof thecurrent ideasaboutcrisis stan, and in the reconstruction teams management civil-military cooperation provincial these efforts are undertaken within a multilateral framework (PRTs).Moreover, theUN, theEU andindividual EU member states. states, involving including the overall a of traditional national However, mix approach represents security someelements of whatcouldamount to a human thinking alongside security First ofall,inthesouth andsouth-east, thepriority hasbeendefeating approach. theTaleban rather than to distinprotecting people.Sinceit is often impossible Taleban from civilians However much guish fighters civilians, many getkilled. NATO andUS forces their 'hearts and the of minds' proclaim strategy, killing civilians undermines those in PRTs other as Moreover, are, protestations. regions in itwere, contaminated is happening thesouth andsouth-east. Second, bywhat theinclusion of warlords andopium in the institutions poppy-growers political andtheweakruleoflaw,including reliance Shari'a has on,for courts, example, meant a failure toestablish Thepresent legitimate political authority. government isdependent on theinternational some realadvances such as the presence; despite election ofwomen, in institutions trust is very makes itextremely low,andthis difficult to mobilize for efforts to defeat theTaleban. the Third, popular support inclusion ofwarlords, while ofcourse, American reliance partly, explained bythe onthe Northern intoppling Alliance the isalsothe outcome ofanexcesTaleban, anda failure to involve in the civilsociety, sively top-down approach especially initial settlement. there is now talk about Pakistan's political Finally, although for theTaleban/Al-Qaeda, notnearly responsibility harbouring enough emphasis has beenplacedon relations withneighbours, thusallowing to be insurgents recruited from abroad. Is it utopian to suggest that theconcept of human canbe applied in security such and crises as It is evident that tradidifficult, dangerous complex Afghanistan? tional do notwork. elements ofa human Moreover, security approaches security
existin muchEU thinking and doing.Whatwe are suggesting approachalready is thatdeveloping thenarrative and putting intopractice theprinciples of human shouldatleastbe tried ifwe areserious aboutfacing security up to current security challenges.

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Human a new narrative strategic security: for Europe

Human as value added security

Whatwould humansecurity add to whatis beingdone already? Essenprinciples amount to a narrative with several they strategic consequences: tially, * Coherence. It is verydifficult to achievecoherence institutional meathrough inevitable in sures.Turfbattles and bureaucratic are competition anylargeorcanoftenjust Additional coordination mechanisms add to thelayers ganization. of competition. What is reallyneededis conceptualcoherence:clarity about notions of service shared and and commitgoals principles, encouraging public ment. * Effectiveness. of humansecurity The principles a focus forexternal manprovide dates.They offer a framework forstandardizing doctrines and rulesof engagetheprinciples, ment.Essentially, could be expressed adaptedto each situation, to crisis on a cardcarried by personnel deployed regions.They could also be in planning and evaluating used as a checklist forthoseinvolved and operations pointfortheEU's intervention. providea reference * Visibility. At present, of the EU role in dealingwithcrisesis publicawareness A limited. understandable readily very policyconceptcould help to increase A humansecurity thepublicimpactof EU missions. would address approach andexternal of boththeinternal itwith intervention, legitimacy underpinning a set of normsand values,and offering both EU citizensand thosein target countries withclearprinciples andjustifications forsecurity policy. and lexicon?The first and Why shouldtheEU adopta humansecurity approach is self-interest. can no insulate itself obviousargument from crises Europe longer abroad.Terrorism, transnational crime andmigration areallintertwined withcrises in the Middle East,Africaand elsewhere. A focuson the humanfactors behind also allowsus to construct moreplausiblelinksbetweenour internal/ (in)security domesticsecurity and external insteadof tolerating the dichotomy of relations, abroad and to head off bombinginsurgents buildingcommunity programmes suicidebombers at home. potential But evenifthere werenotself-interest, there is an ethical argument. Europeans watchtelevision and browsethe Internet, and if theyare aware of tragedies in otherparts of theworld,theydo wantto be ableto contribute to their alleviation. Concernaboutwars,humanrights, theenvironment and poverty arepartof the of identity Europeans. thereis a legal argument thatbringstogether the Perhapsmostimportantly, in theextension ethicaland self-interest havean interest of arguments. Europeans international law has to be underpinned norms. law, and international by global incrisis Humansecurity is aboutupholding thosenorms situations. It couldserve as a 'symbolic in thedevelopment of theEU's strategic culture, signpost' reconciling the Union's normative and value-driven with a quest foreffectiveness tradition whichhasled theEU to developmilitary A humansecurity doctrine capabilities.32
32 Manners, 'Normative power Europe'. 287
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Martin andSabine Selchow Kaldor, Mary Mary for both internal andexternal ofsecurity, andalso Europe brings together aspects newways ofcombining them. suggests The foundational ideasbehind external relations reflect a backward European to as well as an to look forward to the international environglance history attempt ment of thetwenty-first crave a role for the EU on ManyEuropeans century. theworld as a peacepromoter in order to banish thedemons of Europe's stage ownconflict-ridden seek to extend borders the experience; they beyond Europe's zoneof peaceandstability which theintegration has to project helped achieve; andthey theEU canuseitstransformative believe that topersuade others power to movefrom warto peaceandto universalize itsownnorms andethics.33 The of an human would be to a reiterate and adoption explicit security way approach reinforce those foundational ideas andhelptobreak the through political paralysis that followed theFrench andDutchrepudiation oftheconstitution.

Conclusion
In this article we have as thebasis human ofbotha discursive/ proposed security shift and a in We that believe thelanguage linguistic change operating principles. ofEuropean is and that the current into securityimportant fragmentation multiple labels addslayers of linguistic to an already confusion incoherent institupolicy tional architecture. in27different member states needtofind common Europeans that the character of CFSP/ESDP and enable them to meanings express unique the EU's on the world We have also examined a what project personality stage. human in means to show that it is not label a security approach practice, simply theEU's ownimage as a security butallows theEU toputinplace actor, serving a coherent andinnovative tailored to thecomplex ofcontemporary needs policy global security. Thereare those, of course, forstrengthening who see theEU as a means nation-states in an a foreign era of and European globalization, envisage policy basedon self-interest. Whilethefoundational of EU led to itsbeing the idea(l)s characterized as a normative, ethical orcivilian/civilizing other ideas have power, existed this dominant forexample theEU, rather that thread, always alongside thantheWestern be a guarantor NATO of Union,should European alongside Human offers to a reiterate and reinforce those defence.34 European security way foundational which are to and to distance the ideas, inspirational many Europeans, EU from togreat status. aspirations power a human be theonly canbe Finally, security approach may wayto closewhat asthesecurity described Conventional do not tobe seem gap. military approaches in like or or Lebanon. of live Millions working places Iraq Afghanistan people in
situations of deepinsecurity, in largeparts of Africa, theMiddleEast,theBalkans, CentralAsia and the Caucasus. The inability of our institutions to addressthe of weakens their challenge globalinsecurity greatly legitimacy.
'Three reasons for NRC Handelsblad, Solana, 17May2005. 33 SeeJavier Europe', 'Remarks to thepress on theresults oftheFrench constitutional Solana, referendum, 30May2005', in 34Javier and Core Chaillot 2006. documents 87,March EUsecurity defence: Paper zoos,

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