国际事务研究院-区域分裂与欧盟外交与安全政策（英）-2021.11-29正式版.docx

November 2021Contributing authors:Assem Dandashly, Nothando Maphalala and Akm UnverJOINTAjoined-upUnion,astrongerEuropeJOINTResearchPapersNo.3RegionalFragmentationandEUForeignandSecurityPolicyAgnesLevalloisThisprojecthasreceivedfundingfromtheEuropeanUnion'sHorizon2020researchandinnovationprogrammeundergrantagreementN.959143.Thispublicationreflectsonlytheviewoftheauthor(s)andtheEuropeanCommissionisnotresponsibleforanyusethatmaybemadeoftheinformationitcontains.RegionalFragmentationandEUForeignandSecurityPolicyLeadauthor:AgnesLevalloisContributingauthors:AssemDandashly,NothandoMaphalalaandAkmUnver*AbstractThereisbroadacademicconsensusonthefactthatthefragmentationofregionspresentsasignificantchallengefortheEU.Fragmentationunderminestheauthorityofcentralstates,theEU,smostnaturalcounterparts,anddistributesitamongstagreatnumberofactors-includingnon-statearmedgroups.Toaddressfragmentation,theEUshouldincreasecoordinationbetweenactors(EUinstitutionsandmemberstates),integrateactionsacrossdifferentpolicyareas(securityandnon-security,externalandinternal)andengagewithexternalplayers(multilateralorganisations,globalpowers,regionalandlocalactors).AgndsLevalloisisSeniorResearchFellowattheFoundationforStrategicResearch(FRS).AssemDandashlyisAssistantProfessorinPoliticalScienceatthePoliticalScienceDepartmentofMaastrichtUniversity(UM).NothandoMaphalalaisHeadofResearchattheInstituteforPeaceandSecurityStudies(IPSS)ofAddisAbabaUniversity.AkinUnverisAssistantProfessorofInternationalRelationsatKadirHasUniversity.TheauthorswouldliketothankHylkeDijkstrafromUM,RiccardoAlcaro,HeadofGlobalActorsattheIstitutoAffariInternazionali(IAI)andJOINTCoordinator,GiulioPugliese,SeniorAsiaFellowatIAIandJOINTAssistantCoordinator,andLaurianeHeaufromFRSforprovidingfeedbackandreviewingthetext.IntroductionOverthepastfewyears,scholarsofInternationalRelationshavebeenincreasinglystudyingstatesthatlackcertainelementsofsovereignty,suchasufailedstates,uweakstates",collapsedstates",statesaffectedby,1imitedstatehood"Or"contestedstatehood",and"unrecognisedstatesn.Overthepastfewyears,thenumberofcountriesthatfallintooneofthesecategoriesofstateshasincreased-especiallyinareassurroundingtheEuropeanUnion(EU)(eastandsouth).ThisliteraturereviewprovideabetterunderstandingofthephenomenonofregionalfragmentationanditsimpactonEUforeignandsecuritypolicy.Specifically,itanswersthefollowingquestion:accordingtotheexistingliterature,howdoesincreasingregionalfragmentationaffecttheabilityoftheEUanditsmemberstatestodevelop,articulateandimplementcommonactiononcrisesandconflicts?Thisworkestablishesaconceptualbackground,highlightingtheconnectionbetweenthefragmentationofregionsandthe(in)abilityoftheEUanditsmemberstatestoformulateandimplementcommon(oratleastcoordinated)actions.Thereviewstartsbyprovidingabriefdefinitionofregionalfragmentation.Thisisfollowedbyadiscussionofthemultiplelevelsatwhichittakesplace.Thenextsectionfocusesonthedriversandtheactorsoffragmentation.Lastly,thepaperconsiderstheimpactoffragmentationontheEU,sabilitytoaddresscrisesandconflict.ThefinalsectionconcludeswiththemainfindingsoftheliteratureonregionalfragmentationanditsimpactontheEU.1. TheconceptofregionalfragmentationFragmentationhasbeenconceptualisedindifferentacademicdisciplines,andmanydefinitionsoftheconcepthaveemergedasaresult.InthefieldsofGeography1 ThomasRisse1wGovernanceConfigurationsinAreasofLimitedStatehood.Actors,Modes,Institutions,andResources*',inSFB-GovernanceWorkingPapers,No.32(April2012),https7www.sfb-governance.de/en/publikationen/sfb-700-working_papers/wp32/index.html;ThomasRisse,GovernanceunderLimitedSovereigntyw,inMarthaFinnemoreandJudithGoldstein(eds),BacktoBasics.StatePowerinaContemporaryWorld,Oxford,OxfordUniversityPress,2013,p.78-104;RobertI.Rotberg(ed.),WhenStatesFail.CausesandConsequences,Princeton,PrincetonUniversityPress,2004;RosaEhrenreichBrooks,TailedStates,ortheStateasFailure?0,inTheUniversityofChicagoLawReview,Vol.72,No.4(Fall2005),p.1159-1196,https:/scholarship.law.georgetown.edU/facpub/1108.andEconomics,forinstance,fragmentationhasbeenconceivedastheweakeningoftheelementsformingasystem:thediscontinuity,rupture,andisolationofspaces.ThisdefinitionisalsovalidinPoliticalScienceandSociology,insofarasthespacessubjectedtodiscontinuity,ruptureandisolationareunderstoodaspoliticalspaces,namelyspacesthecontrolofwhichisputativelyinthehandsofthestate.Whilevalid,thisdefinitionisinsufficient,asitdoesnottakeaccountoftheprocessbywhichinstitutionssystemserode.Fragmentationrelatestothephenomenonofamultiplicationofactors,affectinggoals,modalities,andinstrumentsofgovernanceConsequently,somescholarshaveattemptedamorecomprehensiveconceptualisationoffragmentationbytheidentificationofthreedimensions:uthenumberoforganizationsinamovement;thedegreeofinstitutionalizationacrosstheseorganizationsandthedistributionofpoweramongthem,.3Forthepurposeofthisliteraturereview,inwhichwefocusonregionsaffectedbycrisesandconflict,weunderstandfragmentationastheprocessbyw