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The EU and Central Asia: The Nuances of an ‘Aided’ Partnership

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Managing Security Threats along the EU’s Eastern Flanks

Part of the book series: New Security Challenges ((NSECH))

Abstract

This chapter takes a critical look at the EU-Central Asia cooperation since the 1990s until now. It argues that although this partnership has always stood out as smooth and balanced, and thus less fraught with major political controversies and abrupt U-turns compared to other external partners of the Central Asian region, one sees important limitations that call for revisiting of institutional and ideational aspects of interaction. The chapter analyses three aspects which reflect the nature of the real challenge: the burden of asymmetric power relations between the EU and Central Asian states; neglected differences and complexities of cooperation by the two parties; and the ‘project’-logic that mixes up cooperation with development assistance, and prioritises the continuity of engagement over the purpose of cooperation.

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Notes

  1. 1.

    Neil J. Melvin, ‘Introduction’, in Neil J. Melvin (ed.) Engaging Central Asia: The European Union’s New Strategy in the Heart of Eurasia (Brussels: Centre for European Policy Studies, 2008), p. 2.

  2. 2.

    See, for instance, Jos Boonstra, ‘The EU’s Interests in Central Asia: Integrating Energy, Security and Values into Coherent Policy’, EDC2020 Working Paper No. 9 (January 2011).

  3. 3.

    See for example, Alexander Warkotsch (ed.) The European Union and Central Asia, ed. by Alexander Warkotsch (London & New York: Routledge, 2011); Vladimir Paramonov, Aleksey Strokov and Zebiniso Abduganieva, Vliyanie Evropeiskogo soyuza na Tsentral’nuyu Aziu: obzor, analiz i prognoz (The influence of the European Union on Central Asia: overview, analysis and prognosis) (Almaty: Friedrich Ebert Stiftung, 2017).

  4. 4.

    Melvin 2008, p. 2.

  5. 5.

    Voloshin 2014.

  6. 6.

    Paramonov et al., 2017, p. 5.

  7. 7.

    European Commission, The EU’s Relations with the Newly Independent States of Central Asia (1995), http://europa.eu/rapid/press-release_IP-95-586_en.htm.

  8. 8.

    Mert Bilgin, ‘Geopolitics of European natural gas demand: Supplies from Russia, Caspian and the Middle East’, Energy Policy Vol. 37, No. 11 (2009), pp. 4482–4492.

  9. 9.

    Central Asia Drug Action Programme (CADAP), at http://cadap-eu.org/.

  10. 10.

    European External Action Service, EU Human Rights Dialogues in Central Asia (no date), http://eeas.europa.eu/archives/docs/central_asia/docs/factsheet_hr_dialogue_en.pdf.

  11. 11.

    Tika Tsertsvadze and Jos Boonstra, ‘Mapping EU development aid to Central Asia’, EUCAM Factsheet No. 1 (July 2013), p. 6.

  12. 12.

    Paramonov et al., 2017, p. 8.

  13. 13.

    Council of the European Union (2007), The EU and Central Asia: Strategy for a New Partnership, Document 10113/07, Brussels, 31 May (endorsed by the EU Council Presidency Conclusions of the Brussels European Council, 21–22 June 2007), p. 4.

  14. 14.

    Andrey Chebotarev (ed.), ‘Strategiya Evropeyskogo Soyuza v Tsentral’noy Azii na 2007–2013 gg.: predvaritel’nye itogi’ (The Strategy of the European Union in Central Asia for 2007–2013: Preliminary Results) (Almaty, 2013), p. 37.

  15. 15.

    Idem, pp. 37–39.

  16. 16.

    European External Action Service, ‘EU-Central Asia High Level Political and Security Dialogue’, UNIQUE ID: 170608_18 (8 July 2017), https://eeas.europa.eu/headquarters/headquarters-homepage_en/27795/EU-Central%20Asia%20High%20Level%20Political%20and%20Security%20Dialogue (accessed 05 September 2017).

  17. 17.

    Nargis Kassenova, ‘The EU in Central Asia: Strategy in the Context of Eurasian Geopolitics’, Central Asia and the Caucasus, Vol. 46, No. 4 (2007), pp. 99–108.

  18. 18.

    Katrin Böttcher and Julian Plottka, ‘Auf dem Weg zu einer neuen EU-Zentralasienstrategie. Stand, Entwicklung und Perspektiven der europäischen Zentralasienpolitik’, Zentralasien Analysen No. 111 (March 2017), pp. 2–6.

  19. 19.

    Alexander Warkotsch, ‘Human Rights, Democratization and Good Governance’, in Warkotsch 2011, pp. 102–114.

  20. 20.

    Katharina Hoffmann, ‘The EU in Central Asia: Successful Good Governance Promotion?’, Third World Quarterly, 31.1 (2010), pp. 87–103.

  21. 21.

    Sébastien Peyrouse, Jos Boonstra and Marlène Laruelle, ‘Security and development approaches to Central Asia: The EU compared to China and Russia’, EUCAM Working Paper No. 11 (May 2012), p. 22.

  22. 22.

    Catherine Putz, ‘The European Union’s (Not So) New Central Asia Strategy’ (16 May 2019), https://thediplomat.com/2019/05/the-european-unions-not-so-newcentral-asia-strategy/; Crossroads Central Asia, ‘A Roundtable on the New EU Strategy towards Central Asia’ (3 July 2019), https://www.crossroadsca.org/crossroads-co-hosts-a-round-table-discussion-on-the-new-eu-strategy-for-central-asia/

  23. 23.

    Chebotarev 2013, pp. 27–29.

  24. 24.

    Participant observation, celebrations of 60 years of the EU, Dushanbe, 11 May 2017.

  25. 25.

    Muratbek Azymbakiev, ‘Kyrgyzstan-Evropeiskii Soyuz: aspekty vzaimodeistviya’ (Kyrgyzstan-European Union: the aspects of cooperation), Tsentral’naya Aziya i Kavkaz, Vol. 3, Iss. 33 (2004), p. 198.

  26. 26.

    Jomart Ormonbekov, ‘Kyrgyzstan v svete strategii Evrosoyuza v otnoshenii Tsentral’noi Azii’ (Kyrgyzstan in the context of the EU strategy towards Central Asia) in Sostoyanie i perspektivy razvitiya vneshnei politiki Kyrgyzstana (The current state and development perspectives of Kyrgyzstan’s foreign policy) (Bishkek: Rektaim, 2009), p. 76.

  27. 27.

    Ibid., p. 66.

  28. 28.

    Boris-Mathieu Pétric, ‘Post-Soviet Kyrgyzstan or the birth of a globalized protectorate’ Central Asian Survey Vol. 24, No. 3 (2005), pp. 319–332.

  29. 29.

    Interviews with numerous Tajik policymakers, July 2016–August 2017, indicate that they see international organisations merely as donors and rarely distinguish between them, given a big number of organisations operating in the country, short-term projects, poor communication on the side of organisations, and area overlaps and project duplications.

  30. 30.

    See, for instance, Sébastien Peyrouse, Jos Boonstra and Marlène Laruelle, ‘Security and development approaches to Central Asia: The EU compared to China and Russia’, EUCAM Working Paper No. 11 (May 2012).

  31. 31.

    Delegation of the European Union to Uzbekistan, ‘13th annual EU-Central Asia ministerial meeting’ (13 November 2017), at https://eeas.europa.eu/delegations/uzbekistan_en/35466/13th%20annual%20EU-Central%20Asia%20ministerial%20meeting.

  32. 32.

    Eric W. Sievers, The post-Soviet decline of Central Asia: Sustainable Development and Comprehensive Capital (Routledge, 2003).

  33. 33.

    David Lewis, ‘Who’s Socialising Whom? Regional Organisations and Contested Norms in Central Asia’, Europe-Asia Studies Vol. 64, No. 7 (2012), pp. 1219–1237.

  34. 34.

    Sarah Lain, ‘Russia, China and the EU in Central Asia: Potential For Security Cooperation?’ (22 March 2017), https://bishkekproject.com/memos/14.

  35. 35.

    Krystyna Czerniecka and John Heathershaw, ‘Security Assistance and Border Management’, in Alexander Warkotsch (ed.), The European Union and Central Asia (London & New York: Routledge, 2011), pp. 77–101.

  36. 36.

    See, for instance, Daniel Kimmage, ‘Security Challenges in Central Asia: Implications for the EU’s Engagement Strategy’ in Engaging Central Asia: The European Union’s New Strategy in the Heart of Eurasia, ed. by Neil J. Melvin (Brussels: Centre for European Policy Studies, 2008): pp. 10–12.

  37. 37.

    Council of the European Union, 2007.

  38. 38.

    A tentative exception was a document titled ‘The Path to Europe,’ adopted by Kazakhstan in 2008. The document, covering the period 2009–2011, was developed ad hoc in the context of the then forthcoming chairmanship of Kazakhstan in OSCE.

  39. 39.

    Ormonbekov, ‘Kyrgyzstan v svete’, p. 68.

  40. 40.

    Daniyar Karimov, ‘Departament zapadnyh stran MIDa Kyrgyzstana ne soglasen s dovodami Rozy Otunbaevoi’ (The Department for Western countries of Kyrgyzstan’s MFA disagrees with the arguments of Roza Otunbaeva), 24.kg, 2007. https://24.kg/archive/ru/politic/13869-2007/02/06/36171.html/ [accessed 16 September 2017].

  41. 41.

    Interview with a Bishkek-based academic, anonymous, February 2017.

  42. 42.

    Muratbek Imanaliev, ‘Kyrgyzsko-amerikanskie otnosheniya: chto eto takoe?’ (Kyrgyz-American relations: what is this?), Kyrgyzstan Review, 2014. http://rus.gateway.kg/2773-2/ [accessed 16 September 2017].

  43. 43.

    For the broader argument on how Central Asian leaders learned to manipulate the bigger extra-regional powers, see Alexander Cooley, Great Games, Local Rules: The New Power Contest in Central Asia (Oxford: Oxford University Press, 2012).

  44. 44.

    Peyrouse 2014, p. 12.

  45. 45.

    Neil Melvin, ‘The EU Needs a New Values-Based Realism for its Central AsiaStrategy’, EUCAM Policy Brief No. 28 (October 2012), p. 3.

  46. 46.

    See Albert O. Hirschman, Development Projects Observed (Brookings Institution Press, 2011). For critical review of implications of such imitation, see Bent Flyvbjerg and Cass R. Sunstein, ‘The Principle of the Malevolent Hiding Hand; Or, the Planning Fallacy Writ Large’, Social Research, 83:4 (2016), pp. 979–1004.

  47. 47.

    Luca Anceschi, Turkmenistan’s Foreign Policy: Positive Neutrality and the Consolidation of the Turkmen Regime (London: Routledge, 2008), p. 14.

  48. 48.

    Dmitri Furman, ‘Imitation Democracies’, New Left Review, 54 (2008), pp. 28–47.

  49. 49.

    Andrew Wilson, Virtual Politics: Faking Democracy in the Post-Soviet world (Yale University Press, 2005).

  50. 50.

    Jos Boonstra and Jacqueline Hale, EU Assistance to Central Asia: Back to the Drawing Board?, EUCAM Working Paper No. 8 (January 2010), p. 10.

  51. 51.

    Sievers 2003, p. 84.

  52. 52.

    ‘ES vydelit polmilliona evro na proekt po borbe s korruptsiei v Kirgizii’ (The EU will allocate half a million euro for a project to fight against corruption in Kyrgyzstan), RIA Novosti, 7 March 2017, available at: https://ria.ru/world/20170307/1489481610.html?inj=1.

  53. 53.

    Vadim Nochevkin, ‘Sudebnaya reforma v Kyrgyzstane: nu i kak, ostanovili bespredel?’ (Judicial reform in Kyrgyzstan: so, is the lawlessness curbed?), Delo Nomer, http://delo.kg/index.php/health-7/10635-sudebnaya-reforma-v-kyrgyzstane-nu-i-kak-ostanovili-bespredel, 1 March 2017; Tatiana Kudryavtseva, ‘Pervye itogi sudebnoi reform podvel president Kyrgyzstana’ (The President of Kyrgyzstan summed up the initial results of the judicial reform), 24.kg news agency, 5 June 2017, available at: https://24.kg/vlast/53775_pervyie_itogi_sudebnoy_reformyi_podvel_prezident_kyirgyizstana/.

  54. 54.

    Kairat Osmonaliev, interview in Vadim Nochevkin, ‘Sudebnaya reforma v Kyrgyzstane: nu i kak, ostanovili bespredel?’, Delo Nomer, http://delo.kg/index.php/health-7/10635-sudebnaya-reforma-v-kyrgyzstane-nu-i-kak-ostanovili-bespredel, 1 March 2017.

  55. 55.

    Ibid.

  56. 56.

    Sebastian Peyrouse (ed.), How Does Central Asia View the EU?, EUCAM Working Paper No. 18 (2014).

  57. 57.

    Interview with a former NGO staff member, Bishkek (August 2017).

  58. 58.

    Paramonov et al., 2017, pp. 115–117.

  59. 59.

    EU, Tajikistan: Multi-Annual Indicative Programme 2014–2010 and Country Strategy Paper 2014–2010, p. 5, available at: https://eeas.europa.eu/sites/eeas/files/tajikistan_country_mip_and_strategy_paper_2014-2020_en.pdf [accessed 16 September 2017].

  60. 60.

    Participant observation, speech of the head of the EU in Tajikistan Hidaet Biscevich, the EU open day, Dushanbe, 11 May 2017.

  61. 61.

    Asia Plus, ‘Ves’ gosbyudzhet Tadzhikistana na 2017 god v odnoy kartinke’ (The Whole Budget of Tajikistan for 2017 in One Picture), Asia Plus, 23 December 2016, https://news.tj/ru/node/234715 [accessed 16 September 2017].

  62. 62.

    EU 2014, pp. 30–31.

  63. 63.

    Participant observation, speech of the head of the EU in Tajikistan Hidaet Biscevich, the EU open day, Dushanbe, 11 May 2017.

  64. 64.

    Interview with a high-level official from the Ministry of Labour, Migration and Employment, January 2017.

  65. 65.

    Interview with employees of the EU in Tajikistan, May 2017.

  66. 66.

    See, for example, Sjoerd Karsten, ‘Neoliberal Education Reform in The Netherlands’, Comparative Education, Vol. 35, No. 3 (1999), pp. 303–317; Mark Olssen and Michael A. Peters, ‘Neoliberalism, Higher Education and the Knowledge Economy: From the Free Market to Knowledge Capitalism’, Journal of Education Policy, Vol. 20, No. 3 (2005), pp. 313–345.

  67. 67.

    Interview with employees of the EU in Tajikistan, May 2017.

  68. 68.

    Tuychi Rashidov and Umayra Rashidova, ‘Reforma sredney obsheobrazovatel’noy shkoly v Respublike Tadzhikistan v period nezavisimosti’ (The Reform of the Secondary School in the Republic of Tajikistan at the Time of Independence), Journal of the Academy of Sciences of the Republic of Tajikistan, No. 4 (2015), pp. 40–44.

  69. 69.

    Asia Plus, ‘High-level EU Mission Pays Official Visit to Tajikistan’, 13 July 2017, https://www.news.tj/en/news/tajikistan/politics/20170713/high-level-eu-mission-pays-official-visit-to-tajikistan [Accessed 16 September 2017].

  70. 70.

    Interview with employees of the EU in Tajikistan, May 2017.

  71. 71.

    Between US$50 and US$120, in rare cases.

  72. 72.

    More than one million, out of nine million Tajik citizens, are labour migrants in Russia.

  73. 73.

    Nargis Kassenova, ‘A View from the Region’, in Engaging Central Asia: The European Union’s New Strategy in the Heart of Eurasia, ed. by Neil J. Melvin (Brussels: Centre for European Policy Studies, 2008), p. 126.

  74. 74.

    Cooley, 2012.

  75. 75.

    See, for instance, Joanna Lillis, ‘The long read: why Russia should see off China in Central Asia’s new great game’, The National (26 March 2015), available at: https://www.thenational.ae/arts-culture/the-long-read-why-russia-should-see-off-china-in-central-asia-s-new-great-game-1.81982.

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Acknowledgements

This work was supported by the following research projects: ‘Around the Caspian’ (the European Union Horizon 2020 Programme, grant number SEP-210161673) and ‘Contested Global Governance, Transformed Global Governors? International Organisations and “Weak” States’ (the French National Research Agency, grant number ANR-16-ACHN-0034).

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Correspondence to Karolina Kluczewska .

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Kluczewska, K., Dzhuraev, S. (2020). The EU and Central Asia: The Nuances of an ‘Aided’ Partnership. In: Fawn, R. (eds) Managing Security Threats along the EU’s Eastern Flanks . New Security Challenges. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-26937-1_10

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