MOT SO THnCH THITC TRONG VieC TRICN KHRI CHINH SnCH QU6C PHONG Vfl AN NINH CHUNG (2007-2018)
D o a n T h i T h u H u o n g *
Tom tat: Lua chon phdng thii tap the v&i sir ra dai cua Chinh sdch Qudc phdng vd An ninh chung (CSDP) dugc coi Id mdt bu&c di hop xu huang cua Lien minh Chdu Au khi cdc nguy ca vd mdi de doa an ninh ngdy cdng biin ddng phirc tgp khdn luang. Mac dii xdc dinh CSDP Sevan dung tich hgp nhieu cdng cu ddn su, qudn su, ngogi giao... de ddm bdo an ninh cho khu vuc nhimg qud trinh triin khai CSDP cua EU vdn gap phdi vd sd thdch thirc. Bdi viit tap trung xem xet cdc vdn de EU budc phdi ddi mat trong qud trinh triin khai CSDP vd tic do dua ra nhgn xet ve cdc thdnh tiru vd hgn che cua CSDP trong triin khai thuc tien.
Tir khoa: CSDP, thdch thirc, trien khai, qudn su, hgp tdc, ddn su
Abstract: Collective defense choice with the introduction of Common Security and Defence Policy is considered as a step in the trend of the European Union when the risks and security threats are increasing and more complex. Although EU identified that CSDP will integrate all civil, military and diplomatic tools, etc. to ensure regional security, the CSDP implementation still faces with numerous challenges. The paper will focus on issues which CSDP must face in the implementation process, after that, author will give some comments on the achievements and limitations of CSDP in practical implementation.
Key words: CSDP, challenges, implementing, military missions. Cooperation Agreement, civil missions, limitation
1. Noi dung chinh sach ciing hudng tdi nhiing muc tieu chung ciia CFSP nhu quy dinh tai Hiep udc Lien minh chau Au (TEU) va Hiep udc Lisbon la: (i) N i m trong khudn khd Chinh sach Dd^i g^^ ^^ ^,^ ^ j , ^^. ^^^^^^ j^j ,^^ ^^^ ^^p ^^^
EU; (ii) Tang cudng mdi tmdng an ninh cua Lien minh va ciia timg quoc gia thanh vien;
1.1. Muc tieu
ngoai va An ninh chung (CFSP) nen CSDP
* NCS Dai hoc KHXH va NV 0 " ) Duy tri hda binh va dam bao an ninh Nhgn bdi ngdy: 5/4/2019 'l^^^ ^^^ t^^) '^'^"g *^^^8 ' ^ ^ *^^ ^"^^^ ^^' <^) Phdn bien xong 22/4/2019 Tang cudng dan chu, phap quyen, tdn trpng Chdp nhgn ddng 5/5/2019 nh^n quygn va cac quyen hr do co ban.
Jllet AS- thaeh Uiue... 33 Trong dd, Hiep udc Lisbon dac biet nhan
manh muc tieu cu the cua CSDP la: "gin giii hda bmh, ngan ngira xung dot, thuc day hgp tac an ninh qudc te thea tinh than ciia Hiin chuong Lien Hiep Qudc".
Hiep udc Lisbon ciing khing dinh:
"ngay nay, khi chien tranh Lanh da ket thiic, chiing ta dang sdng trong the gidi toan cau hda manh me nhung ciing phan tach rd rang vi the chau Au can phai ganh trach nhiem trong viec dieu hanh qua trinh toan cau hda".
Ngay trang dau tien cua ESS, EU da khing dinh "chau Au san sang chia se trach nhiem an ninh toan cau va xay dung rapt the gidi tdt dep hon....va rapt khi EU ganh vac trach nhiem Idn hon, hoat ddng tich cue hon se khien EU dat dugc vi the chinh tri cao hon"
Ngdn ngira xung dot, tdng cu&ng moi trudng an ninh cua todn Lien minh vd cua timg qudc gia thdnh vien: EU tir tmdc den nay van dugc coi la mdt the che cd nhiing thanh tyu dang ne ve hgp tac kinh te - xa hdi nhung lai cd nhieu han che trong vide ddc lap dam bao an ninh. EU gan nhu van chua cd dugc mgt co che phdi hgp hieu qua trang ITnh vuc an ninh, van de an ninh va dam bao an ninh ciia khu vyc va cac qudc gia thanh vien vin chii yeu dya vao sy hd tro va bao hd ciia NATO. Nam 1999, sau nhiiu nd lyc nham dat dugc nhiing tieng ndi chung ve van de an ninh, qudc phdng, tai Hdi nghi thugng dinh Helsinki, Chinh sach An ninh Qudc phdng Chau Au (ESDP) dupe de cap den nhu la mdt phan ciia CFSP va dac biet la sy
ddi ten tir Chinh sach An ninh Qudc phdng Chau Au sang Chinh sach Qudc phdng va An ninh chung (CSDP) trong Hiep udc Lisbon da khang dinh quyet tam tang cudng hgp tac ve an ninh va qudc phdng trang ndi khdi EU. Hiep udc Lisbon da dua ra cac dieu khoan ve viec hd trg Ian nhau trong viec dam bao an ninh "neu mdt qudc gia thanh vien la nan nhan ciia su xam luge vti trang tren lanh thd cua minh, cac qudc gia thanh vien khac se phai cd nghia vu vien trg va hd trp bang mpi each trong kha nang, theo Dieu 51 [quyen ty ve chinh dang] ciia Hien chuong Lien Hgp Qudc" .
Duy tri hda binh vd ddm bdo an ninh quoc ti: Dung nhu ldi phat bieu cua Ngoai trudng EU Jose Manuel Barroso trong cupc hpp Dai Hdi Ddng ngay 12 thang 9 nam 2012, "The gidi can rapt chau Au cd kha nang trien khai cac hoat ddng quan su de hd trg thiet lap hda binh tai cac khu vyc khung hoang...."'^, EU da cho thay quyet tara va raong mudn thyc hien nghia vu qudc te ciia rainh trong viec gin giii hda binh va an ninh qudc te theo tinh than cua Hien chuong Lien Hgp Qudc cac nude bmh dang ve chu quyen, tdn trgng va lara trdn nghTa vu qudc te, giai quyet hda binh cac tranh chap qudc te, khdng diing vii luc trong quan he qudc te.
De khang dinh quyet tam va hien thyc hda nghia vy qudc te ciia minh, EU da de ra cac Nhiera vu Petersberg vdi cac nhiem vu ban
European Security Strategy, pg.l 1.
^ Hiep uoc Lisbon, dieu 42.7, httpsV/eur- lex.europa.eu/legal-
content/EN/TXT/?uri=celex%3 A12007L%2FTXT
* http://ec.europa.eu/sotcu2012/
34 NGHIEN CCru CHAU AU - EUROPEAN STUDIES REVIEW N°5(224).2019
dau dugc neu len tai Hiep udc Amsterdam la
"cuu trg nhan dao, gin giii hda binh, trien khai lyc lupng thuc dia vdi nhiem vu quan ly khiing hoang va kien tao hda binh". Tuy nhien, theo dieu 28B cua Hiep udc Lisbon, Nhiem vu Petersberg da dugc rad rgng gdra:
".. .cac boat dpng chung giai trir quan bi, ciiu trp nhan daa, cd van va hd trg quan su, ngan chan xung dot, gin giii hda binh va dn dinh sau khiing hoang. Tat ca nhiing nhiera vu nay gdp phan chdng lai chit nghTa khiing bd, gdra ca viec hd trg nude thii ba trong cugc chien chdng khung bd tren lanh thd nude dd".
1.2. Quy trinh trien khai
Theo nguyen tac dupe de ra tai Hiep udc Lisbon, CSDP cd kha nang de thuc hien toan bd chu trinh quan ly khung hoang bao gdm viec ngan ngua, can thiep va thiet lap hda binh. Dd CSDP cd the linh hoat iing phd vdi khung hoang d ca cap dp chinh tri va quan dan sy, EU da dua ra quy trinh 5 giai daan triin khai cac hoat dgng cua CSDP gdm:
Giai dogn 1: Gidm sdt vd cdnh bdo sam.
Giai doan nay bao gdra cac budc giam sat, danh gia, lap kd hoach xir ly khiing hoang va du doan cac mdi de dpa. Tmdc mdi nhiem ky, Chu tich Hdi ddng Chau Au se cung vdi cac nhdm Tu vin thudc Uy ban Chinh tri va An ninh (PSC) thao luan ve tinh hmh qudc ti va mdi tmong chinh tri toan cau di tir dd dua ra mdt "danh sach cac van de can dugc luu y".
Cac chu thi lien ddi, chiu trach nhiem thuc hien giai daan I nay chinh la: (i) cac qudc gia thanh vien va Uy ban Chau Au chiu
trach nhiem giam sat ve chu trinh canh bao sdm; (ii) Uy ban Quan sy EU (EUMC) va Uy ban ve cac van de dan su quan ly khung haang (CIVCOM) danh gia nii ro ve cac cupc khiing hoang tiem nang, dua ra khuyen nghi va tu van ve chien lupc quan su va dan sy de giai quyet khung hoang. Khi mpt cupc khiing hoang bat ki nd ra, Cue Hanli ddng ddi ngoai chau Au (EEAS) se soan thao mdt ban thao "khung phap ly ve each tiep can khung hoang" - dua ra mdt loat each tiep can tdng hpp va toan dien de cac nha lanh dao EU lua chgn each tiep can phii hgp van dung vao quan ly va xir ly khiing hoang.
De thuc hien tdt giai doan 1, EU ludn phdi hgp chat che vdi Lien hgp qudc, NATO, cac td chirc khu vyc, cac td chiic qudc te, cac td chuc phi chinh phu va lanh daa cac qudc gia thanh vien trong hoach dinh, xay dung chien lupc va ddi thoai chinh tri.
Giai dogn 2: Xdy dung khdi niem ve qudn ly khiing hodng. Ngay khi PSC xac dinh hoat ddng ciia CSDP la can thiet va phii hpp trong viec ngan ngira hoac xir ly khiing hoang, mdt "khai niem ve quan ly khung haang" (CMC) se dugc soan thao de xac dinh vi tri chien lupc ciia EU, cac lpi ich chinh tri ciia EU, muc tieu cudi cimg ma EU hudng tdi. CMC dugc coi la khung chinh sach, xuong sdng de EU trien khai thdng suot cac hoat ddng CSDP vi CMC dam bao su gan ket va tinh tdng the ciia cac cdng cu xii ly khiing hoang. CMC khdng he cd mau sd chung vi CMC se thay ddi linh hoat tuy vao timg hoan canh va mirc dp ciia khung
Mdt »A thaeh thv^...
hoang theo su danh gia ciia Thu ky Hdi ddng Chau Au va Uy ban Chau Au tren co sd thdng tin do Trung tam Tinh bao Chau Au (EU INTCEN) thu thap. CMC dugc coi la co sd chinh cho viec hoach dinh chien lupc chinh tri ciia CSDP do Uy ban Hoach dinh va Quan ly khiing hoang (CMPD) scan thao va dupe hd trp nang lyc bdi Lyc lupng Quan dpi Chau Au (EUMS) va Uy ban Hoach dinh va LTng phd dan sy (CPCC).
Ngay khi CMC dugc Uy ban Chinh \x\
va An ninh va Hdi ddng Chau Au thdng qua, Hdi ddng se ra Nghi quyet trien khai nhiem vu ciing vdi mdt co che thyc hien de cac qudc gia thanh vien cam ket va ddng gdp.
Dya tren quyet dinh cua Hdi ddng Chau Au, mdt hoac vai Thda thuan luc lupng (SOFA) va Thda thuan nhiem vu (SOMAs) se dupe dam phan de quyet dinh vai trd ciia cac qudc gia thanh vien hoac cac qudc gia khdng phai la thanh vien cua EU tham gia vao nhiem vu ciia CSDP.
Giai dogn 3: Lap ke hogch trien khai.
Trong giai doan nay, khai niem ve hanh dpng (CONOPS) va ke hoach hanh ddng (OPLAN) dugc chi huy chien dich va nhdra thuc hien chien dich soan thao. Ddi vdi cac nhiem vu quan su, cac Tieu chi qudc phdng (IMD) da EUMS ban hanh la "kim chi nam"
cha cac chi huy chien dich soan thao CONOPS va OPLAN. Ngay sau khi CONOPS va OPLAN dupe Hdi ddng Chau Au thdng qua, chi huy chien dich chiu trach nhiem tien hanh hoat dgng vdi budc dau tien
la tap hpp lyc lugng thdng qua nhiing cam ket chinh tri ciia cac qudc gia.
Giai dogn 4: Trien khai vd thuc hiin.
Ngay sau khi dupe thdng qua k i hoach tridn khai, EU se tien hanh chien djch vdi cac bien phap da dugc lya chpn va thdng nhit. Trong qua trinh trien khai va thuc hien nhiem vy, ddi vdi cac nhiem vu quan su, EUMS se chiu trach nhiem giam sat va bao cao len PSC;
ddi vdi cac hoat ddng dan sy, chi huy chien dich se chiu trach nhiem kiem soat va bao cao len PSC.
Giai dogn 5: Tdng kit, ddnh gid chien luge. Giai doan nay se quyet dinh cd nen tiep tuc duy tri, gia han hay ket thiic nhiem vu.
Cac nhiem vu dugc EU trien khai trang khudn khd CSDP se dugc quy dinh bdi mgt hoac vai Nghi quyet ciia Hdi ddng Chau Au va dya vao thyc tien trien khai nhiem vu, EU se quyet dinh ve thdi han ciia hoat ddng dd.
Mpi thay ddi v i thdi han nhu gia han hay ket thiic se dugc Hgi ddng dua ra trong rapt Nghi quyet bd sung.
1.3. Cong cu thuc thi
N i m trong khung phap ly CFSP nen CSDP dupe triin khai dya tren co sd mpt loat cac cdng cy ciia CFSP gdm: cac hoat dpng chung; cac quan diem chung va cac chien lupc chung . Tuy nhien, EU ciing xay dyng va phat trien nhiing cdng cu chuyen biet nham thyc hien cac muc tieu va nhiem vu cua CSDP.
^ Denza (2002), The Intergovernmental Pillars of the European Union, Oxford, pg.55.
36 NGHIEN COU CHAU AU - EUROPEAN STUDIES REVIEW N"5I224).20l9
Qudn dodn chdu Au (The European Corps - Eurocorps): Burocorps dugc thanh lap dua tren Hiep udc Elysee ky ket vao ngay 22 thang I nam 1963 nham hda giai mdi quan he Phap- Dire, tang cudng quan he hgp tac Phap- Diic tren ITnh vyc qudc phdng. Mdi dau chi la thanh lap mpt Hdi ddng an ninh phdng thii Phap - Diic, sau dd dupe md rdng vdi sy tham gia cua cac qudc gia thudc WEU. Quan doan chinh thirc ra ddi vao ngay 22/5/ 1992 tai Hdi nghi thugng dinh La Rochelle.
Eurocorps dugc xay dung vdi tham vpng cd the can thiep vao cac cupc khiing hoang va hanh dpng vdi tu' each nhu mdt lyc lugng phan iing nhanh cua EU trong viec giai quyet xung dot va binh dn sau xung dot, ddng thai thyc hien cac nhiera vu ciiu trg nhan daa, gin giii hda binh trong khudn khd Lien Hgp Qudc hoac Td chiic hgp tac an ninh chau Au (Organization for Security and Co-operation in Europe - OSCE). Burocorps dugc huin Iuyen va dao tao de trien khai quan trong cac cupc chien nham dam bao nin phdng thu chung cho cac ddng minh theo quy dinh tai chuong 5 Hiep udc Washington va Hiep udc Bmssels.
Eurocorps dugc dat dudi sy chi huy cua WEU- vdn dupe coi la mdt "canh tay quan sy" ciia EU. Chinh dinh hudng nay da khien mdi quan he My- Tay Au trd nen cang thang vi sy ra ddi ciia Eurocorps^. De xoa diu Hoa Ky, trong Thda thuan SACEUR ngay 21 thang 1 nam 1993 neu rd: cac nhiem vy cua
Eurocorps dugc trien khai trang khudn khd NATO trong nhiing tmdng hgp khan cap, su phan cdng nhiem vu trong quan doan do Tdng tu lenh NATO dam nhiem^.
Luc lugng phdn ung nhanh (The European Rapid Reaction Force - ERRF):
Tai Hdi nghi thugng dinh Helsinki thang 12 nam 1999, EU tuyen bd thanh lap luc lupng phan img nhanh vdi khoang 50.000 den 60.000 quan, vdi myc tieu "triin khai va thuc thi cac sii menh nhSn dao, cihi hd va gin giii hda binh"^. Luc lupng nay cd the duoc trien khai tai nude ngoai va tao cho EU kha nang xir ly cac khimg hoang va nguy co bang bien phap quan sy tai chau Au va rapt sd khu vyc ma khdng can su tham gia hay chi dao cua Hoa Ky. Tii 1/1/2007, ERRF cd 60.000 quan san sang de dieu ddng va trien khai. Tuy nhien, tren thuc ti, ERRF khdng phai la luc lupng quan ddi thudng true. Cac quan doan dugc duy tri trong luc lupng quan dpi rieng ciia timg qudc gia thanh vien va chinh phii cac qudc gia cd quan tham gia ERRF van cd quyin quyet dinh cd giri quan ciia minh di hay khdng trong cac tmdng hgp cu thi.
Nhiem vu Petersberg quy dinh cac nhiem vu cy the ciia ERRF la tham gia vao cac boat dgng ciiu trg nhan dao, gin giii va kien tao hda binh (bao gdm ca viec tham gia giai trir quan bi), giai quyet hau xung dot, ddng thdi ddng gdp cho cupc chien chdng
'' Mac Nhu Quynh (2018), Hoi nhap khu vuc o chau Au: Tnrcmg hop nghien cuu Chinh sach Doi ngoai va An ninh chung. Hoc vien Ngoai giao, tr.70.
^ http://www.eurocorps.org
^ http://www.europarl.europa eu/summits/hell_en.htm Presidency Conclusion, Helsinki European Council Meeting, 10-11/12/1999
JnM. ij0-thaeh (hue.... 37 khung bd, bao gdm ca viec hd trp nude thir
ba chdng khiing bd trong dia phan nude dd.
Luc lugng qudn doi chdu Au hinh thdnh theo chien dich (EUROFOR, KFOR, SFOR...): Ben canh Eurocorps va ERRF, EU cdn trien khai nhieu hoat ddng gin giii hda binh bang viec thanh lap cac luc lupng quan dpi tham gia vaa giai quyet cac xung dot nhu Bosnia, Heizegovina (EUROFOR), Kosovo (KFOR), Afghanistan, Serbia... Viec lien quan nay cd the dgc lap hoac ket hpp vdi NATO va tiiy thudc vao sy ty nguyen ciing nhu nang lyc cua timg qudc gia thanh vien.
Cac lyc lugng nay giiip EU duy tri mdi trudng dn dinh d khu vyc va hoan thanh sir menh qudc te trong viec dam bao hda binh va an ninh the gidi theo tmh than ciia Hien chuong Lien Hgp Qudc.
2. Mot so hoat dong thirc tien 2.1. Hogt dpng qudn stf
Trong khoang thoi gian tir nam 2003 den 2018, EU da trien khai 13 rihiem vu quan sy trong khudn khd ESDP/CSDP, tao ra each tiep can toan dien ciia EU ddi vdi viec xii ly khiing hoang. Dii dugc thuc hien tai cac khu vuc dia ly khac nhau nhung cac nhiem vu cua EU diu hudng tdi viec hd trg cac nd lyc binh dn, duy tri hda binh dn dinh va xay dung an ninh tai cac qudc gia, khu vuc thudc viing ngoai vi ciia EU. Cac nhiem vu quan sy ciia CSDP deu dugc trien khai hudng ling ldi keu gpi cita Hdi ddng Bao an Lien hgp qudc hoac yeu cau cua nuoc sd tai vdi each tiep can linh hoat va da dang. Mgt
sd hoat ddng rieu bieu cd the ke den nhu EUFOR Tchad/RCA (2008-2009);
EUNAVFOR Somaha - ATLANTA (2008- nay); EUTM Somalia (2010-2018)
Tru'&ng hop EUFOR Tchad/RCA (2008-2009)
Chau Phi la chau lyc ket ndi va ngan each vdi chau Au bang Dia Tmng Hai, tuy nhien, sy each biet trong toe dp phat trien cua hai ben bd Dia Tmng Hai da khien chau Au trd thanh mien dat hira. Tu lau lan sdng di cu va nhap cu trai phep tu chau Phi vao chau Au qua Dia Trung Hai da dugc EU dac biet quan tam, ddng thdi viec duy tri tam anh hudng tai chau luc ngheo ddng dan nay ciing se nang cao vi the va uy tin cua EU tren tm'dng qudc te. Vi the, EU da rat nd lyc hudng img Idi keu ggi cua Hdi ddng Bao an Lien Hpp Qudc trong viec giai quyet cac khia canh khu vyc sau khung hoang Dafiir tai Chad va Cong hda Tmng Phi.
Hoat dpng hd trg quan su tai Chad va Cdng hda Tmng Phi dugc EU trien khai vao ngay 28 thang 1 nam 2008 theo Nghi quyet 1778 (2007) ciia Hdi ddng Bao an Lien Hgp Qudc. Hoat ddng nay cd ddng gdp ciia 23 qudc gia thanh vien va 3 qudc gia khac, huy ddng tdi 3.700 quan. Muc tieu chu yeu cua nhiem vu la gdp phan bao ve ngudi tj nan va ngudi di ddi, tao dieu kien thuan lpi cho cac hoat ddng hd trg nhan dao; dam bao an ninh cho nhan vien Lien Hpp Qudc hoat ddng tai dia ban; thyc hien mdt sd tuan tra kiem soat va mpt sd nhiem vy khdng quan tam ngan va tam xa.
38 NOHliN CCfU CHAU AU - EUROPEAN STUDIES REVIEW N°5(224|.2019
Bang 4: Cac thong so cua sukien EUFOR Tchad/RCA (2008-2009) TT
1 2 3 4 5 6 7
Ndi dung Dia ban boat ddng Tru sd Ngay khdi ddng Ngay ket thiic Sd quan trien khai Ngan sach Cac nude tham gia
Sd lieu Chad va Cdng hda Tmng Phi Mont-Valerien (Paris), Phap 28/1/2008
15/3/2009 3.700 119,6 trieu Euro
23 qudc gia thanh vien EU va Albania, Croatia, Nga
Ngudn: EEAS
Nhiem vu nay da cd nhiing thanh cdng nhat dinh khi EU da tao ra dugc mdt pham vi an ninh an toan va binh dn vdi hon 2.000 cupc tuan tra tam ngan trd len va 440 cupc tuan tra tam xa) va cac hoat dgng quy md Idn trong cac khu vyc khdng cd trai tap tmng cd dinh va buy kich hoat khoang 350 vat pham nd chua ; xay dung va tai thiet lai nhieu khu vyc de keu gpi ngudi di ddi trd ve lang (it nhat 10.000 ngudi cd the ty nguyen trd lai);
An ninh do EUFOR cung cap da tao dieu kien thuan lpi cho cdng viec ciia cac td chuc nhan dao. Ho trg nhan dao do Uy ban Chau Au (chuong trinh ECHO) cung cap cho ngudi ti nan, ngudi di ddi va cdng ddng d Chad len tdi 30 trieu Euro vao nam 2008.
Nhiem vu ciia EUFOR da kit thiic nhung Lien minh chau Au nhung khoang 2.000 nhan vien ciia EUFOR vin d lai tiip tuc phyc vy dudi cd MINURCAT Lyc lugng hd trg ciia Lien Hgp Qudc. Cd the ndi, EUFOR la nhiem vu quan su dau tien dugc
EU thyc hien dudi danh nghTa ciia CSDP va ciing dugc coi la mdt trong nhiing thanh cdng budc dau khi khang dinh dugc "uy tin ve nang luc quan sy cua Lien minh" va chung minh EU hoan toan cd the trd thanh
"nha cung cap an ninh va ganh vac trach nhiem an ninh toan cau"^. Tuy nhien, ngay trong khi trien khai nhiem vu EUFOR tai Chad va Cdng hda Tmng Phi, yeu diem ciia CSDP ciing dupe bdc Id do chinh la su thiiu hut ve ngudn luc, dien hinh la viec EUFOR budc phai sii dung khdng quan ciia Nga va chi huy Chien dich nay tirng thira nhan
"trong mdt thdi gian EUFOR la mgt nhiera vu khdng cd phuong tien""'. Han chi nay xuat phat chinh tu mau thuan va su bat ddng ciia cac qudc gia thanh vien tham gia chien dich khi cho rang Phap la ngudi khdi xudng
Javier Soiana, "Chad mission shows EU is effective in giving stability", the Irish Times, 13/3/2009.
'" Michael Merlingen, EU Security Policy- What It is.
How it works. Why it matters, Lodon: Lynne Rienner Publishers,20I2, pgl65.
M£l &A thaeh thde... 39
va giii vai trd "then chdt" cua nhiem vu se hd trp cac nha cai h:i dgc tai tai khu vuc nay.
Chinh mdi nghi ki cua cac qudc gia thanh vien khien cho EU khdng cd su ddng thuan va nhat quan trong viec trien khai, huy ddng toan dien cac ngudn luc thiet yeu de phuc vu chien dich va day ciing chinh la Id hdng ciia CSDP.
2.2. Cdc hogt dpng ddn su-
Cac nhiem vy dan su trien khai trong khudn khd CSDP nham muc dich thiic day hda binh va dn dinh tai cac khu vuc de tdn thuong thdng qua viec nang cao nang lyc ciia he thdng phap luat va lanh dao cap cao. Day la cdng cu tich hpp ba khia canh ngoai giao, an ninh chinh tri va hpp tac phat trien raa EU su dung de giai quyet cac van de an ninh qudc phdng. Tinh den nam 2018, CSDP da va dang thuc hien 10 nhiem vu dan su tren 3 lyc dia Au-A-Phi chia vao cac nhdm sau: (i) nhdm nhiem vu dao tao lyc lupng canh sat la EUPOL CORPS Palestine (2006 din nay);
(ii) nhdm nhiem vu ho trp dn dinh bien gidi nhu EUBAM Rafah (2005 din nay); (iii) nhdm nhiem vy hd trg phat trien he thdng phap quy: EULEX Kosovo (2008 din nay);
(iv) nhdm nhiem vu giam sat: EUMM Gmzia (2008 din nay) va (v) nhdm nhiera vu khac:
EUCAP Sahel Niger (2012 din nay).
Tru&ng hffp: EULEX Kosovo (2008- nay)
Kosovo dugc coi la khu vuc cd tinh hinh chinh tri, an ninh cang thang keo dai.
Ke tir sau ndi chien Nam Tu va Hiep dinh hda binh Dayton nam 1995; xung dot vii trang giiia quan giai phdng Kosovo va lyc lupng quan chinh phii Serbia; Tien trinh hda binh Rambauillet; vu danh bom cua NATO, Lien Hgp Qudc da tien hanh thanh lap mdt Chinh phii lam thdi Kosovo (UNMIK).
UNMIK cd nhiem vu "quan ly qua trinh thiet lap va phat trien cac the che ty tri dan chii tara thdi nham dam bao dieu kien sdng binh thudng va hda binh cho dan thudng Kosovo"". Theo Nghi quyet 1244 ciia Hpi ddng Bao an Lien Hgp Qudc nam 1999, tien trinh binh dn Kosovo se ket thiic vao thang 11 nam 2005 va Lien hpp qudc se khdng cdn can thiep vao qudc gia nay. Trong bdi canh dd, EU da the hien quan diem san sang ganh vac trach nhiem tai Kosovo nham tao ra sy on dinh ben viing ciia khu vuc chau Au.
Tmdc tien, EU khdi ddng Nhdm ke hoach EU (EUPT Kosovo) - td chiic tien de ciia EULEX vdi nhiem vu: (i) dam bao qua trinh chuyen giao nhip nhang giua cac chii'c nang cu the ciia UNMIK va mdt nhiem vu quan ly khung hoang ciia EU; (ii) cung cap tham van ky thuat cho qua trinh trien khai cac nhiem vu dan su ciia EU'^
EULEX Kosovo dugc trien khai tir nam 2008 va dugc coi la mdt trong nhiing sir menh
" Document S/RES/1233(1999) , United Nation, Para 10, https://documents-dds- ny.un.org/doc/UNDOC/GEN/N99/096/57/PDF/N990 9657,pdf?OpenE]ement
'^ Joint action 2006/304/CFSP OIL 112/9 https ://eur-lex. europa. eu/legal-
content/EN/TXT/?uri=CELEX%3A32007E0778
40 NGHllN c a u CHAU AU - EUROPEAN STUDIES REVIEW N"5(2241.2019
dan su Idn nhat cua CSDP vdi nhiem vu ho trg chinh quyen Kosovo thiet lap he thdng phap che ddc lap va hen viing. EULEX hd h-p cac CO quan phap quyen ciia Kosovo trong viec dinh hudng phat trien hudng tdi viec gia tang tinh hieu qua, tinh ben viing, dam bao sy da dang phu hgp vdi nhieu sic tdc, tach biet khdi cac tac ddng chinh tri va phii hpp vdi cac tien le phap cita EU.
EULEX Kosovo thyc hien nhiem vu ciia minh thdng qua hai tru cot giam sat va hanh ddng. Theo dd, try cdt giam sat hd trg Kosovo phat trien dpi ngu can bp quan ly cap cao, nang cao nang luc he thdng tu phap, giam sat va danh gia cac boat ddng ciia he thdng phap luat, Try cdt nay da ket thiic vao giiia thang 6 nam 2018 va dugc chuyen giao sang he co quan tu phap dia phuong. Try cdt hanh ddng dupe EU keo dai tdi ngay 14 thang 6 nam 2020 theo Quyit dinh 2018/856 CFSP cung cap sy hd trg lien tuc cho Lyc lupng canh sat Kosovo, chdng bao ddng, tiep tuc chuang trinh bao ve nhan chiing, hd trg hau cin cho viec ap dyng he thdng phap luat mdi ciia Kosovo
EULEX dupe coi la mgt trong nhiing nhiem vu dan sy thanh cdng ciia CSDP khi tao ra sy dn dinh va kha nang dieu phdi nhip nhang trong mdt khu vyc chinh tri bien ddng.
Vi khia canh canh sat, EULEX da tham gia cimg canh sat dia phuong trong viec duy tri trat tu va an ninh cdng cdng; Ve khia canh phap ly, cac tham phan va cdng td vien ciia
EULEX ciing cac tham phan va cdng td vien ciia Kosovo tao thanh mpt Hdi ddng hdn hgp thi hanh quyen tai phan ddi vdi cac tdi pham nghiem h-png nhu: khiing bd, diet chiing, tdi ac chien hranh, tdi pham cd td chirc, tdi pham kinh ti...; Vi khia canh tu vin, EULEX da hd trp Kosovo xay dyng nang luc he thdng tu phap dpc lap, du kha nang dam nhan nhiem vy giam sat thyc hien phap luat.
Tuy nhien, qua trinh trien khai EULEX van gap phai nhiing khd khan, dac biet la trong van de thdng nhat va phdi hgp thuc hien. Han che dau tien chinh la viec cac qudc gia thanh vien khdng the giri dii sd lupng nhan su cd kinh nghiem nhu cam ket, nhat la khi cac chuyen gia dau nganh dang dugc tap tmng cho cac sir menh dan su khac tai Afghanistan va Georgia; Thii hai la su cham tre cung cap cac trang thiet bi thiet yeu phuc vy nhidm vy; cudi cimg chinh la khac biet trong nhan thiic va thdi quen van hanh he thdng phap quyen, trong khi EULEX de cao vai trd ciia cac thiet che dia phuong vdi each tiep can tir dudi len thi Kosovo tir trudc tai nay deu duy tri each tiep can tir tren xudng.''' 3. Mot so thaeh thirc trong trien khai Thuc tien trien khai CSDP tir khi ra ddi din nay da dat dugc mdt sd thanh tyu dang ghi nhan, tuy nhien, trong qua trinh thyc thi EU cung phai ddi mat vdi nhieu thaeh thirc ngin, tmng va dai ban.
^ https://vinAnA'.eulex-kosovo.eu/?page=2,60
''' S. Keukeleire, A Kalaja, A. Collacu "The European Union's Policy m Kosovo", pg. 193
42 NGHllN CLTU CHAU AU - EUROPEAN STUDIES REVIEW N^5(224).2019
tai chinh chung dupe ddng gdp theo ca che ATHENA'^ Tuy nhien, ca chi tai chinh ATHENA tao ra nhieu khd khan va "lam nan long" cac nude nhd va cac qudc gia dang phai ddi mat vdi khimg hoang tai chinh.
Ca cdu the che cua EU: mac dii EU da chii trpng hoan thien bd may td chirc va ca cau the che ciia EU ve ITnh vyc an ninh qudc phdng, tuy nhien, sy phan cap ciia cac td chiic ddi khi chua ro net dan den chdng cheo, phuc tap khien cho qua trinh lap ke hoach, thdng qua ke hoach va trien kliai thyc tien cac hoat ddng quan su ciia CSDP cdn ban che.
Mdi quan he v&i NATO: Do he qua ciia lich sir, tir lau cac van de quan su lien quan din chau Au thudng thupc tham quyen xu ly ciia NATO, do dd thaeh thiic dat ra chinh la lam thi nao de cac hoat ddng ciia EU khdng triing lap hoac mau thuan vdi NATO, ddng thdi phai cd co che trien khai hpp ly de vira phdi hgp chat che vdi NATO (tan dyng nang luc ciia NATO) vira giii dugc quyen ty chu, ddc lap.
3.2. Ddi v&i cdc hogt dpng ddn su Pham vi triin khai rdng Idn: Cac nhiem vu dan sy ciia EU hien nay dupe thuc hien trai khip ba chau lyc Au-A-Phi (gom Kosovo,
'^ Co chi tai chinh ATHENA dugc quy dinh lan dau lai Quyit dinh cua Hoi dong chau Au ve CFSP so 2004/197/CFSP ngay 23/2/2004 va sua dii bi sung tai Quyit dinh ciia Hoi ding chau Au ve CFSP so 2015/528/CFSP ngay 27/3/2015. ATHENA chi tra cac chi phi chung cho cac hoat dgng quan sy ciia CSDP va dugc dong gop hang nam bm cac quoc gia thanh vien dua tren ting thu nhap quoc dan theo quy dinh cua diiu 41.2 Hiep uctc Lien minh Chau Au.
Ukraina, Gmzia, Nigeria, Mali, vimg lanh thd Palestine hi chiim ddng, Afghanistan, Somalia va Libya), huy ddng 2.500 nlian vien va tieu tdn khoang ngan sach len den 200 trieu Euro. Pham vi trien khai rdng ddi hdi ngudn luc Idn tao nen nhieu thaeh thuc trong viec quan ly, thyc thi nhiem vu. Ben canh dd, mdi khu vyc lai cd dac diem dia chinh tri khac nhau dan den each thirc ap dung rieng biet do do de dat dugc myc tieu chien luge bat budc phai lua chpn dugc cdng cu va hinh thiic thyc hien phu hgp.
Ngudn nhdn luc: Trong bdi canh thaeh thiic an ninh phi tmyen thdng ngay cang phiic tap, cac nhiem vy dan su dugc coi la cdng cu mem giiip EU tao ra dugc vanh dai an ninh an toan. Tuy nhien, vdi sd lupng nhiem vu Idn trai tren pham vi rdng, EU can chuin hi luc lugng nhan su va trang thiet bi hd trg Idn. Dac biet, cac nhiem vu dan su ciia CSDP deu cd su pha trdn nhan sy giiia nhan vien qudc te biet phai va nhan vien dia phuong, do dd khoang each ve trinh dp va khac biet van hda cimg la rao can cho viec van hanh va tridn khai nhiem vy hieu qua.
Ben canh dd, cac nhan vien qudc te ciia EU tham gia vao nhiem vu hau het la can bd biet phai ciia cac quoc gia thanh vien, do dd, hg hi anh hudng bdi cac cam ket chinh tri va cac dudiig ldi chiin luge cua qudc gia minh.
Nhan thiy nhiing bit cap trong van di ngudn nhan lyc, EU da xay dung mdt ban thao md ta cdng viec ciia cac nhiem vy dan sy CSDP vdi cac yeu ciu va rieu chi cho timg vi tri de
MM i^thaeh thAe... 43
chia se vdi cac qudc gia thanh vien, tCr dd tuyen dung va xay dung mpt dpi ngii nhan vien thudng true cho cac nhiem vu dan su ciia CSDP.
Ddm hdo an todn cho nhdn viin tai thirc dia: Cac nhiem vu dan sy dugc coi la each tiep can mdi ciia EU vdi quan diem sir dung cdng cu mem de phdng ngua cac mdi de dpa ttr xa, dam bao vung ngoai vi an toan tu dd bao ve lpi ich ben trong ciia EU. Tuy nhien, phan Idn cac nhiem vu dan sy ciia CSDP dugc trien khai tai cac khu vuc bat dn an ninh, trong dd cd nhiing khu vyc cd ty Id nguy hiem vd ciing cao nhu Afghanistan, viing Lanh thd Palestines, Libya..., do dd, van de dam bao an toan cho nhan vien cua EU va cac qudc gia thanh vien la mot yeu cau cap thiet.
Vdn de tdi chinh: Theo quy dinh ciia Dieu 41 Hiep udc Lisbon, ngudn tai chinh sir dung cho cac hoat ddng cua CSDP dupe lay hi ngudn ngan sach CFSP'^ do cac qudc gia thanh vien ddng gdp dua tren ti Ie tdng thu nhap qudc ndi. De sii dyng ngudn ngan sach, EU di ra 2 ca che huy ddng tai chinh:
ATHENA cho cac nhiem vu quan su va Khung tai chinh da phuong (Multianual Financial Framework) cho cac nhiem vy dan sy. Do tinh hinh trien khai ngay cang phirc tap va md rdng nen ngudn tai chinh dugc sir
''' CFSP ra doi tir Hiep dinh Masstricht nam 1993 la mgt trong ba tru cgt ciia EU quy dinh ve cac van de d6i ngoai va an ninh. Sau khi Hiep udc Lisbon dirge ky kit nam 2007 va co hieu lire nam 2009, CSDP dugc quy dinh la mgt bg phan ciia CFSP.
dyng ngay cang nhieu. Vao nam 2015, cam ket tai chinh sii' dyng cho cac nhiem vu dan su ciia CSDP la hon 258 trieu Euro trong tdng sd 320 trieu Euro ciia Quy CFSP; nam 2016 con sd nay tang len la hon 280 trieu Euro Chinh viec can sir dung ngudn tai chinh Idn trong bdi canh khung hoang ng cdng va hat dn keo dai trong khu vyc ddng tien chung Eurozone ciing la mgt thaeh thiic Idn ddi vdi EU hrong viec trien khai cac nhiem vu dan su cua CSDP.
Mot so nh|n xet
Nhin chung sau hon mdt thap nien hmh thanh va trien khai (ke tir khi ddi ten thanh CSDP theo Hiep udc Lisbon), qua trinh thyc thi CSDP da dat dugc mdt sd thanh tyu dang ke:
Mdt Id, CSDP da bit dau xay dyng dugc niem tin giiia cac quoc gia thanh vien trong mdt ITnh vyc nhay cam nhu an ninh qudc phdng. Dong thdi, do yeu cau trien khai thyc tien nhiera vu, CSDP da timg budc xay dyng va hinh thanh dugc mdt cau tnic bp may tuong ddi hieu qua.
Hai Id, sau mdt thdi gian dai phu thudc an ninh vao NATO, EU vdi CSDP da tirng budc dat dupe sy tu chu trong viec dam bao an ninh khu vyc ciing nhu chia se va ganh vac trach nhiem quan ly khiing hoang chung vdl NATO. Vdi tu each la mpt td chiic tap hgp nhieu qudc gia thanh vien vdi he tu
Financing of CSDP missions and operations, http://www.europarl.europa.eu/RegData/etudes/ATA G/2016/5779 5 8/EPRS_ATA(2016)577958_EN.pdf
44 NGHIEN cCfU CHAU AU - EUROPEAN STUDIES REVIEW N°5(224).20l9
tudng va quan diem chinh tri da dang, EU da ket hgp sir dung nhieu loai hinh cdng cu nhu cdng cu quan su, cdng cu kinh te va ngoai giao de phdng ngira va giai quyet khiing hoang. Chien lupc chau Au 2003 da neu ro:
"... cdn thiet phdi hdnh ddng tru&c khi khiing hodng xdy ra... khdng mdt nguy ca ndo cd the dugc gidi quyit chi bdng cdc phuoTig tien qudn su. Mdi nguy ca diu yeu cdu sir dung phdi hgp cdc cdng cu " .
Ba Id, CSDP da the hien rd quan diem cua EU san sang trd thanh nha cung cap an ninh khu vyc va toan cau. Vdi viec trien khai cac nhiem vu tren phara vi rdng, bao triim ca ba chau lyc Au-A-Phi, EU da timg budc duy tri tim anh hudng tai cac khu vuc tmyen thdng va dan nang cao vi the tren ban dd chinh tri the gidi.
Tuy nhien, trong qua trinh trien khai thuc tiin, CSDP vin bdc Id nhieu ban che nhu: (i) Phdn irng chdm, quy trinh trien khai nhiera vu cua CSDP dua tren nguyen tac ddng thuan giii'a cac quoc gia thanh vien, tuy nhien, khdng phai liic nao EU ciing dat dupe sy ddng tiiuan trong cac hoat ddng dan su din din sy phan ung thieu kip thdi va lung timg cua EU ddi vdi radt sd khimg hoang.
Phan ling khdng thdng nhat giiia cac thanh vien trong cupc chien Iraq 2003 la mdt vi du cho nguy co chia re ndi bd ciia EU, hay vin di cim van Syria ciing tao ra mau thuan khi
'^ Jochen Rehrl and Hans-Bemhard Weisserth (2012), Handbook on CSDP, European Security Defence College, Vienna, pp 21.
EU nhat tri duy tri chinh sach cam van kem theo cac dieu khoan hd trp khdng gay thuong vong cho lyc lugng ddi lap thi Anh, Phap lai de nghi thay ddi lenh cam van, cho phep cung cap vii khi cho luc lupng ddi lap tai nude nay. (ii) Hgn che ve nguon luc: hau bet cac nhiem vu quan va dan sy ciia CSDP deu dupe trien khai trong tinh trang thieu thdn trang thiet bi, vat chit, tai chinh va ngudn nhan luc. Nguyen nhan chii yeu ciia van de nay la do nang lyc nhan su, tai chinh, quan sy cua CSDP diu din tir cam ket chmh tri cua cac qudc gia thanh vien. Da do, sy cham tre hoac thai dp thd a ciia bat ky qudc gia thanh vien nao cung tao nen rao can Idn ddi vdi hoat dpng cua CSDP.
Tai lieu tham khao 1. Denza (2002), The Intergovernmental Pillars of the European Union, Oxford.
2. Document S/RES/1233 (1999), United Nation, Para 10, https ://dacuments- dds-
ny.un.org/dac/UNDOC/GEN/N99/096/57/P DF/N9909657.pdf?OpenElement
3. European Council, European Security Strategy - A secure Europe in a better world.
Paperbacks, 2003.
4. Financing of CSDP missions and operations,
http://www.europarl.europa.eii/RegData/etud es/AT AG/2016/57795 8/EPRS_ATA(2016)5 77958_EN.pdf
5. Hiep udc Lisbon, dieu 42.7, https ://eur-Iex. europa. eu/Iegal-
MM. i^thaeh thfte.. 45
content/EN/TXT/?uri=ceIex%3A12007L%2 FTXT
6. Jose Manuel Barroso, Speech on the State of the Union 2012, http;//ec.europa.eu/soteu20I2/
7. http://www.eurocorps.org 8. http://wavw.europarl.europa.eu/summ its/hell_en.htm Presidency Conclusion, Helsinki European Council Meeting, 10- 11/12/1999.
9. https://www.eulex-kosavo.eu/
10. Javier Soiana, "Chad mission shows EU is effective in giving stability", the Irish Times, 13/3/2009.
11. Mac Nhu Quynh (2018), Hdi nhap khu vyc d chau Au: Tmdng hpp nghien cim Chinh sach Ddi ngoai va An ninh chung, Hpc vien Ngoai giao
12. Michael Meriingen, EU Security Policy- What It is. How it works. Why it matters, Lodon: Lynne Rienner Publishers, 2012.
13. S. Keukeleire, A Kalaja, A. Collacu
"The European Union's Pohcy in Kosovo".
