Introduction: the EU's quest for a more coherent Russia policy

Abstract

It is always important that the EU speaks with a coherent voice to its partners (Interview 46). Russia is the epitome why it doesn't work (Interview 11). The two quotes above are at the heart of a paradox that inherently characterizes the foreign policy of the European Union (EU). On the one hand, there is widespread agreement that the EU should become a more coherent external actor. In the context of EU foreign policy-making, coherence-both between political actors and different external policies-is understood as a key element to increase the Union's international impact. On the other hand, the EU repeatedly fails to meet this aim. The effectiveness of its external approach is undermined by deep internal divisions between actors and across policy areas. In practice, the notion of the EU as an influential international actor frequently turns out to be wishful thinking rather than a reality. Relations with Russia are a prime example in this respect. The EU and its Member States have a major stake in the eastern neighbor, yet coherence of their external policies is frequently undermined by a fundamental conflict over interests and approach. Calls for a stronger external role of the EU are rooted in the uniqueness of the project of European integration. Since the Treaty of Rome, it has preserved peace among its Member States on a formerly war-prone continent, contributed to economic growth and prosperity for its citizens, and created a shared body of European law. The list is non-exhaustive and could be extended with many more exceptional attributes: the EU is one of the largest economies in the world with a gigantic internal market and a common currency, it has a system of shared values, and it grants fundamental rights to every citizen. Despite the fact that it is not a state per se, it shapes the lives of more than 500 million people. Due to such achievements, the EU is widely regarded as a success story. The vast majority of policy-makers and observers are of the opinion that these internal achievements should be reflected in a stronger international role of the EU. Since the early days of the EU as an international actor, its external performance has been subject to heated debates. Most practitioners and observers agree that the EU lacks international impact. Inter alia, it has been referred