• Research
  • Strategic Europe
  • About
  • Experts
Carnegie Europe logoCarnegie lettermark logo
EUUkraine
  • Donate
{
  "authors": [
    "Jan Techau"
  ],
  "type": "commentary",
  "blog": "Strategic Europe",
  "centerAffiliationAll": "",
  "centers": [
    "Carnegie Endowment for International Peace",
    "Carnegie Europe"
  ],
  "collections": [],
  "englishNewsletterAll": "",
  "nonEnglishNewsletterAll": "",
  "primaryCenter": "Carnegie Europe",
  "programAffiliation": "",
  "programs": [],
  "projects": [],
  "regions": [
    "Eastern Europe",
    "Western Europe",
    "Europe"
  ],
  "topics": [
    "Foreign Policy",
    "EU"
  ]
}
Strategic Europe logo

Source: Getty

Commentary
Strategic Europe

Welcome to the Bubble, Mrs. Mogherini

The EU machinery suffers from a culture of nonexecutive nonchalance. That may well be the biggest stumbling block for the union’s incoming foreign policy supremo.

Link Copied
By Jan Techau
Published on Oct 7, 2014
Strategic Europe

Blog

Strategic Europe

Strategic Europe offers insightful analysis, fresh commentary, and concrete policy recommendations from some of Europe’s keenest international affairs observers.

Learn More

The hearing for Federica Mogherini, the EU’s foreign policy chief designate, in the European Parliament on October 6 was a deeply ambiguous event for all foreign policy observers. Not that ambiguity is a scarce commodity in Brussels; foreign policy itself is a fundamentally dual-faced phenomenon in a town where institutions are strong on trade and development but have almost zero executive power in classic diplomacy and crisis management.

The drama of EU foreign policy stems from the two conflicting standards by which the policy can be measured. The first is the specific logic of the internal mechanics of the Brussels bubble—what is possible. The second is the necessity created by the outside world—what is needed. The gap between the two is not unique to Brussels, of course, but Brussels is uniquely unable to bridge it intelligently and productively.

Held against the first standard, Mogherini delivered a very convincing performance. She was relaxed and focused, clearly at home in this policy field. She sounded natural and completely unrobotic in her replies, even throwing a few sprinkles of charm into the mix here and there.

She improvised freely by occasionally adding a fundamental thought or a nugget of wisdom to her replies to technical questions. She had a broad register in the three languages she used (Italian, English, and French), which enabled her to cloak the unavoidable platitudes in a sound that was her own.

Mogherini paid tribute to the European Parliament (EP), perhaps even once or twice too often. She cracked a grateful joke about “German flexibility” when the notoriously grumpy committee chairman Elmar Brok enforced the rules on speaking time (which made even Brok smile, a sure sign she is in trouble now). And she sounded thoughtful without delivering too much in terms of tangible policy substance.

The EU’s high representative designate also had a few clever answers, such as when she replied to a question on the EU’s strategy for Asia by saying that the EU’s task was to convince Asians that Europe was strategically important for them, not vice versa. She said the best way to stop Russian President Vladimir Putin was to support the Ukrainians. She found the right mix between EP-compatible high-mindedness and more sober realism on tricky issues such as Iran.

Between the lines, Mogherini even delivered a few not-so-hidden broadsides against Catherine Ashton, the woman she is going to succeed as EU foreign affairs chief and vice president of the European Commission. Mogherini explained that she would pay more attention to the internal workings of the European External Action Service, the institution she will head. She also announced that she intends to undertake a big strategic foreign policy review (an idea Ashton hated) and that she would actually attend meetings of the college of European commissioners (something Ashton didn’t).

Mogherini came across as the right kind of fresh spirit after too many “foreign policy dinosaurs,” as one of her Twitter followers put it. The members of the European Parliament clearly liked her and treated her very gently, so much so that it bordered on the embarrassing.

imho #Mogherini is fit 4 the job, she's a new species compared to older EU foreign policy dinosaurs #EPhearings2014

— Georgi Gotev (@GeorgiGotev) October 6, 2014

In other words, Mogherini delivered a nearly flawless performance. Despite her frequent coquetry on her lack of experience, she embodied the quintessential insider. There is no doubt that she will get into fights with the European Commission—and perhaps also with Donald Tusk, the incoming president of the European Council, which brings together EU heads of state and government.

But nor is there any chance that Mogherini will be rejected as an intruder into the EU system. She is now part of the tribe, and as a consequence, the battles will be just that tiny bit less brutal, which can make a big difference. The Brussels immune system has recognized her as one of the good ones. The warm applause she received after her concluding statement said: “Welcome to the bubble!”

However, while Mogherini’s enthronement may have been a great success for Brussels insiders, the whole affair also oozed with inadequacy. The problem was not so much with Mogherini herself—even though it became clear that she is a relative lightweight, not in terms of brainpower and communication skills but in terms of stature and gravitas. In old-fashioned foreign policy, seniority and battle scars matter, neither of which Mogherini has in ample supply.

The hearing’s real shortcoming was that it failed against the second standard of what is needed vis-à-vis the outside world. The question-and-answer session was miles away from even resembling a sufficient answer to the dramatic foreign policy situation on Europe’s borders. Within the confines of the system, Mogherini looked brilliant, but nobody knows whether that will actually matter when the real world keeps hitting Europe in the way it has done over the past year or so.

What became blatantly obvious once more during the hearing was that none of the really big foreign policy decisions are actually made by the Brussels-based institutions—least of all by the European Parliament. Power in foreign policy resides in the EU member states. This has a dramatic effect on the nature of the debate. The absence of any executive decisionmaking power on foreign policy in Brussels breeds a unique culture of detachment in which the right questions are often asked but the answers matter so very little.

Of course, one shouldn’t expect bubble people to question the internal mechanics of the machine they are part of. But that the parliamentarians quizzing Mogherini asked her so few really tough policy questions was a shame. The lawmakers mentioned again and again the seriousness of the situation on Europe’s borders, but with a few notable exceptions, their concern did not sound convincing.

For many, Ashton failed as EU foreign policy chief because she neither pleased the bubble people on the inside nor produced enough big results on the outside to make a difference. Mogherini looks utterly determined to play by the rules among EU insiders. Perhaps her instincts as a politician tell her that this is a wise coping strategy in a political habitat as complicated as Brussels.

The problem is that the very system Mogherini is so eager to join, with its culture of nonexecutive nonchalance, will likely prevent her from making a difference where it is most needed: in the building of a more united and more powerful foreign policy among the EU’s 28 member states. The warm welcome she received from the European Parliament on October 6 could well be the deadly embrace that will bog her down. Let’s hope she will prove the skeptics wrong.

Jan Techau
Director, Europe Team, Eurasia Group
Jan Techau
Foreign PolicyEUEastern EuropeWestern EuropeEurope

Carnegie does not take institutional positions on public policy issues; the views represented herein are those of the author(s) and do not necessarily reflect the views of Carnegie, its staff, or its trustees.

More Work from Strategic Europe

  • Commentary
    Strategic Europe
    Can Europe Still Matter in Syria?

    Europe’s interests in Syria extend beyond migration management, yet the EU trails behind other players in the country’s post-Assad reconstruction. To boost its influence in Damascus, the union must upgrade its commitment to ensuring regional stability.

      Bianka Speidl, Hanga Horváth-Sántha

  • Commentary
    Strategic Europe
    Taking the Pulse: Can the EU Attract Foreign Investment and Reduce Dependencies?

    EU member states clash over how to boost the union’s competitiveness: Some want to favor European industries in public procurement, while others worry this could deter foreign investment. So, can the EU simultaneously attract global capital and reduce dependencies?

      • Rym Momtaz

      Rym Momtaz, ed.

  • Commentary
    Strategic Europe
    To Survive, the EU Must Split

    Leaning into a multispeed Europe that includes the UK is the way Europeans don’t get relegated to suffering what they must, while the mighty United States and China do what they want.

      • Rym Momtaz

      Rym Momtaz

  • Commentary
    Strategic Europe
    Europolis, Where Europe Ends

    A prophetic Romanian novel about a town at the mouth of the Danube carries a warning: Europe decays when it stops looking outward. In a world of increasing insularity, the EU should heed its warning.

      Thomas de Waal

  • Commentary
    Strategic Europe
    Europe Falls Behind in the South Caucasus Connectivity Race

    The EU lacks leadership and strategic planning in the South Caucasus, while the United States is leading the charge. To secure its geopolitical interests, Brussels must invest in new connectivity for the region.

      Zaur Shiriyev

Get more news and analysis from
Carnegie Europe
Carnegie Europe logo, white
Rue du Congrès, 151000 Brussels, Belgium
  • Research
  • Strategic Europe
  • About
  • Experts
  • Projects
  • Events
  • Contact
  • Careers
  • Privacy
  • For Media
  • Gender Equality Plan
Get more news and analysis from
Carnegie Europe
© 2026 Carnegie Endowment for International Peace. All rights reserved.