How informality keeps multilateralism going: the role of informal groupings in EU foreign policy negotiations

Abstract

Informal groupings of states – either as stand-alone entities or as part of formal international organizations (IOs) – are playing an increasingly important role in sustaining multilateralism and global governance. But what is it about the informal nature of these groupings that makes them such a critical and increasingly popular fixture of international cooperation? To answer this question, the paper focuses on the role of informal groupings in European Union (EU) foreign policy negotiations. Within the EU, informal groupings provide a key venue for coordination, information-sharing, learning and consensus-building. As a result, these groupings are critical for the functioning of the formal decision-making process, providing necessary building blocks for the success of multilateral diplomacy. The proposed argument is explored in the case of two distinct instances of informal groupings, one extra- and one intra-EU grouping, by means of document analysis and elite interviews with national diplomats. First, the paper examines the role of the G7 contact group in the formulation of the Russian sanctions back in 2014. Second, it assesses the role of the PESCO 4 in driving the establishment of the Permanent Structured Cooperation (PESCO). In both instances, informal groupings provided important venues for coordination, as well as information-sharing, learning and consensus-building, which, in turn, enable and sustain multilateral negotiations among 27 member states. Critically engaging with the role of informal groupings in formal IOs, the paper sheds light on the dynamic relationship between informality and minilateralism, on the one hand, and formal multilateral institutions, on the other.