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This article assesses the EU Common Security and Defence Policy (CSDP) in the Western Balkans, with a focus on EUFOR Althea in Bosnia and Herzegovina (BiH). Althea is a military operation that conducts mainly civilian functions as well as the training of the Bah Armed Forces; its 'civilianisation' is symptomatic of CSDP's orientation as a mainly civilian crisis management instrument. Althea works within the framework of the Union's 'comprehensive approach' to regional development and the accession process of the Western Balkans to the EU. I argue that the mission displays the bureaucratic modus operandi of CSDP and not a Grand Strategy approach. Nevertheless, CSDP's incremental, lowest-common-denominator, low cost, low risk bureaucratic politics have enabled a form of emergent strategy that complements the Union's multi-instrument and comprehensive approach to development throughout the Western Balkans. I further suggest that the EU Global Strategy (EUGS) and the newly activated Permanent Structured Cooperation (PESCO) provides opportunities for EU member states to build on low key emergent strategy to ensure that CSDP develops the substance and actor ness needed to address current threats.

How can we best describe the operation of the Common Security and Defence Policy (CSDP), and how can we improve policy-making in CSDP? The Open Method of Coordination (OMC) is predicated on the conviction that there are clear limits to the extent that European Union (EU) foreign and security policy can be strengthened through the restricting tendencies of intergovernmental cooperation between EU member states. Permanent Structured Cooperation (PESCO) - agreed by the European Council and 25 EU member states in 2017 - offers practical instruments towards delivering value-added capacity to the process of crisis management beyond intergovernmentalism. As a process, PESCO is analogous to the logic of OMC, including more appropriate levels of coordination at the national organisational level in order to effectively facilitate the EU's comprehensive approach to conflict prevention and crisis management. The requirement for new and 'open' types of EU foreign and security policy coordination is underlined by the immense differences between EU member states in external policy, both concerning national crisis management structures and the resulting inefficient segmentation of policy at the EU level. .