The Ideational Leader in Crisis: Josep Borrell and the Challenges of a Geopolitical Europe

Josep Borrell became HRVP in 2019 at a time when the EU adopted a more geopolitical approach to international affairs due to a series of major international crises and an environment of growing strategic competition. The situational context raised new expectations for the role of HRVP, whether to organise the EU’s response to the Russian invasion of Ukraine or in navigating the diplomatic challenges in the Middle East and with global powers. At the same time, the HRVP was confronted with changing EU-internal dynamics, as the relative weight of the Commission in matters of foreign and security policy increased. Borrell approached the role of HRVP very differently compared to his predecessors in the office. He leaned towards the role of a “think tanker” with clear political views and a focus on ideational leadership. His views put him often at odds with other EU leaders and his peers in the Council. He focused more on conceptional discussions than on the practical implementation of diplomatic portfolios. Borrell’s term exemplifies that a more transformational ambition as HRVP does not necessarily translate into effective leadership if member states do not follow.