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Backlash
against Kallas reveals hard truths of EU foreign policy
By Jorge
Liboreiro
Published
on 13/06/2026 - 8:30 GMT+2•Updated 9:49
The
growing criticism of Kaja Kallas as High Representative has laid bare
structural shortcomings and tensions in the European Union's foreign policy.
Kaja
Kallas has been caught in a political whirlwind after an informal document
linked to the French government floated several ideas to drastically revamp her
position of High Representative, the European Union's foreign policy chief.
The paper
pitches three options, one of which would strengthen her portfolio and expand
her competencies into trade and economic development. The other two options,
however, would severely weaken her role by shifting powers either to the
European Commission, led by Ursula von der Leyen, or to the member states.
Amid the
damaging headlines, Kallas opened the door for a fresh debate but made it clear
that, at the end of the day, the EU treaties, which establish the substance of
the High Representative's mandate, will have the final say.
"It
is important to recall that the roles and responsibilities of the EU
institutions are clearly defined in the treaties. That framework remains
unchanged," Kallas said in an internal email sent to staff and seen by
Euronews.
The
French paper landed at a time when the critics of Kallas were becoming
increasingly vocal about their dissatisfaction with her performance. The High
Representative has ruffled feathers for her comments on China, for insisting on
using Russia's immbolised assetsto support Ukraine, for her strained ties with
the US administration, and for tabling ambitious plans without prior
consultation with capitals.
Overall,
her critics argue that she still behaves like the outspoken prime minister of
Estonia she once was, advancing positions that go beyond the consensus endorsed
by the EU's 27 member states and at times veer into personal opinion.
Slovak
Prime Minister Robert Fico, a frequent critic of Brussels known for his
contrarian stance, has called for her dismissal several times.
Speaking
on condition of anonymity, multiple diplomats from different countries
acknowledged that the backlash against Kallas has intensified in recent weeks.
However, they disagreed with the French paper, which only a few appear to have
actually read.
"She
does, unfortunately, a lot to lose support. She is not very good at building
alliances in the Council," a senior diplomat said.
"But
France is currently in all-attack mode against all institutions."
France
has since toned down the document, saying it was an exploratory note that had
not been validated by the government.
Mission
impossible
The real
problems, diplomats say, go beyond Kallas.
They stem
from a complex and outdated institutional setting that places the High
Representative between the European Commission, the independent executive,
where she serves as one of the vice presidents, and the European External
Action Service (EEAS), the bloc's diplomatic arm, which she leads on her own.
On top of
that, foreign policy at the EU level is bound by unanimity, which means the
decision-making is strictly within the remit of capitals. One single
"no" is enough to derail an entire course of action, even a mundane
statement.
In
practice, this leaves Kallas in charge of steering a foreign policy whose
direction ultimately escapes her control.
"The
EEAS and the position of High Representative were created in a different time
and age, when the world looked completely different. If you were to create the
system from scratch, you wouldn't do it now the way it was done then,"
another senior diplomat said.
"Could
the EEAS function better? Probably yes. Could the High Representative do things
differently in her cabinet? Probably yes. But let's face it, the biggest issue
here is a divided Council," where member states sit.
"It's
important that the EU has a strong High Representative. That's in our
interest."
A third
diplomat noted that the inherent limitations of the role — assigned by leaders
at the start of each five-year mandate — make it a mission impossible,
regardless of the strengths of the chosen person.
"Structurally,
the High Representative cannot succeed, regardless of who it is. She/he doesn't
have tools. All previous High Representatives failed, and so will those in the
future. So it is not about the name," the diplomat said.
The fact
that Kallas comes from Eastern Europe is also fuelling the political backlash,
this diplomat said, as the former premier takes a hard line on Russia that some
nations in Western and Southern Europe believe goes too far.
Her
attempts to shut down the idea of directly engaging with Moscow in peace
negotiations to end the war in Ukraine have fallen flat. The leaders of France
and Germany continue to pursue the option alongside the United Kingdom.
By
contrast, Poland, the Baltics and the Nordics regularly adopt positions that
match those of Kallas, creating a cushion of support.
"Kallas
is not perfect, and makes her own mistakes, but they are not bigger than the
mistakes of her predecessors," the diplomat said.
An
additional factor in the conversation is the growing tensions between Kallas
and the EEAS, on the one hand, and von der Leyen and the Commission, on the
other.
Under von
der Leyen's command, the Commission has become a self-styled
"geopolitical" actor that takes the lead in responding to
international shocks, from Russia's invasion of Ukraine to the energy crisis
and Chinese overcapacity. Foreign policy is a recurring – and at times central
– theme in von der Leyen's speeches.
On
several notable occasions, this overreach has backfired on the Commission
president. But for the most part, leaders have allowed her remit to expand,
further undermining the mandate that Kallas is supposed to carry out.
In fact,
some diplomats suspect the big splash made by the French paper is nothing but
the result of the institutional infighting.
Asked if
von der Leyen wanted to abolish the EEAS, her spokesperson said: "The
European External Action Service is part of the institutions that deliver the
EU policies, and obviously, there is support from our President. "
Luca
Bertuzzi and Maïa De la Baume contributed reporting.
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