Framing security and development in the EU pillar structure. How the views of the European Commission affect EU Africa policy

The increasing integration of development and security policies in European foreign policy raises problems of coordination between the pillars of the EU. Literature on EU external relations stresses the lack of definition of the competences of the Council and the European Commission in the cross-pillar space, but the way the Commission and the Council relate to each other in EU security and development policies is underexplored. This article, focusing on EU Africa policy, argues that the lack of clear decision-making procedures for peace-building issues makes framing a crucial instrument in affecting the policy process. The Commission, by framing security as a first pillar issue, proves able to establish three types of relationship with the Council: pushing the Council to take specific actions, replacing the Council and even triggering conflicts of competence with the Council.