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 Security, Conflict and Cooperation
in the Contemporary World

The EEC’s Yugoslav

Policy in Cold War
Europe, 1968—1980

B enedetto Z accaria
Security, Conflict and Cooperation in
the Contemporary World

Series Editors
Effie G. H. Pedaliu
LSE-Ideas
London, UK

John W. Young
University of Nottingham
United Kingdom
The Palgrave Macmillan series, Security, Conflict and Cooperation in the
Contemporary World aims to make a significant contribution to academic
and policy debates on cooperation, conflict and security since 1900. It
evolved from the series Global Conflict and Security edited by Professor
Saki Ruth Dockrill. The current series welcomes proposals that offer inno-
vative historical perspectives, based on archival evidence and promoting
an empirical understanding of economic and political cooperation, con-
flict and security, peace-making, diplomacy, humanitarian intervention,
nation-building, intelligence, terrorism, the influence of ideology and
religion on international relations, as well as the work of international
organisations and non-governmental organisations. For information on
our Global Conflict and Security series click here.

More information about this series at

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 Benedetto Zaccaria

The EEC’s
Yugoslav Policy
in Cold War
Europe, 1968–1980
Benedetto Zaccaria
Alcide De Gasperi Research Centre
European University Institute
Florence, Italy

Security, Conflict and Cooperation in the Contemporary World

ISBN 978-1-137-57977-5 ISBN 978-1-137-57978-2 (eBook)
DOI 10.1057/978-1-137-57978-2

Library of Congress Control Number: 2016939123

© The Editor(s) (if applicable) and The Author(s) 2016

The author(s) has/have asserted their right(s) to be identified as the author(s) of this work
in accordance with the Copyright, Designs and Patents Act 1988.
This work is subject to copyright. All rights are solely and exclusively licensed by the Publisher,
whether the whole or part of the material is concerned, specifically the rights of translation,
reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in
any other physical way, and transmission or information storage and retrieval, electronic
adaptation, computer software, or by similar or dissimilar methodology now known or here-
after developed.
The use of general descriptive names, registered names, trademarks, service marks, etc. in this
publication does not imply, even in the absence of a specific statement, that such names are
exempt from the relevant protective laws and regulations and therefore free for general use.
The publisher, the authors and the editors are safe to assume that the advice and information
in this book are believed to be true and accurate at the date of publication. Neither the pub-
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material contained herein or for any errors or omissions that may have been made.

Printed on acid-free paper

This Palgrave Macmillan imprint is published by Springer Nature

The registered company is Macmillan Publishers Ltd. London
To Angela
 ACKNOWLEDGEMENTS

I am deeply grateful to the many people who helped me during the long
journey out of which this research developed. First, I would like to thank
Professor Antonio Varsori who, with care and great attention, supervised
the doctoral research on which this book is based. I owe debts of grati-
tude to my tutor at IMT Lucca, Maria Elena Cavallaro, and to Valentine
Lomellini and Angela Romano who, with their wise and sincere advice,
constantly followed my work as it developed. This book has benefited
greately from the PhD scholarship granted by the IMT Institute for
Advanced Studies Lucca, Italy, and the financial support of the “Società
Italiana di Storia Internazionale” (Premio SISI 2014).
I also express my gratitude to all the professors and young scholars
who, in various ways, followed my research and offered their contribu-
tions in both human and scientific terms during its preliminary phases.
I refer in particular to Giovanni Orsina, Vladislav Zubok, Odd Arne
Westad, Svetozar Rajak, Piers Ludlow, Effie Pedaliu, Lucia Bonfreschi,
Carla Meneguzzi Rostagni, Massimiliano Trentin, Marie Julie Chenard,
Eirini Karamouzi, Branislav Radeljić and Ludwig Roger. I would like
to thank all my colleagues in Lucca. I am particularly grateful to Maria
Romaniello and Paola Varotto for their warm hospitality in Rome and
Berlin, and to Lorenzo Ferrari, who read this book in its earliest stages and
offered extremely valuable advice.
During my research, I visited several archives and met a number of
people who offered their help. At the historical archives of the European
Commission and Council in Brussels, I profited from the kind assistance
of Mauro Simioni, Jocelyne Collonval and Pascale Gilson. I would like

vii
viii ACKNOWLEDGEMENTS

to thank Giovanna Bosman of the Istituto Gramsci and Manuela Cacioli

of the Archivio Storico della Presidenza della Repubblica in Rome. I am
also grateful to the directors and personnel of the Archives of Yugoslavia,
Diplomatic Archives of the Ministry of Foreign Affairs of the Republic
of Serbia, Historical Archives of the European Union, British National
Archives, the Italian Archivio Centrale dello Stato, and the French and
German foreign ministry archives.
One of the most important steps in my research was the period I spent
in 2013 as a visiting research student at LSE IDEAS. I would like to thank
Dr. Svetozar Rajak, who supported my candidature and offered his valu-
able assistance. I am also grateful to Prof. Michael Cox, Tiha Franulović,
Emilia Knight, Liza Ryan, Paola Gioffredi, Zoi Koustoumpardi, Corina
Mavrodin, Lena Poleksić and Zhou Guohui. I am grateful to Jean-
Vladimir Deniau, who put me in contact with his father François-Xavier
Deniau, the French Ambassador to Serbia between 2010 and 2014.
Ambassador Deniau and his wife hosted me at the French Embassy in
Belgrade and gave me the opportunity to enjoy one of the best experi-
ences in my life. Thanks to their generosity, I was able to contact several
people who helped me to understand various aspects of Yugoslav history
which are impossible to appreciate from books and journals. I refer in
particular to Ljiljana Novaković, Aleksa Djilas and Dragoljub Mićunović,
who discussed with me the topic of EEC-Yugoslav relations on the basis of
their life experiences. Thanks also go to Prof. Radmila Nakarada and Maja
Kovacević of the Faculty of Political Science at the University of Belgrade,
and to journalist Mijat Lakićević and Italian diplomat Alessandro Neto,
who offered me their opinions about my research topic. I would also like
to thank Vesna Muratović for her kind support during my stay in Belgrade.
Heartfelt thanks to Gabriel Walton, who has supervised the writing of
this book with great competence thanks to her peerless knowledge of the
thousand nuances of the English language. Thanks to Paola and James
Cavaroli for their warm hospitality in Hither Green. Lastly, I am grateful
to Vlatko Vuković, who with boundless kindness helped me learn Serbian.
 CONTENTS

1 Introduction 1

2 The Path to the First Trade Agreement 13

3 The 1973 Agreement 47

4 Beyond Trade Stagnation 73

5 The Making of the 1976 Joint Declaration 99

6 As Close as Possible to the EEC 129

7 Conclusions 171

Bibliography 187

Index 199

ix
 ABBREVIATIONS

AAPBD Akten Zur Auswärtigen Politik der Bundesrepublik

Deutschland
ACEU Archives of the Council of the European Union, Brussels
ACS Archivio Centrale dello Stato, Rome
AJ Arhiv Jugoslavije [Archives of Yugoslavia], Belgrade
AMAE Archives du Ministère des Affaires Etrangères, Paris
AMF Aldo Moro files, Rome
AMIP Arhiv Ministarstva za inostrane poslove Republike Srbije
[Archive of the Ministry Foreign Affairs], Belgrade
APC Archivo Partito Comunista, Fondazione Istituto Gramsci,
Rome
ASPR Archivio Storico della Presidenza della Repubblica, Rome
CAP Common Agricultural Policy
CCP Common Commercial Policy
COMECON Council for Mutual Economic Aid
COMINFORM Communist Information Bureau
COREPER Permanent Representatives Committee
CSCE Conference on Security and Cooperation in Europe
DG Directorate General
ECHA European Commission Historical Archives, Brussels
EEC European Economic Community (the Community)
EFTA European Free Trade Association
EIB European Investment Bank
EM Edoardo Martino files, Florence
EN Emile Noël f iles, Florence
EPC European Political Cooperation
EU European Union

xi
xii ABBREVIATIONS

FCO Foreign and Commonwealth Office (UK)

FMM Franco Maria Malfatti files, Florence
FRG Federal Republic of Germany
FRUS Foreign Relations of the United States
G77 Group of 77 developing countries (UN General Assembly)
GATT General Agreement on Tariffs and Trade
GDR German Democratic Republic
GSP Generalised System of Preferences
HAEU Historical Archives of the European Union, Florence
KPR Kabinet Predsednika Republike (Cabinet of the President of the
Republic)
LCY League of Communists of Yugoslavia
mua million units of account
NAM Non-Aligned Movement
NATO North Atlantic Treaty Organisation
PAAA Politische Archiv, Auswärtiges Amt, Berlin
PCI Italian Communist Party
PNF Pietro Nenni files, Rome
PRC People’s Republic of China
PREM Prime Minister Files, National Archives, Kew
TNA The National Archives, Kew
 CHAPTER 1

Introduction

According to received opinion, the involvement of the EEC/EU in the politi-

cal dynamics of the Socialist Federal Republic of Yugoslavia and its successor
states goes back to the early 1990s, when Community representatives strug-
gled to manage the violent disintegration of the Yugoslav federation through
diplomatic mediation and economic countermeasures.1 Conversely, the EEC’s
Yugoslav policy in Cold War Europe has been dismissed as one of neglect and
ignorance of the country’s fragile situation, based on a view of Yugoslavia as
a simple economic partner and exporter of labour.2 It seems that the story of
this relationship may not even deserve to be told. As noted by the German
scholar Rafael Biermann, the number of studies devoted to EEC/EU involve-
ment in the Western Balkans after 1991—the year when Croatia and Slovenia
issued their declarations of independence, sanctioning and sanctifying the dis-
integration of the Yugoslav federation—contrasts with the almost total lack
of historical analysis of EEC-Yugoslav relations during the preceding years.3
1
Rafael Biermann, ‘Back to the roots. The European Community and the Dissolution of
Yugoslavia—Policies under the Impact of Global Sea-Change’, Journal of European
Integration History, 1/10, 2004, 29–50.
2
Branislav Radeljić, Europe and the Collapse of Yugoslavia. The Role of Non-State Actors and
European Diplomacy (London and New York: I. B. Tauris, 2012), 23; Biermann, ‘Back to
the roots’, 49–50.
3
Biermann, ‘Back to the roots’, 29. See also Dusan J. Djordjević, ‘Clio and Its Predecessors
in Recent Historiography’, in Norman M. Naimark and Holly Case (eds.), Yugoslavia and

© The Editor(s) (if applicable) and The Author(s) 2016 1

B. Zaccaria, The EEC’s Yugoslav Policy in Cold War Europe, 1968–1980,
DOI 10.1057/978-1-137-57978-2_1
2 B. ZACCARIA

The present work, based on multi-archival and multi-national research,

offers a new interpretation which contrasts with the above-mentioned
view. Contrary to received opinion, it highlights the fact that the EEC’s
Yugoslav policy was not only a matter of economic relations, nor was it
based on a policy of neglect. Although the public sphere of this relation-
ship did regard the economic sphere, this was nothing but the tip of the
iceberg. Under the surface of the water lay the delicate, low-profile rap-
prochement between two differing political and economic systems, which
was influenced by the Cold War environment in which it first developed.
This work proves that the EEC’s active involvement in the Yugoslav ques-
tion goes back to the 1970s. During this decade, the development of
bilateral relations was impressive. In 1970 and 1973, the parties con-
cluded two trade agreements, which represented unique examples of rap-
prochement between capitalist and socialist realities. In 1976, they signed
a joint declaration which established the political foundation for bilateral
relations. In April 1980, they concluded a broad cooperation agreement
which would regulate the relationship between the parties until the dis-
solution of Yugoslavia in 1991.
The aim of this book is to examine the political rationale underpin-
ning the Community’s attitude towards Yugoslavia in the course of the
1970s, that is, the formative decade of EEC-Yugoslav relations. It dem-
onstrates that this relationship was grounded on a clearly defined politi-
cal rationale which was closely linked to the evolution of the Cold War
in Europe and the Mediterranean. The main argument is that the EEC’s
Yugoslav policy was primarily influenced and constrained by the need to
prevent the expansion of Soviet influence in the Balkans and to foster
détente in Europe.
As noted above, on the specific subject of EEC-Yugoslav relations dur-
ing the Cold War years, the literature is very limited. The few existing

Its Historians. Understanding the Balkan Wars of the 1990s (Stanford, California: Stanford
University Press, 2003), 3–21. Only in recent times have historians started to study EEC-
Yugoslav relations on the basis of archival documents. See Ivan Obadić, ‘A troubled relation-
ship: Yugoslavia and the European Economic Community in détente’, European Review of
History, 21/2, 2014, 337–339; Benedetto Zaccaria, ‘The European Community and
Yugoslavia in the Late Cold War Years, 1976–1989’, in Wilfried Loth and Nicolae Paun
(eds.), Disintegration and Integration in East-Central Europe (Baden-Baden: Nomos,
2014), 264–283.
 INTRODUCTION 3

studies on this theme go back to the late 1970s and early 1990s.4 Due
to the ‘thirty-year rule’ regulating the opening of state archives in most
Western European countries, these works were neither based on a his-
torical approach nor on primary archival sources. Focusing on the ‘public’
dimension of relations between Community Brussels and Belgrade—
which concerned trade and economic cooperation—they highlighted
Yugoslavia’s difficulty in exporting its agricultural and industrial output to
the EEC market, and Belgrade’s growing trade deficit vis-à-vis the EEC
member states throughout the 1960s and 1970s. Accordingly, these stud-
ies proposed for the first time the idea that the EEC had been carrying
out a policy of neglect and blind protectionism towards Yugoslavia.5 Yet
they did not consider political progress in EEC-Yugoslav relations or the
Cold War constraints influencing this relationship. Nor did they high-
light the leading actors in the development of the EEC’s Yugoslav policy,
and they failed to address the peculiar role played by the Community
and its institutions. In fact, published sources often neglect what actu-
ally took place behind closed doors. Even the articles published in the
special issue of the Journal of European Integration History (2004), which
was entirely devoted to the Community’s attitude towards the demise of
Yugoslavia, concentrated only on the period between the late 1980s and
mid-1990s, without offering a systematic analysis of the historical roots of

4
Patrick F. R. Artisien and Stephen Holt, ‘Yugoslavia and the E.E.C. in the 1970s’,
Journal of Common Market Studies, 18/4, 1980, 355–369; Patrick Artisien and Peter
J. Buckley, ‘Joint Ventures in Yugoslavia: Opportunities and Constraints, Journal of
International Business Law, 16/1, 1985, 111–135; Alexander Goldtajn, ‘The relationship of
Yugoslavia and the EEC’, Common Market Law Review, 18/4, 1981, 569–578; Stephen
Holt and Ken Stapleton, ‘Yugoslavia and the European Community 1958–1970’, Journal of
Common Market Studies, 10/1, 1971, 47–57; Matthew M. Getter, ‘Yugoslavia and the
European Economic Community: Is a Merger Feasible?’, University of Pennsylvania Journal
of Business Law, 11/4, 1990, 789–810.
5
The only journal article addressing the ‘politics and economics’ of EEC-Yugoslav rela-
tions was published by Panos Tsakaloyannis in 1981, in the immediate aftermath of the sign-
ing of the 1980 Cooperation Agreement between the EEC and Yugoslavia. This article
highlighted the existence of a link between the EEC’s determination to strengthen relations
with Belgrade and the need to constrain Soviet influence in the Balkan region. However,
Tsakaloyannis focused on the dynamics of trade between the two parties rather than on the
political aspects of the relationship. Like his contemporary colleagues, he concluded that the
EEC neglected its relationship with Yugoslavia due to its commercial protectionism and
inability to elaborate a coherent external policy. See Panos Tsakaloyannis, ‘The Politics and
Economics of EEC-Yugoslav Relations’, Journal of European Integration, 5/1, 1981,
29–52.
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