Non-state actors and framing processes in EU foreign policy: the case of EU-Israel relations

This article investigates the role of non-state actors (NSAs) in European Union (EU) foreign policy, focusing on how they contribute to the emergence and codification of new frames that underpin EU external policies. It argues that changes in EU foreign policy are the result of interactions among a frame entrepreneur, often played by an NSA, and policy-makers in situations of cognitive uncertainty and when a policy window opens. The empirical evidence is based on the case of EU-Israel relations: a non-governmental orgaization (NGO) called MATTIN Group acted as frame entrepreneur and contributed to the emergence and codification of a new frame of understanding of EU-Israel relations, redefining them on the basis of a legal paradigm. This clarifies the territorial scope of bilateral agreements and ensures that the bilateral relations are constructed and implemented in accordance with EU legal framework and its commitments under international law.