Individual Level of Analysis and Foreign Policy: Donald Tusk and
Eastern Partnership
Yoshica Indah Putri and Radityo Dharmaputra
Department of International Relations, Faculty of Social and Political Sciences, Universitas Airlangga
Keywords: Individual Level of analysis, Eastern Partnership, Donald Tusk, human nature, idiosyncretic behaviour,
organizational behaviour
Abstract: This paper departs from the issue of whether individual level of analysis can explain the policy of the Polish
Eastern Partnership. This becomes problematic when the analytical sharpness is challenged to consolidate the
personality, personal experience, perceptions, ideology, and nature of Donald Tusk with his Eastern
Partnership policy. So in this case a thorough explanation of personal life is needed, such as how the dynamics
of Tusk's interaction with his family and city of birth can have a significant influence on the formation of his
character, coupled with his educational background and intellectual ability, and his first contact with
communist politics that can create the riots made him a pro-democratic figure. Using the human nature
perspective, idiosyncretic behavior, and organizational behavior, the authors explain the existing relationships
of the three perspectives with Donald Tusk's personality, perceptions, and behavior.
1 INTRODUCTION
The dissolution of the Soviet Union in 1991 marked
a period of transition to the politics of Eastern Europe
and some countries in Central Europe such as Poland
and Czechoslovakia from the communist system to
democracy. Therefore, generally during the transition
period, the instability of state politics is a sure thing
to happen. After the collapse of the Soviet Union, the
countries of Central Europe and Eastern Europe
experienced instability in both economic, social and
political (Thompson, 2001). As countries that have
just escaped the dominance and confinement of
communism, these countries are experiencing
worsening economic conditions, recorded since the
1980s when issues of Soviet communist collapse
began to emerge, there have been several cases of
political upheaval caused by a declining economy.
Based on these problems, Eastern European countries
feel the need to integrate with their neighbors to
stabilize their economic and political conditions
(Thompson, 2001). However, the oldest regional
organization geographically close to them ie the EU
was initially reluctant to enter into cooperation with
the Eastern European countries because they did not
want their relationship with Russia to be disturbed
because many of the Eastern European countries that
had problems with Russia after the collapse of the
Union Soviet.
However, in the midst of the declining economic
conditions, Poland, which is a former communist
state, takes advantage of the freedom they gain to
improve the condition of their country. It is known
that since the collapse of communism, Poland are
examples of countries that experienced the most rapid
adaptation of communism transition to democracy by
applying free-market ideas to improve the economic
conditions (Bartosiak, 2015). Recorded in 1991,
Poland with Cekoslavia and Hungary entered into a
partnership called the Visegrad Group to stabilize the
conditions of their country by carrying out
development programs such as free markets,
educational scholarships, and the establishment of a
working group of energy experts (Visegrad Group,
2000). Not only there, seeing the condition of the
Eastern European neighbors who still do not rise from
the economic downturn, in 2003 Poland proposed to
the European Union to make policy the Eastern
Dimensions of the European Union which aims to
establish cooperation with the countries of Eastern
Europe. However, the idea was rejected because
Eastern European regions such as Georgia and
Ukraine have a background of conflict with Russia
which is feared could undermine the EU cooperation
effort with Russia. Furthermore, the EU which has a
622
Putri, Y. and Dharmaputra, R.
Individual Level of Analysis and Foreign Policy: Donald Tusk and Eastern Partnership.
DOI: 10.5220/0010281200002309
In Proceedings of Airlangga Conference on International Relations (ACIR 2018) - Politics, Economy, and Security in Changing Indo-Pacific Region, pages 622-628
ISBN: 978-989-758-493-0
Copyright
c
 2022 by SCITEPRESS – Science and Technology Publications, Lda. All rights reserved

mission to expand the integration of the European
region then issued a policy of Wider Europe.
Implementation of the Wider Europe is evident
from the formulation of the policy of the European
Neighborhood Policy, which aims to promote
economic stability, security and sustainable
development by expanding the European free market
coverage to six Eastern European countries and ten
Mediterranean countries. In 2004, Poland officially
joined the EU. The authors argue that joining Poland
in the EU marks the opening of access for the country
to promote its idea of development in Eastern Europe,
so in 2008 under the government of Prime Minister
Donald Tusk, Poland proposed a new platform in the
European Neighborhood Policy, Eastern Partnership,
special development in Eastern Europe alone and
encourage Eastern European countries that are not
part of the European Union to apply change gradually
to their politics and economies. As described by the
European Union Commissioner for En- gement and
European Neighborhood Policy, Stefan Fule (in
ENPI, 2012), Eastern Partnership is a media of the
European Union to bring their neighbors Eastern
European countries to get closer to the EU. The
existence of Eastern Partnership is expected to be a
tool that can help the countries of Eastern Europe
such as Armenia, Azerbaijan, Belarus, Georgia,
Moldova and Ukraine in strengthening the stability
and prosperity that bring direct benefits to the citizens
of both Eastern Europe itself maupu EU countries
(ENPI, 2012).
This support applies not only to government
reform efforts but is also designed to enhance the role
of civil society that has an important part in
transforming the politics and economies of these
countries (ENPI, 2012). The unforgettable part of this
Eastern Partnership establishment is Polish interest to
foster economic growth and political stability in
Eastern European countries by bringing them closer
to the EU. Furthermore, Polish interest is inseparable
from the ideas and ambitions of Polish Prime Minister
Donald Tusk from the idea of the Eastern Dimensions
of the European Union to the realization of Eastern
Partnership, Donald Tusk has an important role
behind the ideas. Based on this, the authors analyzed
Donald Tusk's policy of realizing his predecessor
Prime Minister's ideas about Eastern Dimensions of
EU into Eastern Partnership using individual level of
analysis by reviewing personality, perception,
educational background, and interaction with
individuals and other groups.
2 INDIVIDUAL LEVEL OF
ANALYSIS IN FOREIGN
POLICY
Individuals as policy makers, both president and
prime minister, become the main focus in individual
level analysis. This individual level analysis focuses
on the background of an individual in making policies
reviewed through personality, perception, personal
experience, and their interaction with other
individuals or groups (Neack, 2008). Reviewing
Eastern Partnership's policies by Poland through
individual analytical levels, the authors will use the
three perspectives described by John T. Rourke
(2009) in his International Politics On The World
Stage, human nature, idiosyncretic behaviour, and
organizational behavior that can be used analyze the
behavior of policymakers. The human nature
perspective explains the biological factors of
policymakers that are divided into two, namely nature
and nurture. Nature refers to an innate personality or
more commonly referred to as a natural trait such as
innate emotion and physical impulse, while nurture is
a personality formed by the socialization of
individuals with their environment and intellectual
level, such as interaction with family, experience,
education, religion, and ideology (Rourke, 2009).
The idiosyncretic behaviour perspective explains
the existence of personality factors, physical and
mental health, ego, ambition, personal experience,
and perceptions that influence the behavior of
decision makers in making foreign decisions and
policies (Rourke, 2009). Breuning (2007) says that
personality factors explain the beliefs, characters, and
values held by the leader and the things above might
motivate them to make foreign policy. Furthermore,
the above factors will then shape the perceptions of
the decision makers that motivate them in making a
policy, one of which is how the individual views the
world in certain events which then encourages them
to act rationally in accordance with the existing
phenomenon (Breuning , 2007).
The last perspective is organizational behavior
that refers to bringing the personality and perceptions
of decision-makers into their activities as a head of
government. This is what Rourke (2009) calls the role
behaviour that in the organization, in this case the
state, the individual has a tendency to behave in
accordance with the role they have based on their
personalities and perceptions. Based on its role,
according to Breuning (2007) leaders tend to induce
their thinking based on personality and perception
into the national interest element of the country, in
Individual Level of Analysis and Foreign Policy: Donald Tusk and Eastern Partnership
623

line with the classical realist thinking leaders and
decision makers in achieving 'fantasy' personality
should induce thought and act within the framework
of national interests to show the strength of their
country. So according to Neack (2008) every
individual who is in a position to be responsible for
foreign policy is generally influenced by their
socialization with the environment through education
and the process of political selection to pursue
common goals.
Furthermore, according to Rourke (2009) role
behavior is in line with the assumption of realism
about the level of individual analysis proposed by
Neack (2008) that realism holds that as a
representation an individual country must work or
make decisions in accordance with the national
interests of the country. In this case the individual will
enter their personal goals in line with the common
goal of the state to strengthen the sense of common
interest. So when something goes wrong with their
original goals, the leader will respond by using
framing that uses the instrument of the national
interest of his country. Framing itself is defined as
actions taken by policy makers with an estimated risk
to be received related to the phenomenon that is
happening (Breuning, 2007).
3 DONALD TUSK HUMAN
NATURE ANALYSIS
Donald Tusk has a natural personality that refers to
extroverted attitudes. An extrovert is generally easy
to interact with people in large numbers, optimistic,
and dare to take risks. This then makes the extroverts
have a natural ability to inspire people and make it a
charismatic figure (Jones, 2015). In an interview with
a 2016 Consilium reporter, Tusk said that his
hometown and family took an important role in
developing his extrovert nature. Tusk describes
Gdansk as a traditional of Europe. In the city there is
interaction and harmonization of various cultures
such as Jews, Scots, Poles, Kashubians, and loyalty to
Christianity. From here Tusk learns about unity,
peace and harmonization, which he will later pour in
the goal of the Eastern Partnership. Born in 1957 from
a working family in Gdansk, Poland, his father was a
carpenter who had strong principles and personality,
through his father Tusk was taught to be an optimistic
and hardworking person (Consilium, 2016).
Meanwhile, her mother works as a board at a
hospital, Tusk describes her mother as a kindhearted,
loving, simple but very wise and after her father died
when Tusk was 14 years old her mother had to work
hard to support herself and her sister. It was from his
mother that Tusk learned to love and to help others,
not to discriminate on the basis of race or religion, and
to make wise decisions (Consilium, 2016). Tusk said
that after his father died despite living below the
poverty line but they live in the family who love each
other. Having a passion in the field of history,
especially the history of Ancient Greece, Tusk
underwent his studies as a student majoring in
European History at the University of Gdansk and
found that Europe is recorded to have a long history
and is recognized as an advanced continent both
economically and politically. From here onwards
Tusk's perception of European greatness is formed,
that Europe must integrate with each other to become
as big as it once was, this perception then underlies
Tusk to realize the Eastern Dimension of Europe
ideals that the EU had previously rejected into the
Eastern Partnership. Tusk assumes that embracing
Eastern European countries is an important step
towards achieving European unity (Consilium, 2016).
Interaction with his family and his city of residence,
as well as his Tusk educational background which
later formed his nurture.
4 DONALD TUSK
IDIOSYNCRETIC BEHAVIOUR
ANALYSIS
From the perspective of idiosyncretic behavior, in
personality as described earlier, Donald Tusk has an
extroverted personality. It is ambitious that Tusk has
the ambition of achieving European glory again, since
Tusk, although he was born of the Kashubian ethnic
group in a small town in Poland, is part of Europe that
has a spirit of European unity (Consilium, 2016).
Based on personal experience, Tusk's political
behavior was influenced by his first interaction with
the people movement while spending his teenage
years to join the hooligans, the teenage boys group in
his town and take small but radical actions to frighten
the government workers of the communist regime at
that time . Through this experience Tusk saw how
then the actions of a small group of people could
influence the government at the time, as evidenced by
the 1970s small groups in Gdansk, including the Tusk
group, took action against the communist regime.
More than a thousand people took to the streets,
rioting occurred, Tusk saw police firing on people,
many people killed, public buildings on fire, from the
1970s unrest that perceptions of Tusk about
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624

communist and repressive regimes formed that it
turns out their existence can create riots ( Consilium,
2016).
Tusk says that communism is something so
hideous that you have become an anti-communist and
pro-democracy (Rettman, 2014). Evidently, when
Tusk became a student, he engaged in illegal pro-
democracy activities secretly working, Tusk then
formed and directed a group of students who called
themselves Democratic Opposition in 1976
(Szambelan, 2014). In 1979, Tusk teamed up with
underground groups namely Free Trade Union and
Solidarity led by Lech Walesa. Both Tusk and Lech
Walesa share the same vision of Europe that
European integration as a whole can only be achieved
if communism collapses. To that end, Lech Walesa
suggested to Tusk to form the Independent Student's
Association as part of Solidarity and with the student
group he formed, Tusk worked as a journalist for the
Solidarity newspaper. In the same year the
Democratic Opposition, Solidarity and Independent
Student's Association started a movement called
Solidarity Movement that propagated the values of
democracy, liberal, free market with their writings
through Solidarity newspaper (Consilium, 2016).
In 1981, the movement of Solidarity was
interrupted by the communist regime under the
command of General Jeruzelsk which resulted in
some people being arrested and unknown and some
living in hiding (Consilium, 2016). Despite hiding in
some time, finally in 1982 Tusk was captured and
became a political prisoner, then the following year
Tusk and other political prisoners were granted
amnesty and freed. In the same year 1983, Tusk
formed a monthly magazine that worked illegally
called Political Review which propagated economic
liberalism and liberal democratic rule (Consilium,
2016). From this it can be seen how then Tusk's
uncooperative communist interaction has built a
perception in him that a good way to prosper is
through liberal values. Then after the collapse of
communism in 1989, Tusk again formed an informal
think-tank body that supported Lech Walesa to
advance as President elected through Poland's first
elections in 1990. In the first elections Lech Walesa
emerged as Poland's first President elected by popular
vote and Donald Tusk serves as Deputy Speaker of
Senate (Consilium, 2016).
Together with Lech Walesa, Tusk initiated the
formation of Visegrad Group in 1991 along with
Czechoslov and Hungary to stabilize the conditions
of their country by carrying out development
programs such as free markets, educational
scholarships, and the establishment of a working
group of energy experts (Visegrad Group, 2000).
Visegrad Group is the second step of the Walesa and
Tusk missions to unite Europe after the Solidarity
Movement. Although Lech Walesa finished as Polish
President in 1995, Tusk's struggle for his vision and
ambition to unite Europe continues. However, Lech
Walesa still helped Tusk from behind by funding the
formation of the Civic Platform Party in 2001 and
won many votes and seats for Sejm's position in the
Polish Congress, while Tusk held the position of
Deputy Speaker of Sejm and with other members of
the majority people from the Civic Platform Party,
Tusk proposed the Eastern Dimensions of EU in 2003
to the Senate and had been submitted to the EU
Assembly although ultimately rejected because it
would disrupt EU relations with Russia, but still
consider the idea of Poland by forming the European
Neighborhood Policy which contains about EU
cooperation with Mediterranean and Eastern
European countries (Consilium, 2016). This then
becomes a good stage for Poland's image in the
European Union as a country that provides the idea
for such regionalism in the policy of expanding the
influence and the area of cooperation of their
organizations (ENPI, 2012).
5 DONALD TUSK
ORGANIZATIONAL
BEHAVIOUR ANALYSIS
In 2007, Donald Tusk was elected Prime Minister of
Poland for two periods of government and served
until 2014 (Consilium, 2016). The rejection of the EU
Eastern Dimension proposal caused Tusk to respond
quickly to the phenomenon in its first year as Polish
Prime Minister, so in response to these conditions
Tusk framing its foreign policy by redefining its
national interests, it was effective when the European
Union approves the establishment of Eastern
Partnership as an element of the European
Neighborhood Policy (Traynor, 2014). The steps
Tusk undertakes to redefining Poland's national
interests are reflected in the reorientation of Poland's
foreign policy to the EU by pursuing an active, objec-
tive, constructive, and coalition-based approach
(Cianciara, 2009). Furthermore, the reorientation of
foreign policy towards the EU is implemented by
helping to overcome the European economic crisis,
energy security issues and environmental change,
assisting the EU in carrying out its enlargement
strategy, mediating the Georgian conflict, and
Individual Level of Analysis and Foreign Policy: Donald Tusk and Eastern Partnership
625

overcoming the Russian-Ukrainian gas crisis, and
supports EU negotiating with Russia.
The European economic crisis of 2008 caused
countries in the region to experience a crisis of trust
and solidarity. As stated by Czech Prime Minister
Mirek Topolanek, that the economic crisis will bring
the EU to a crisis of confidence, if that happens the
EU will lose the opportunity to stand together in the
future (Cianciara, 2009). Accepting the statement,
Tusk initiated steps to tackle the economic crisis to
avoid a crisis of confidence, and Tusk held an
informal meeting between CEE members and the
Commission's President of EU before the 27th EU
general meeting. This informal meeting was aimed at
demonstrating the full support of the new EU member
states against the single market rules and suggest
cooperative actions of the EU Commission to resolve
the economic crisis. This meeting resulted in Lisbon
Treaty signed by all EU member states, this
agreement contains on strengthening and improving
the institutional foundations of the EU including the
harmonization of foreign policy and security of the
European Union. For Poland this agreement will
provide new energy for EU unity (Cianciara, 2009).
Furthermore, the Georgia conflict with Russia and
the gas conflict between Russia and Ukraine indicate
the potential for destabilization between countries in
Europe. In addition, it will also adversely affect
relations between Russia and the European Union,
therefore Tusk advises the EU to strengthen relations
with Russia through cooperative measures such as
calling on the country in negotiations and new treaties
to resolve the Georgian-Russian and Ukrainian-
Russian conflict . Furthermore, for that Poland who
had not previously agreed on EU relations with
Russia began to stop its action in blocking the
negotiations with Russia (Cianciara, 2009). The
Polish government believes that the EU-Russia
Summit in Samara in May 2007 will contribute
greatly to the consolidation and unity of the EU
position as this will also impact Russia's policy of
becoming more constructive than ever before, while
for the energy crisis that causes Russian-Ukrainian
conflict, Donald Tusk suggests to strengthen energy
security by expecting cooperative action from other
EU countries that tend to be concerned with their own
country (Cianciara, 2009).
According to Tusk, to overcome the above issues,
EU countries should cooperate with each other
because there is no energy company to be funded by
the EU if countries are still uncooperative to improve
energy security together. Furthermore, this energy
security is needed to avoid extortion resistance from
non-EU energy suppliers, this is also aimed at
diversifying energy sources and transit routes, and
creating an energy delivery infrastructure
infrastructure between EU countries (Cianciara 2009)
. Besides, Poland is also experiencing an energy crisis
due to climate change and forcing the country to use
coal as an energy source causing an increase in
electricity prices almost 90% of the normal price. The
ideas from Tusk were then accepted by the European
Union in 2008 and implemented with funding to build
energy development infrastructure for countries that
agree to establish a common energy security policy.
In exchange for the idea of Tusk, Poland gained
additional funding to modernize its energy
development infrastructure in the country by 2020
(Cianciara, 2009),
The impact of the aid fund is that Poland can
develop energy from fossils, per capita income up to
20%, and electricity prices return to normal.
Furthermore, to gain the hearts and good image of the
EU, Poland supports efforts to extend the EU's
influence to non-member countries of the regional
organization by helping Ukraine to become a more
democratic country in order to meet the requirements
of the European Union (Cianciara, 2009) . Based on
these things can be seen that Donald Tusk has the
ability to persuasive that can affect others in a subtle
way to achieve its goal of realizing the Eastern
Dimension of EU. It is evident from Tusk's own
recognition that he is not a naive person, if he stays
for a moment his ego and his ambition to follow the
EU's willingness to solve internal problems and help
a lot for that regionalism can realize its true purpose
why not (Consilium, 2016). This is in line with the
concept of role behaviour role behavior described by
Rourke (2009) that in a leader country must act in
accordance with its role in the country, in the sense of
working on elements of national interest to then
achieve the ultimate goal of its ambition as an
individual.
6 EASTERN PARTNERSHIP
REALIZATION
Poland's cooperative action that supports all EU
policies plus the persuasive ability of Donald Tusk, in
2008 Poland took Sweden to jointly propose the
Eastern Partnership proposal to become an element of
the European Neighborhood Policy. The EaP
proposal contains the procurement of cooperation
between the EU and the Eastern European countries
in terms of economic development, poverty
alleviation, legal development and democracy. The
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EaP is aimed at political association, economic
integration, mobility, and strengthened sector
cooperation based on shared values such as
democracy and rule of law, respect for freedom and
human rights, and commitment to the market
economy (EEAS, 2016). The EaP cooperation is
based on two dimensions of bilateral, which indicates
the effort to develop the proximity of the European
Union with partner countries and multilateral which
indicate the efforts to bring cooperation partners into
the framework of cooperation. Furthermore, the
bilateral dimension encompasses new contractual
relationships, integration into the EU economy, travel
convenience to the EU with visa exemptions, energy
cooperation, economic and social development, and
financial assistance (EEAS, 2016).
Meanwhile, the dimension of multilateralism
refers to efforts to strengthen integration in Europe
through forums to share experiences and information,
the instruments of aid of joint projects (EEAS, 2016).
The Polish competence in promoting the EaP agenda
was appreciated by the EU countries, then accepted
by the Council of the European Union in March 2009
and the EU spent 600 million euros on the Eastern
Partnership program as evidence of their support
(Cianciara, 2009). Polish success in realizing the
Eastern Partnership is inseparable from Donald
Tusk's ideals of uniting Europe and embracing the
marginalized countries due to the collapse of
communism and their inability to transition to
democracy, evident from Tusk's persistence in
winning the hearts of the EU with the reorientation of
foreign policy to prove that cooperating with Eastern
European countries would not threaten the EU's good
relations with Russia (Machitidze, tt).
7 CONCLUSION
Based on the above exposure the authors draw the
conclusion that the individual level of analysis can
explain Polish Eastern Partnership policy. Initiated by
Polish Prime Minister Donald Tusk, who has an
attractive, charismatic, and persuasive personality,
Poland has attracted the appreciation and support of
other EU members to realize the Eastern Dimensions
of EU into the elements of EU cooperation. The
countries of Eastern Europe were a former Soviet
communist state in which it was reported through
Tusk's interview with the European Consilium that
the anti-Communist himself felt responsible for
helping other former communist countries to undergo
a more democratic transition. His anti-communist
view he gained through his teenage experience until
now that the communists can create riots, coupled
with his friendly, optimistic, energetic, high-
intellectualized personality, Tusk seeks efforts to
unite Europe by embracing non-EU countries .
Personality, personal experience, and perceptions of
Tusk are in line with concepts and variables to explain
the behavior of policy makers through the level of
individual analysis. Finally, at the time he was elected
President of the European Council in 2014, he said
that what is today's optimism, energy, engagement,
faith and all that my specialization.
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