More bark than bite? European digital sovereignty discourse and changes to the European Union’s external relations policy

Despite the allure of ‘European digital sovereignty’ as an official European Union (EU) strategic objective, it remains unclear whether this discourse has driven concrete changes to EU external action policies, particularly those leveraging cyber instruments. This question is explored vis-à-vis three policies which have enabled the EU to pursue its digital sovereignty objectives in practice: the Cyber Diplomacy Toolbox, external capacity building (CCB) assistance initiatives, and the 5G Toolbox. Drawing upon extensive archival research and elite interviews, the paper finds that, while European digital sovereignty discourse influenced comprehensive changes for the 5G Toolbox process, it failed to drive policy changes to the Cyber Diplomacy Toolbox and external CCB assistance initiatives. To explore this variation, the paper considers institutional and ideational factors particular to EU external action over the 2017–2022 period. Overall, the study contributes both to contemporary debates about European digital sovereignty and its relationship to EU cyber instruments and longstanding work on EU foreign policymaking.