10 EU Special Representatives
| (28295)
—
—
(28296)
—
—
(28297)
—
—
(28298)
—
—
(28299)
—
—
(28300)
—
—
(28301)
—
—
| Council Joint Action extending the mandate of the Special Representative of the European Union in Sudan
Council Joint Action extending the mandate of the Special Representative of the European Union for the South Caucasus
Council Joint Action extending and amending the mandate of the Special Representative of the European Union for the Middle East peace process
Council Joint Action extending the mandate of the Special Representative of the European Union for Afghanistan
Council Joint Action appointing the Special Representative of the European Union for the African Great Lakes Region
Council Joint Action appointing the Special Representative of the European Union for Moldova
Council Joint Action extending and amending the mandate of the Special Representative of the European Union for Central Asia
|
| Legal base | Articles 14, 18.5, and 23.2; QMV
|
| Department | Foreign and Commonwealth Office
|
| Basis of consideration | EM of 24 January 2007
|
| Previous Committee Report | None
|
| To be discussed in Council | 12 February 2007 General Affairs and External Relations Council
|
| Committee's assessment | Politically important
|
| Committee's decision | Cleared, but further information requested
|
Background
10.1 EU Special Representatives (EUSR) are appointed to represent
Common Foreign and Security Policy where the Council agrees that
an additional EU presence on the ground is needed to deliver the
political objectives of the Union. They were established under
Article 18 of the 1997 Amsterdam Treaty and are appointed by the
Council. The aim of the EUSRs is to represent the EU in troubled
regions and countries and to play an active part in promoting
the interests and the policies of the EU.
10.2 An EUSR is appointed by Council through the
legal act of a Joint Action. The substance of his or her mandate
depends on the political context of the deployment. Some provide
inter alia a political backing to an ESDP operation, others
focus on carrying out or contributing to developing an EU policy.
All EUSRs carry out their duties under the authority and operational
direction of the High Representative (Javier Solana). Each is
financed out of the CFSP budget implemented by the Commission.
Member States contribute regularly e.g. through seconding some
of the EUSR's staff members.
10.3 In June 2005 the Political and Security Committee
decided that EUSR mandates should in principle be extended for
12 months rather than the previous arrangement of 6 months. This
was put into effect in February 2006. The UK supported this proposal,
as it enables extensions to be based on a more thorough reporting
cycle. The renewed mandates now also ask EUSRs to prepare progress
reports in mid-June and mandate implementation reports in mid-November.
10.4 The activities of each of these seven Special
Representatives in different regions of the world is helpfully
summarised by the Minister for Europe (Mr Geoffrey Hoon) at the
Foreign and Commonwealth Office in his 24 January 2007 Explanatory
Memorandum. His comments on each one are in italics beneath the
summary
SUDAN
10.5 Pekka Haavisto, a former Finnish Minister,
was appointed EUSR for Sudan in July 2005. He is mandated to ensure
that the EU assists the Sudanese parties, the African Union and
the UN in achieving a political settlement of the conflict in
Darfur, including through the implementation of the Darfur Peace
Agreement (DPA). He is also tasked with facilitating the implementation
of the Comprehensive Peace Agreement (CPA), as well as facilitating
the implementation of the Eastern Sudan Peace Agreement (ESPA),
with due regard to the regional ramifications of these issues
and to the principle of African ownership. He is also tasked with
ensuring maximum effectiveness and visibility of the EU's contribution
to the AU Mission in Sudan (AMIS).
The EU Special Representative for Sudan, Pekka
Haavisto, has played an important role since his appointment,
particularly during the Darfur Peace talks in Abuja, Nigeria,
which led to the signing of the Darfur Peace Agreement in May
2006. Since then, Haavisto has taken an active role in pressing
both the Sudanese government and Darfur rebels to accept and implement
the agreement.
The EU Special Representative has also had an
active role in helping to implement both the Comprehensive Peace
Agreement for Sudan, signed in January 2005, and the East Sudan
Peace Agreement signed in September 2006. The EU Special Representative
also acts as an important channel of contact with the African
Union. His work has led to a strengthening of the EU's political
role in the various peace processes under way for Sudan, in particular
the Darfur crisis, and has helped ensure consistency in the EU's
work in Darfur and its overall political relations with Sudan.
10.6 The Minister adds that the Sudan EU Special
Representative's mandate was renewed in July 2006 for six months
in order for it to match the other EU Special Representative mandate
cycles, the intention being to renew the mandate for twelve months
in February 2007. However, Mr Haavisto has decided to leave his
post at the end of April 2007, so the Joint Action is therefore
only being extended until then; once the identity of the new EU
Special Representative is known, a new Joint Action will be submitted
which extend the mandate until January 2008.
SOUTH CAUCASUS
10.7 Peter Semneby was appointed EUSR for the South
Caucasus on 20 February 2006. He is tasked with: assisting Armenia,
Azerbaijan and Georgia in carrying out political and economic
reforms; preventing conflicts in the region and contributing to
the peaceful settlement of conflicts, including through promoting
the return of refugees and internally displaced persons; and encouraging
and supporting further cooperation between States of the region,
including on economic, energy and transport issues.
10.8 His mandate was amended in 2005 to reflect the
EU's gradually developing approach to the vacuum left on the Georgian
border with Chechnya, Dagestan and Ingushetia (in Russia) following
the closure of the OSCE border monitoring mission in Georgia at
the end of 2004. The EU Special Representative's Office has been
bolstered by a support team to provide the EU with reporting and
a continued assessment of the border situation and to facilitate
confidence-building between Georgia and the Russian Federation.
The team assists the Georgian Border Guard and other relevant
government institutions in Tbilisi. Additionally, it is mandated
to follow-up on the reform of the criminal justice system, work
which was started by the EU Rule of Law mission to Georgia in
July 2004.
The Government supports the EU's closer engagement
in this region, including the extension of the European Neighbourhood
Policy to Armenia, Azerbaijan and Georgia and the recent adoption
of European Neighbourhood Policy Action Plans with all three countries.
The EU Special Representative will play a key role in supporting
the three South Caucasus countries in implementing the reforms
set out in their Action Plans over the coming year. While the
EU does not have a direct role in the mechanisms seeking to resolve
the frozen conflicts in the South Caucasus, the EU Special Representative's
mandate enables him to contribute effectively to the conflict
resolution process wherever the EU can add value.
MIDDLE EAST PEACE PROCESS
10.9 Marc Otte was appointed EUSR for the Middle
East Peace Process on 14 July 2003. His mandate is based on the
EU's policy objectives which include a two-State solution with
Israel and a democratic, viable, peaceful and sovereign Palestinian
State living side-by-side within secure and recognised borders
enjoying normal relations with their neighbours in accordance
with UN Security Council Resolutions 242, 338, 1397 and 1402 and
the principles of the Madrid conference.
10.10 The EUSR offers advice and conveys the position
of the EU to all parties, thereby contributing to the implementation
of EU policy on the process as agreed by the Council of Ministers.
He also represents the EU in meetings of the Quartet (UN, EU,
Russia and the US) at Envoys level.
The Middle East Peace Process remains at a crucial
stage. Following Hamas' election in January 2006, the international
community — led by the Quartet — set out three principles
that all members of a future Palestinian government must be committed
to, and that future assistance to any new government would be
reviewed by donors against these principles. The EU Special Representative
has been a key player in the EU's creative response to the political
situation, so that our long-standing support of the Palestinian
people can continue despite Hamas' failure to accept the Quartet
principles. The Commission introduced the UK-inspired Temporary
International Mechanism (TIM) to address the needs of the Palestinian
people. In 2006, €680 million was given by the EU to the
Palestinians, the largest amount ever given in a single year.
Of that, €200 million was transferred through the mechanism,
providing assistance to the most vulnerable Palestinians. The
EU Special Representative also has an integral role in the chain
of command for the EU Border Assistance Mission (EUBAM), which
is monitoring the border at Rafah.
The EU Special Representative was the key figure
in the European Security and Defence Policy Mission to support
the Palestinian police (EUPOL COPPS). The purpose of the mission
is to build the capacity of the Palestinian Civil Police. The
mission was headed by the UK's Jonathan McIvor, who was replaced
in December 2006 by another UK national, Colin Smith.
Following the election of Hamas, EUPOL COPPS has
focused its activity on assessing the Civil Police's capacity
and the needs of the wider criminal justice system and security
sector. Scoping work for possible re-engagement in specific areas
(should the politics change) also continues. A review of mission
activity saw consensus amongst EU Member States that the mission
should remain in place given its political significance and the
importance of the EU being able to re-engage when the politics
permitted. The UK hopes that the EU Special Representative will
continue to promote security sector reform working with the US
Security Co-ordinator, General Dayton. The Government judges that
the role of the EU Special Representative remains an important
tool of EU policy towards the Peace Process and therefore supports
the renewal of the EU Special Representative's mandate.
AFGHANISTAN
10.11 Francesc Vendrell was appointed EUSR in Afghanistan
on 25 June 2002. His mandate is to support the Afghan Government,
the Special Representative of the Secretary-General of the United
Nations, Mr Koenigs, and to liaise with neighbouring and regional
countries to achieve the implementation of the Union's policy
in Afghanistan.
The London Conference on Afghanistan (31 January
— 1 February 2006) launched the "Afghanistan Compact"
which marks a new phase in the international community's engagement
in Afghanistan. The Compact underlines continuing international
support for Afghanistan, to develop increasing Afghan ownership
of the process, to commit Afghanistan to clear timelines and benchmarks
for progress, to deliver more effective international donor activity,
and to ensure a continuing strong role for the UN. The European
Commission is finalising a Country Strategy Paper for Afghanistan
covering the period 2007-10. Conclusions adopted at the December
2006 European Council reaffirmed EU commitment to the reconstruction
of Afghanistan, including through the possible deployment of a
European Security and Defence Policy civilian mission in the field
of policing with linkages to the wider rule of law. The role of
the Special Representative will be central in driving the EU effort
and ensuring the appropriate visibility for EU activity.
GREAT LAKES
10.12 Aldo Ajello was appointed EUSR for the African
Great Lakes Region on 25 March 1996. Mr Ajello has worked closely
with the UN and the African Union and with the prominent African
figures who are assisting the international community's efforts.
He maintains constant contact with the governments of the countries
in the region. Although Mr Ajello himself will be stepping down
at the end of the current term, the role of EUSR continues to
be an important one in the Great Lakes. The EU is currently considering
new candidates.
10.13 The mandate of the EUSR will continue to reflect
the EU Special Representative's additional responsibilities in
the chain of command of the European Security and Defence Policy
Mission advising and assisting the Congolese authorities in security
sector reform (EUSEC RD Congo) established in May 2005. It will
be amended to take into account the new democratically elected
government in the Democratic Republic of Congo (DRC).
The EU Special Representative for the Great Lakes
has been helpful in mediating between the Congolese parties and
keeping pressure on all sides in order to complete a successful
and historic election process. He has access at high levels. He
has also played a role in trying to accelerate and co-ordinate
international efforts to find a resolution to the problem of disarming
the FDLR (Rwandan Hutu rebels resident in the Democratic Republic
of Congo) and other foreign armed groups in the Democratic Republic
of Congo. He pushed the Security Sector Reform agenda, and will
be important in guiding the work of the EU's future engagement
on Security Sector Reform in the Democratic Republic of Congo.
All of these are issues central to long-term stability in the
country.
The peace in Great Lakes region remains fragile
and political challenges lie over the coming year. The EU has
increasing influence in the region, through financial support
and technical assistance and contributed massively to the elections.
The EU Special Representative holds all of these European efforts
together. The Government supports an extension for a further 12
months.
MOLDOVA
10.14 Adriaan Jacobovits de Szeged was appointed
EUSR for Moldova on 23 March 2005. His mandate is focused on strengthening
the EU's contribution to the resolution of the Transnistria conflict
in close coordination with the Organisation for Security and Co-operation
in Europe (OSCE). He also contributes to EU policy in other areas,
including improving EU-Moldova relations, contributing to the
strengthening of democracy and the rule of law, and assisting
in the fight against trafficking of weapons, other goods and people.
His role also complements the work of the European Commission's
office, which opened in Moldova in October 2005, including on
implementation of the EU-Moldova European Neighbourhood Policy
Action Plan.
The appointment of Adriaan Jacobovits de Szeged
as EU Special Representative for Moldova in March 2005 coincided
with a period of relative progress in efforts to resolve the frozen
conflict in Transnistria. Since his appointment, the EU Special
Representative has contributed to maintaining the momentum by
representing the EU for the first time as an observer in the Transnistria
settlement talks (in October 2005). The EU Special Representative
has also played a key role in implementing the EU's Border Assistance
Mission (EUBAM). The Mission aims to provide effective control
of the Ukrainian-Moldovan border, particularly the Transnistrian
segment. As the Transnistrian regime derives much of its income
from smuggling across the Moldovan-Ukrainian border, the Mission
has put pressure on it for the first time. The replacement EU
Special Representative will also continue to provide expert advice
on Moldova's progress against its European Neighbourhood Policy
Action Plan.
10.15 The Minister adds that Mr Jacobovits will step
down as EUSR at the end of February 2007, and that the Political
and Security Committee EU plans to make a decision on his successor
by the end of February.
CENTRAL ASIA
10.16 The EU established a Special Representative
for Central Asia in September 2005 to ensure coordination and
consistency of external EU actions in the region. Jan Kubis, the
former Secretary-General of the Organisation for Security and
Co-operation in Europe, was appointed to this position. Mr Kubis
resigned in July 2006 and Mr Pierre Morel was appointed in September
2006.
10.17 His mandate is based on contributing to the
strengthening of democracy, rule of law, good governance and respect
for human rights and fundamental freedoms in Central Asia. It
is also focused on enhancing EU effectiveness and visibility in
the region, including through a closer coordination with other
relevant partners and international organisations, such as the
Organisation for Security and Co-operation in Europe. The mandate
has been amended to allow the Special Representative to contribute
to wider Common Foreign and Security Policy work on energy security,
and to help develop bilateral energy cooperation with important
producer and transit partners in Central Asia.
The Government welcomed the creation of an EU
Special Representative for Central Asia and the appointment of
Jan Kubis in September 2005. Kubis had already established good
contacts in each of the countries of the region as well as with
other key actors from Russia, the US and China. He had indicated
a desire to work more closely with the EU Special Representative
for Afghanistan during the next period of his mandate, which will
be important in encouraging greater regional co-operation and
hopefully ensuring a more co-ordinated EU approach. He resigned
in July 2006 to become Foreign Minister of the Slovak Republic.
Mr Pierre Morel was appointed EU Special Representative in September
2006. Mr Morel has travelled widely in the region. He has drafted
a new EU Central Asia Strategy and contributed to EU discussions
on policy towards the region.
The EU Special Representative's report on the
situation in Uzbekistan in August 2005 played a role in persuading
EU partners that it was necessary to introduce restrictive measures
on the country in response to their disproportionate response
to unrest in the city of Andizhan. EU relations with Uzbekistan
remained tense in 2006, but the EU Special Representative has
provided an important channel for continued dialogue. Pierre Morel
was able to visit Uzbekistan in Autumn 2006 which contributed
to an improvement in EU-Uzbekistan relations. More broadly, the
EU Special Representative will continue to provide a common focus
for delivering EU messages not just on key human rights issues,
but also on the benefits of regional co-operation and on potential
EU co-operation and technical assistance in helping the region
to address some of its shared socio-economic difficulties. The
amendment also allows him to inform wider thinking on external
energy relations.
10.18 The UK currently pays approximately 18% into
the CFSP budget, from which the costs of the EUSRs is met. The
Minister says that the costs for 2007 will be:
— EUSR
Sudan: to be determined once a successor is known;
— Great Lakes: €1,025,000 (£686,750);
— Middle East: €1,700,000 (£1,139,000);
— Afghanistan: to be agreed;
— Moldova: €1,100,000 (£737,000);
— Central Asia: €1,000,000 (£670,000);
— South Caucasus: €3,120,000 (£2,090,400).
Conclusion
10.19 We are reporting the situation to the House
because of the widespread interest in Common Foreign and Security
Policy, of which the EU Special Representatives are a key component.
Their activity illustrates vividly the breadth and depth of CFSP
within a decade of its inception. All would appear to have a role
to play; all seem to be doing a good job, within the bounds of
the possible. We have no questions to put to the Minister at present.
10.20 However, we note the likelihood of a European
Security and Defence Policy civilian mission in Afghanistan, and
of the drawing up of a Central Asia Strategy. The former would,
of course, be submitted in the normal way; we should be grateful
if, when the time comes, the Minister's Explanatory Memorandum
would explain the Country Strategy Paper to which he refers (which
we assume is the customary framework document within which Commission-led
technical assistance is delivered) and how that mission fits into
it.
10.21 It is not clear what form the Central Asia
Strategy will take and what the timescale is. However, we should
be grateful if the Minister would tell us more about it at the
appropriate stage, so that the House may be better informed of
what is likely to be an increasingly important focus for both
Member State and EU activity.
| 
