14. We consider that the
following raises questions of political importance, but make no
recommendation for its further consideration:-
FOREIGN AND COMMONWEALTH OFFICE
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(17898)
5598/97
COM(96)672
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Commission Report on the implementation of measures intended to promote observance of human rights and democratic principles for 1995.
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Legal base:
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Introduction
14.1 This report is the
third of its kind. When we considered the report for 1994 on
17 January 1996[33]
we concluded it did not raise questions of legal or political
importance.
The 1995 report
14.2 This report describes
the main courses of action taken in the 1995 financial year under
the European initiative for democracy and the protection of
human rights (Chapter B7-52 of the Community budget). This
initiative is designed to ensure consistent and effective action
in this area by gathering together all the budget resources explicitly
earmarked for the promotion of human rights and democratic principles.
14.3 Funds for financial
and technical assistance, and for co-operation, also make a significant
contribution to the objective of human rights and democracy.
The report covers some of the more significant examples.
14.4 The report was drawn
up by the permanent inter-departmental Human Rights Co-ordination
Group of the Commission. The structure differs from earlier reports
in order to show how funding has been used, first from a thematic
and then a geographical angle.
14.5 The actions are
grouped in Section A under themes, which range from support
for the holding of free and regular elections to initiatives directed
at target groups such as children and the security forces.
14.6 Section B sets
out the actions taken in different geographical areas: Latin
America; developing countries except Latin America; Central
and Eastern Europe, the Commonwealth of Independent States and
Mongolia; Former Yugoslavia (except Slovenia); and Turkey.
14.7 The report goes
on to consider the procedural aspects of the financing
of activities to promote human rights and democracy, covering:
co-ordination; transparency; and effectiveness.
14.8 Introducing Section
A, the Commission says that the increasing importance attached
to preventive action gave rise to specific initiatives, the most
important of which is the inclusion of human rights clauses in
agreements between the Community and third countries.[34]
14.9 The report concludes
that:
"Good progress
has been made not only in promoting a pro-active approach in the
various procedures and in improving evaluation techniques tailored
to human rights projects, but also in terms of overall cohesion
and impact".
14.10 Despite these improved
procedures and the more pro-active approach, the Commission says
that "these efforts have not yet produced notable results,
mainly because of the lack of an overall strategy for the use
of financial resources to promote human rights and democracy".
It lists a number of suggestions for ensuring that, in future,
optimal use is made of funding devoted to the observance and promotion
of human rights. These include working for a better appreciation
of the specific nature of human rights activities so that the
characteristics of the recipients, most of whom are non-profit
making, are fully taken into account in the budgetary procedure,
and so that the need is understood for funding to be available
immediately for short-term operations and for continuity for longer
term operations.
14.11 Some of these points
were made in the Commission Communication The European Union
and the external dimension of Human Rights policy: from Rome
to Maastricht and beyond[35]
which we cleared on 6 March 1996. That paper was designed to
stimulate debate and give an impetus to the Member States to refine
a strategy.
The Government's view
14.12 In his Explanatory
Memorandum (dated 3 March 1997) the Minister of State for Foreign
and Commonwealth Affairs (Mr Davis) comments briefly:
"The report
is a factual record of activities financed in 1995. Such activities
are broadly in keeping with HMG's objectives to promote good government,
pluralism and respect for human rights."
Conclusion
14.13 The presentation
of the report in this format is an improvement, though the impact
would be enhanced by a more selective treatment. Reports of such
length need their main messages to be more readily accessible
to a non-specialist readership. The Commission conclusions that
"these efforts have not yet produced notable results"
sounds a downbeat note at the end of an impressive catalogue of
many and varied actions. It does not explain how it might take
forward its proposals for "optimal use" of the funds.
We are now clearing the document.
33 (16640) 9360/95; see HC 51-vi (1995-96), paragraph 17. Back
34 (16312) 7428/95; see HC 70-xxv (1994-95), paragraph 15 (18 October 1995). Back
35 (16910) COM (95) 567; see HC 51-xii (1995-96), paragraph 8 (6 March 1996). Back
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