APPENDIX 1
FOREIGN AND COMMONWEALTH OFFICE UPDATE
TO FOREIGN AFFAIRS COMMITTEE REPORTS
SIXTH REPORT: SOUTH CAUCASUS AND CENTRAL
ASIA
Recommendation 1
Given that the British Government believes
that it is regarded by both Armenia and Azerbaijan as neutral
and friendly, we recommend that it consider how it may best take
forward the Minsk Group's work and contribute to a resolution
of the Nagorno-Karabakh dispute. (Paragraph 32)
What progress has been made towards a settlement?
77. The murders in the Armenian parliament
of the Prime Minister, Speaker and six other parliamentarians
in October 1999, proved a setback for the Nagorno Karabakh peace
process. President Kocharian of Armenia was forced to concentrate
on domestic affairs and the peace process subsequently lost momentum.
78. President Kocharian and President Aliev
of Azerbaijan continue to meet to discuss Nagorno Karabakh, most
recently at the Millennium Summit in New York. They are publicly
committed to finding a solution. However, they have as yet been
unable to put forward any alternative ideas acceptable to both
sides. The Minsk group has made it clear to the two Presidents
that it needs such new proposals before it can advance any new
initiatives. The EU continues to be engaged: at a donor conference
in Geneva in May 2000 organised by the Minsk Group, it agreed
in principle to provide funding to underpin any eventual peace
agreement. The EU raises Nagorno Karabakh in its regular co-operation
council meetings with both Armenia and Azerbaijan. The Government
continues to support the work of the Minsk Group. In response
to an OSCE request we are looking for a suitable British national
to be seconded to the staff of OSCE Ambassador Kasparcik. We have
maintained a close and senior-level dialogue with the three co-chairs
of the Minsk group.
Recommendation 2
We welcome the British Government's involvement
in resolving the conflict in Abkhazia and, while we recognise
the great difficulties involved, we recommend that work towards
a solution of a problem which threatens the security and integrity
of the Georgian state should be a regional priority for British
diplomacy. (Paragraph 40)
What progress has been made towards a settlement?
79. Progress towards a settlement on Abkhazia
has been slow, and the two sides have yet to engage in serious
discussion about central issues such as the division of constitutional
competences. The FCO has continued to treat the Abkhazia problem
as a top regional priority. We have repeatedly supported the extension
of the UNOMIG mandate in Abkhazia, and continue to provide British
personnel to the operation. As a member of the group of Friends
of the UN Secretary General we have given strong, public support
to his Special Representative. The Foreign Secretary discussed
Abkhazia during his visit to Tbilisi in February 2000, and he
and the Prime Minister received an update on developments from
President Shevardnadze during the latter's visit to the UK in
July. During that visit, and with the objective of boosting regional
security, the Prime Minister announced a £100,000 contribution
to a voluntary OSCE fund to assist the decommissioning of Russian
bases in Georgia, including in Abkhazia. We have funded confidence
building measures such as a meeting of Georgian and Abkhaz journalists,
to encourage more accurate reporting of events in each others'
territories.
Recommendation 3
In view of the continued threat to regional
stability posed by the situation in Tajikistan, we recommend that
the Government maintain its efforts to support the peace process
in Tajikistan through the UN Security Council. (Paragraph 42)
What progress has been made towards lasting
peace?
80. The situation in Tajikistan remains
difficult, with poverty and widespread criminal activity undermining
weak central institutions. The Tajik government have struggled
to combat activities this summer by the well-armed Islamic Movement
of Uzbekistan (IMU), which has used Tajikistan as a base for incursions
into Uzbekistan and Kyrgyzstan.
81. Uzbek/Tajik co-operation against the
insurgents has improved this year, but Tajik and wider regional
stability remains threatened by the IMU's activities. The security
situation in Tajikistan continues to rule out any British presence
there. The United Nations Mission of Observers in Tajikistan (UNMOT),
which concluded its mandate in May 2000, played an important role
in supporting the peace process. The British Government supported
a UN proposal to establish a post-conflict peace-building office
in Tajikistan, which will provide a political framework for UN
peace-building activities, mobilise international donor support
for programmes, and help create an environment for consolidating
peace, democracy and rule of law. The UK also supports the work
of the OSCE office in Dushanbe. FCO officials met with the chief
economic adviser to President Rakhmonov in July 2000 for a briefing
on the economic and political situation in Tajikistan.
Recommendation 5
We recommend that in view of an actual threat
to the United Kingdom from the trafficking of heroin and other
opiates through Central Asia, the Government should reverse its
decision not to post a full-time Drugs Liaison Officer to Tashkent,
and work to strengthen its co-operation with the multilateral
and national drugs control agencies operating in the region. (Paragraph
51)
What is the current assessment of threat?
82. A recently completed study of drugs
trafficking in Central Asia, commissioned by the FCO, concluded
that while the region as a whole is not a major threat to the
UK, Turkmenistan might now be a heroin trafficking route to the
UK. As a result, HMC&E have now decided in principle to post
a full time Drugs Liaison Officer to the Central Asian Republics.
We are currently examining the arguments for a variety of locations
within the region for the post.
Recommendation 6
We urge the Government to ensure that EU
programmes in the field of drug control in Central Asia are implemented
in a timely and effective fashion. In particular, such programmes
should not waste resources in duplicating efforts undertaken by
other national or multilateral organisations. (Paragraph 53)
What progress has been made?
83. The Government continues to encourage
the Commission to implement the projects set out in the EU Central
Asia Drugs Action Plan (CADAP) in a timely and effective fashion.
The Commission are appointing an EU Coordinator in Almaty to ensure
that the CADAP assistance programmes do not duplicate efforts
undertaken by other national or multilateral organisations in
the region. He is scheduled to arrive in October.
Recommendation 7
We recommend that the Government use its
best efforts to work with the governments of Central Asia to alleviate
the severe difficulties of water management in the region, both
in resolving disputes over resource allocation and in promoting
the necessary technical assistance from British companies with
expertise in the field. (Paragraph 56)
What progress has been made?
84. The UK has been actively pursuing the
issue of water management in Central Asia. At the OSCE Summit
in Istanbul in November 1999, the Secretary of State offered to
host a high level meeting, under the auspices of the OSCE, to
promote strengthened regional co-operation over water.
85. A mission led by the UK, but also involving
the Austrian OSCE Chair, the OSCE Secretariat, the European Commission,
the US Government and the World Bank, visited the region in March
2000 to explore the views of the five Republics. Reactions were
mixed; some were in favour of bilateral or regional solutions
without outside help. A high level meeting is unlikely to take
place in the near future. Nonetheless, in co-ordination with other
organisations and donors, the UK is continuing its efforts to
encourage regional co-operation over water.
Recommendation 9
We recommend that the British Government
work within the Committee of Ministers of the Council of Europe
to achieve a suitable status within the Council for the countries
of Central Asia which have undertaken to subscribe to its core
values and which have made material progress in that direction.
(Paragraph 72)
What progress has been made?
86. The Government wants to encourage the
Central Asian states to subscribe to the core values of the Council
of Europe (CoE). It is currently considering a proposal by the
CoE Chairmanship that special co-operation status be given to
Central Asian states which do subscribe to those values. Discussion,
including on the eligibility criteria to be applied, the nature
and extent of access to the CoE that observer states might enjoy,
and the financial implications for the CoE, will shortly take
place in the relevant CoE sub-committee.
Recommendation 10
We believe that conditionality is most effective
when donors co-ordinate policies. We recommend that the Government
should use its position within the EBRD to ensure that the EBRD
does not spend money in countries which do not have programmes
agreed with the IMF and World Bank. (Paragraph 84)
Have there been any developments in this area?
87. The Government has continued to emphasise
to all International Financial Institutions including the EBRD
the need to co-ordinate activities in line with their respective
mandates. In determining its country strategies the EBRD takes
account of IMF and World Bank programmes.
Recommendation 11
We welcome the steps that have been taken
within the OECD to mirror the US Corrupt Practices Act, and recommend
that the Government should continue to take all possible steps
to end corrupt practices in business, in order to create a level
playing field internationally. (Paragraph 95)
What progress has been made on effective implementation
of the OECD Convention?
88. The Government continues to support
the OECD Convention on Combating Bribery of Foreign Public Officials
in International Business Transactions, and to press for effective
implementation.
89. Corruption remains a major problem in
Central Asia and the South Caucasus, creating a difficult operating
environment for British companies. The Government has taken and
will continue to take every opportunity to raise corruption with
government leaders and officials from the region, and to stress
that transparency and the rule of law are a prerequisite for long
term British investment. The Prime Minister and Foreign Secretary
both discussed corruption in Georgia with President Shevardnadze,
during the latter's visit to the UK in July 2000, and welcomed
President Shevardnadze's establishment of an anti-corruption working
group. One of its key officials visited the UK in October 2000
at the invitation of the Government, and Sir John Kerr held talks
in Tbilisi from 4-6 October.
Recommendation 12
We support the Government's policy of multiple
pipelines. We recommend that the Government should continue to
use its best efforts to discourage the US Government from promoting
particular pipeline routes, for purely political reasons, to the
detriment of other more economic routes. (Paragraph 101)
Have there been any developments in the dialogue
with the USA and others?
90. We have continued to promote our views
on pipeline policies with the government of the United States
and with countries in the region, and will take an early opportunity
to raise the issue with the new US administration, in order to
protect the commercial interests of British oil and gas companies
and the broader economic interests of the countries in the region.
Recommendation 13
We recommend that the Government, working
on its own, and in co-ordination with its EU partners and with
the United States, should act to give a fresh impetus to the monitoring
and promotion of human rights in the South Caucasus and Central
Asia. (Paragraph 118)
What progress has been made on monitoring and
promotion of human rights?
91. The Government has given priority to
monitoring of human rights in the region, and pushed for a common
EU response on matters of concern. It has initiated EU demarches
on ICRC access to prisons in Uzbekistan, freedom of access to
Internet services in Turkmenistan, and the restriction of the
media and harassment of journalists in Azerbaijan. It has supported
EU Presidency demarches on the attempted exclusion of opposition
groups in the November 2000 Azerbaijan elections and our Ambassador
in Baku has made a major contribution to an EU Heads of Mission
report on the subject. The Government supports the work of the
OSCE in promoting democratisation and human rights in the region
and continues to provide financial support. It continues to be
a regular contributor to election monitoring missions undertaken
by the OSCE's Office of Democratic Institutions and Human Rights.
The Government will continue its work, both bilaterally and multilaterally,
to identify and pursue specific human rights problems.
Recommendation 15
We believe that urgent consideration should
be given to the establishment and development of ASSIST programmes
with states of the region wherever practicable. (Paragraph 123)
What ASSIST programmes have been undertaken?
92. Within the region, two programmes in
Kyrgyzstan have been funded to promote anti-corruption, recruitment
and needs assessment in the Kyrgyz police; one in Georgia on ethnic
awareness in the armed forces; one in Armenia on disaster management;
one through UNDP for conflict prevention in Tajikistan; The FCO's
ASSIST budget for the region is now fully committed for this financial
year.
Recommendation 16
We recommend that the Government review its
funding and assistance to all organisations seeking to promote
a properly-functioning civil society, where there is freedom of
expression and freedom of the media, in the states of the region.
(Paragraph 126)
What is the effect of review?
93. The Government continues to believe
that the role of NGOs is crucial to the development of civil society
in the region, and will continue to look for ways of supporting
a wide range of groups. The Department for international Development
(DfID) and the FCO are funding a number of projects. The use of
resources is under constant review.
Recommendation 18
We recommend that the Government press the
states of the region to comply fully with their obligations under
those UN and ILO human rights instruments to which they are party.
The monitoring of governments' compliance with these obligations
should be a core responsibility of embassies in the region. (Paragraph
130)
What progress has been made on compliance?
94. The Government will continue to press
governments in the region to respect international human rights
standards, and to implement effectively their commitments under
ILO and UN conventions and OSCE norms. The Government has since
urged Kazakhstan also to sign and ratify two core UN human rights
conventions: the International Covenant on Civil and Political
Rights and the International Covenant on Economic, Social and
Cultural Rights; and to abolish the death penalty. Turkmenistan
has now abolished the death penalty and Kyrgyzstan has extended
its moratorium on its use.
95. Our Embassies in the region continue
to place a high priority on monitoring and reporting countries'
adherence to their international human rights commitments.
Recommendation 20
We recommend that the Government should not
seek to ratify any Partnership and Co-operation Agreement with
the Republic of Turkmenistan without clear evidence of improvement
in the observance of human rights. (Paragraph 135)
What is the view on current human rights situation
in Turkmenistan, and current view on any PCA?
96. The human rights situation in Turkmenistan
has not improved. The EU continues to raise human rights concerns
with the Turkmen authorities at every opportunity. There is no
immediate prospect of the PCA entering into force and the UK has
not proceeded to ratification because of its human rights concerns.
The Government can confirm that it is keeping the situation closely
under review and does not, at present, intend to proceed to ratify
the PCA while its concerns on human rights remain unresolved.
Recommendation 21
We recommend that the Government work both
bilaterally and with its European partners to ensure that the
human rights elements of the EU's Partnership and Co-operation
Agreements (PCAs) are fully respected, and that pressure on those
countries in the region with poor human rights records is maintained
through the mechanisms established by the PCAs, to the extent
that states which consistently fail to meet their obligations
should have their PCAs suspended. We also recommend that the Government
should ask its European partners to take a stronger position in
future on securing actual progress on human rights before EU Partnership
and Co-operation Agreements are entered into. (Paragraph 140)
How have PCAs been used to apply leverage on
human rights?
97. The Government endorses the opinion
of the Committee that the EU should work to ensure that the human
rights provisions of the Partnership and Co-operation Agreements
(PCAs) are implemented. The EU continues to take advantage of
the PCA structures to ensure that human rights issues are raised
at the highest levels. Human rights are an important element in
the dialogue established under the PCAs. At the Co-operation Councils
and Committees (eg with Uzbekistan in February 2000, Kazakhstan
and Kyrgyzstan in July 2000 and with Armenia, Azerbaijan and Georgia
in October 2000), the EU has made it clear that progress on strengthening
democracy, freedom of speech and other fundamental rights is key
to the further development of relations.
Recommendation 22
It is unacceptable for the EBRD to disregard
its commitment to promoting development only in those countries
which apply the principles of multiparty democracy and pluralism.
As the United Kingdom is a major shareholder in the EBRD, and
given the Government's commitment to introducing an ethical dimension
into foreign policy, we recommend that the Government should ensure
that the EBRD lives up to its commitment. The release of further
funds by the EBRD should be made conditional upon improvements
in the respect shown by governments of the region to multiparty
democracy and pluralism. (Paragraph 142)
Have there been any discussions with EBRD on
adverse developments in any relevant country?
98. Officials from the FCO hold regular
meetings with the UK Director and EBRD management to review the
situation in the Bank's region, including the South Caucasus and
Central Asia, with regard to Article I of its founding agreement.
Earlier this year the EBRD board adopted a new country strategy
for Turkmenistan which restricts the Bank's future operations
in the country to the private sector only. Shortly afterwards
the UK Director participated in a Mission to Turkmenistan on behalf
of the EBRD Board to explain the new Country Strategy to the Government
of Turkmenistan. The Mission met senior ministers and was able
to explain to them the responsibilities of the EBRD under Article
I, which specifies the need for member countries to be committed
to and applying the principles of multiparty democracy and pluralism.
The Mission concluded that the EBRD should be very selective in
its choice of private sector partners within the new restricted
country strategy given the close and ambiguous relationship between
the private and state sectors. Given the seriousness of the political
situation in Turkmenistan, the country strategy will be reviewed
within one year rather than the normal two years. If Turkmenistan
is found non-compliant with Article I of the Bank's mandate, Directors
will need to make recommendations to the Board Governors on what
further action should be taken.
Recommendation 23
We recommend that the FCO consider how to
provide a programme of assistance to the parliaments of the region.
(Paragraph 143)
Have there been any developments?
99. The Government continues to believe
in the importance of strengthening parliamentary democracy in
the region, including through close contact between the UK parliament
and parliamentary groups, parliaments and parliamentarians in
the region. The Westminster Foundation, which receives funding
from the FCO, continues to play an important role in developing
political parties and democratic pluralism. The IPU has invited
Georgian parliamentarians to visit the UK later this year. An
IPU delegation visited Kazakhstan in June 2000, and a delegation
plan to visit Kyrgyzstan in 2001.
Recommendation 25
We recommend that the United Kingdom open
an Embassy to the Kyrgyz Republic in Bishkek. (Paragraph 152)
What is the latest thinking on representation
in Bishkek?
100. The FCO agree that it would be desirable
to open an Embassy in Bishkek, if resources permit. The FCO is
looking at this possibility, in the context of competing pressures
on available finances.
Recommendation 26
We recommend as a first step that the FCO
approach the German government about the possibility of creating
a permanent British diplomatic presence in the German Embassy
in Dushanbe. (Paragraph 153)
What is the latest thinking on representation
in Dushanbe?
101. The Government will continue to review
possibilities for establishing a British diplomatic presence in
Dushanbe, including the Committee's recommendation that the FCO
approach the German government about a possible presence at the
German Embassy. However, the current security situation in Tajikistan
rules out any British presence there for the time being, and FCO
travel advice remains that British nationals should not travel
to Tajikistan.
Recommendation 28
We recommend that the FCO should ensure that
the demands placed upon posts of the size of those in the region
are regularly reviewed, and that they are no more than are absolutely
necessary. (Paragraph 156)
What decisions have been taken to relieve burdens
on smaller posts as a consequence of FCO's regular reviews?
102. The FCO continues to look for ways
of reducing the administrative burden on small posts, consistent
with effective financial control. Individual posts' difficulties
and proposals for improvement are to be discussed at a regional
heads of mission conference in March 2001.
Recommendation 29
While we welcome the creation of new posts
in the Embassies in the South Caucasus and Central Asia, we recommend
that the FCO continue to monitor closely staffing levels in the
region and the demands made upon staff. (Paragraph 158)
Have there been any changes in staffing levels
that have happened or are planned?
103. The FCO monitors staffing levels at
Posts continually. A new Second Secretary position has been created
at Baku to strengthen the post's political section. A Defence
Attache position has been identified for Central Asia. HMC&E
have agreed to fund a drugs liaison officer for the region and
a decision will shortly be taken on location. The FCO and Trade
Partners UK are also considering the appointment of a senior official
to strengthen regional commercial services in the oil and gas
sector.
Recommendation 30
The Committee recommends that the FCO review
its Embassy buildings in the region and satisfy itself that each
is an appropriate base both for its staff and for the United Kingdom's
public diplomacy. (Paragraph 162)
Have there been any changes in estate that
have happened or are planned?
104. The FCO continues to keep under review
the suitability of its Embassy buildings in the region. We expect
to start conversion of an existing building into a new Embassy
in Yerevan next year; office accommodation in Baku is being enhanced;
an extension to the Embassy in Tbilisi was completed in January
and we are reviewing the case for a new Embassy site; we are acquiring
office space adjacent to the Embassy in Almaty to respond to the
growing demand for visas; a contract to improve Embassy accommodation
in Ashgabat has just been completed, and work on new accommodation
on a new site, to be followed by a new Embassy building, will
be put to tender in December.
Recommendation 31
We recommend a more extensive programme of
co-ordinated ministerial vists to the region. (Paragraph 164)
Have there been any ministerial visits that
have happened or are planned?
105. The FCO continues to look for every
opportunity to further our commercial and other interests in the
region through Ministerial visits. The FCO also remains ready
to facilitate visits to the region by members of the devolved
administrations. Keith Vaz visited Yerevan in October 1999 for
the funerals of the murdered Prime Minister and Speaker; the Foreign
Secretary visited Tbilisi in February 2000; the Minister of State,
DETR, Nick Raynsford led a BCB Mission to Kazakhstan in June 2000;
Minister of State, Scotland Office, Brian Wilson visited Baku
in June 2000 for the Baku Oil and Gas Exhibition; FCO Minister
of State John Battle visited Kazakhstan in October 2000 for the
Kazakhstan International Oil and Gas Exhibition and Conference.
The Parliamentary Under-Secretary of State at DFID, George Foulkes,
visited Kazakhstan in October 2000.
Recommendation 32
We recommend that the British Council open
offices in Yerevan, Bishkek and Astana, and give consideration
to enhancing the work of the English Language Centre in Turkmenistan.
In our earlier Report on FCO Resources we recommended an increase
in British Council funding. We now recommend that increased funding
should include the revenue and capital funding necessary to enable
the Council to establish a properly-resourced and permanent presence
in Armenia, the Kyrgyz Republic and Turkmenistan. (Paragraph 178)
What progress has been made?
106. As a result of the British Council's
review of its operations in the region it plans to place a "UK-based"
Country Director in Tbilisi by the end of the year; it has decided
to open a Country Directorate in Yerevn; and its Board of Management
has considered the question of opening in Bishkek, Kyrgyzstan,
but has decided that it has other, greater priorities.
Recommendation 33
We believe that in principle the BBC World
Service should seek to ensure that World Service programming reaches
as wide an audience as possible. To that end we recommend that
the World Service establish services in Georgian and Armenian.
(Paragraph 182)
What progress has been made?
107. At FCO request the BBC reviewed their
position on Georgian and Armenian language services this year,
but concluded that they did not yet have sufficient resources
to establish full language services. The FCO will continue to
discuss the matter with the BBC.
Recommendation 34
We recommend that the Government continue
to press the Government of Uzbekistan to reinstate BBC World Service
access to medium wave transmitting facilities. (Paragraph 183)
What progress has been made?
108. The Government continues to believe
that the BBC World Service plays an essential role in promoting
democracy, stability and human rights in Uzbekistan. The matter
was raised most recently with the Uzbek Foreign Minister by Sir
John Kerr during his visit to Tashkent in March 2000. The Uzbek
authorities have not so far allowed the BBC any satisfactory Medium
Wave rebroadcasting facilities. Our Embassy in Tashkent continues
to press them.
Recommendation 35
We believe that it is important that World
Service programming be as widely received as possible. We recommend
that the Government work with the World Service to seek to lift
broadcasting restrictions where they exist. We also recommend
that the World Service seek to work as closely as possible with
Embassies throughout the region in order to secure adequate rebroadcasting
facilities. (Paragraph 185)
What progress has been made?
109. The FCO will continue to work with
the BBC World Service for the removal of broadcasting restrictions
in the region, and for adequate rebroadcasting facilities. The
BBC now have access to a Medium Wave transmitter in Kazakhstan
from which they can broadcast their Uzbek service as far as Tashkent.
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