Memorandum from the Foreign and Commonwealth
Office
RESPONSE TO QUESTIONS FROM THE COMMITTEE
(SHOWN HERE IN ITALICS), 13 AND 22 MAY 2003
IRAQ
"The Consistency of coalition actions in
Iraq with the requirements of the Fourth Geneva Convention 1949
and the Hague Regulations 1907. In particular, the Committee wishes
to be in a position to judge whether the US and UK have met in
full their obligations to ensure food and medical supplies for
the civil population, to ensure and maintain public health and
hygiene, and to ensure public order and safety; and how the occupying
powers have ensured that actions taken by them to create a functioning
administration and to introduce democratic characteristics into
Iraqi political structures have not gone beyond what is permitted
under international law."
"What role is the United Kingdom playing
in ORHA? How many UK personnel are serving in ORHA, and in what
capacities?"
1. The reasons for the Government's decision
to take part in Coalition military action against Iraq were set
out by the Prime Minister in the House of Commons on 18 March.
2. Under article 43 of the Hague Regulations
Respecting the Laws and Customs of War on Land, an Occupying Power
is required to take all measures within its power to restore and
ensure, as far as possible, public order and safety, while respecting
unless absolutely prevented the laws in force in the country.
3. The Fourth Geneva Convention (1949),
which is concerned with the welfare of civilians, imposes broad
obligations on an Occupying Power to maintain orderly government
of the territory and to ensure its own security. In addition the
Convention provides for a number of further specific obligations
to the civilian population.
4. The Government has at all stages made
every effort to comply with its responsibilities under the Fourth
Geneva Convention and the Hague Regulations.
Humanitarian Provision
5. Since the present conflict, the UK has
made available a total of £240 million for humanitarian assistance
in Iraq:
— The Ministry of Defence has allocated
£30 million for British forces to provide humanitarian assistance
in line with our obligations under the Geneva Convention and the
Hague Regulations.
— The Department for International
Development has committed £210 million for humanitarian assistance,
of which £115 million has been allocated to support the United
Nations humanitarian agencies, non-governmental organisations,
and appeals by the Red Cross/Red Crescent. Of this, £84 million
had been disbursed as of 6 June 2003.
6. A further £60 million has been set
aside by HM Treasury from the Reserve.
7. In addition, the UK provides 19% of European
Union funding for Iraq. The European Union has so far committed
100 million in support of emergency assistance to
Iraq.
8. There were severe humanitarian difficulties
in Iraq before the conflict. Sixty per cent of Iraqis depended
on the UN's Oil for Food Programme. World Food Programme (WFP)
reports indicate that the amount of food distributed by the Oil
for Food Programme (OFF) prior to the start of the conflict varied
by region. However food stocks have not and are not expected to
run out in Iraq—although there are shortages of some commodities
such as milk powder and salt. DFID has provided a total of £33
million to the World Food Programme since the start of the crisis,
of which £7 million is to procure pulses and cooking oil.
On 1 June the Iraqi Ministry of Trade, which like all Iraqi Ministries
is under Coalition control, began distributing food brought into
Iraq by WFP to assist nearly 27 million Iraqis nation-wide.
9. The World Health Organisation (WHO) is
monitoring medical supplies. Its latest assessment is that there
is not an overall shortage of medical supplies in Iraq, though
there are shortages of drugs for a few specific conditions. DFID
is supporting the Iraqi Ministry of Health through WHO and other
humanitarian agencies to reactivate the former drug distribution
system to address these shortages.
10. Maintaining clean water supplies has
been an immediate concern. The International Committee of the
Red Cross (ICRC) and others, including the UK military, have done
a great deal of work to repair water and sanitation facilities,
and to supply water by alternative means while supplies are disrupted.
The situation in many parts of the country including Basra, Kirkuk
and Mosul is now improving. Baghdad is receiving between 55 and
70% of pre-war supplies. Sewage removal is recognised as a major
outstanding problem, which the Coalition Provisional Authority
(CPA) has begun to address with greater urgency.
11. Since the conflict there has been some
increase in the number of reported cases of water-related diseases
in many locations. This is due to a combination of normal seasonal
trends including the start of the hot season, difficulties in
the supply of safe water, and poor sanitation. However, since
the end of conflict water supplies have improved and there have
been no reported deaths from Cholera. The Iraqi Ministry of Health,
WHO, UNICEF and NGOs are currently conducting assessments, and
are drawing up an action plan to deal with outbreaks of water-related
diseases. UNICEF pre-positioned an extra 200,000 sachets of oral
rehydration salts in the region to deal with diarrhoeal disease
outbreaks. DFID has donated cholera kits, sufficient to treat
11,000 people, and emergency health kits, sufficient for 10,000
people for three months, to WHO to assist their response as and
when required.
Maintenance of Security
12. Since the liberation of Iraq, UK forces
have been working to restore security through a number of means
including patrols, vehicle checkpoints and static guarding. Sites
currently being guarded by UK forces include key government buildings
and public record offices. However, our overall approach is to
re-establish local police and guard forces that will initially
be trained and overseen by UK forces.
13. The UK and the US have been working
with the international community to provide a multinational stabilisation
force in Iraq. The US will be in overall command in Baghdad and
the central sector and the UK will command a multinational division
in the south. More than 20 nations are expected to serve in Iraq,
with nine represented in the UK area (Italy, the Netherlands,
Denmark, the Czech Republic, Romania, Portugal, Norway, Lithuania
and New Zealand). Some states have already deployed.
14. Throughout the military campaign, Coalition
forces have taken care to ensure that damage to museums and other
sites of historic, archaeological or cultural importance has been
minimised. Ground troops were briefed on the need to be especially
careful while conducting operations in the vicinity of these sites.
15. Since 1 June, a number of Iraqi courts
have been operating with the assistance of UK forces.
Civil administration
16. The Coalition Provisional Administration
(CPA) was set up at the beginning of June. It is responsible for
civil administration and reconstruction work, and for facilitating
the political processes outlined below. It is led by President
Bush's special representative in Iraq, Ambassador Paul Bremer.
The CPA is working closely with Iraqis to restore normal functioning
to Iraqi ministries and regions. The CPA has around 1,000 staff
working in Baghdad, and regional offices in northern, south central
and south-east Iraq. The latter area is coterminous with the UK
military area of responsibility. It is led by a senior Danish
official with a UK deputy and UK civilian secondees. Wider international
support has been provided by countries including Australia, Spain,
the Czech Republic, Korea, Romania and Japan.
17. The UK is providing strong practical
support to the CPA. We now have over 70 UK officials seconded
to Baghdad, Basra and the north of Iraq, working in a variety
of fields, including health, education, governance, police reform
and culture. Their efforts are making a real difference to the
performance of the CPA. Andy Bearpark, a senior ex-DFID reconstruction
expert arrived in Baghdad on 16 June to serve as CPA Director
of Operations. He will play a key role in better focussing the
work of the CPA on meeting the immediate needs of the Iraqi people.
18. The United Kingdom Special Representative
for Iraq, Ambassador John Sawers, is working closely with Ambassador
Bremer on the political and reconstruction processes. He will
be succeeded as UK Special Representative by Sir Jeremy Greenstock
in September.
19. We are also focussing on providing senior
officials to the CPA's Security Sector Reform (SSR) work led by
Walt Slocombe. We will be looking to promote the wider involvement
of others with a contribution to make, including EU partners and
Arab countries.
Political Process
20. United Nations Security Council Resolution
1483 "Supports the formation, by the people of Iraq with
the help of the Authority and working with the Special Representative,
of an Iraqi interim administration as a transitional administration
run by Iraqis, until an internationally recognised, representative
government is established by the people of Iraq and assumes the
responsibilities of the Authority".
Intensive consultations are taking place in
Iraq between Coalition representatives, including the United Kingdom
Special Representative for Iraq, and representatives of Iraqi
interest groups and political parties. The United Nations Special
Representative Sergio Vieira de Mello has also recently arrived
in Baghdad and we expect him also to play a central role in the
political process. A group of Iraqi political leaders have constituted
themselves as a "Leadership Group" to work with the
Coalition to carry forward the political process. The Coalition
has held two larger-scale meetings with Iraqis, in Nasiriyah on
15 April and in Baghdad on 28 April.
21. The consultations undertaken so far
indicate that interim political structures and processes will
need to perform a number of distinct functions:
— Iraqi involvement in the day to day
civil administration of Iraq in co-operation with the CPA.
— Paving the way for the establishment
of a viable Iraqi government to replace the CPA.
— Carrying out essential political
functions in the interim such as reform of the Constitution.
We expect a political process to be launched
in the coming days. This is expected to comprise two key elements:
— A Political Council, to assist the
CPA in the immediate tasks of running the civil administration.
Its responsibilities will increase over time; an early task will
be to nominate new Iraqi interim ministers to help run government
ministries. The Political Council to create special commissions
on cross-cutting issues (eg judicial reform, human rights).
— A Constitutional Conference. This
is likely to have a larger membership, and to be in place by mid-July.
It will draft and debate a new Iraqi constitution. This will be
approved by referendum, paving the way for eventual free elections.
22. The UK's objectives are that such processes
and structures should be legitimate, viable and credible. The
key interest groups in Iraq must be effectively represented, including
women; they must be effectively consulted and involved in decision-making
on interim arrangements. An interim authority must be established
in accordance with Resolution 1483.
23. The effective representation of women
in the political processes and structures of post-Saddam Iraq
is an important part of the Government's vision for Iraq as the
Prime Minister made clear at the Azores Summit. We are taking
every opportunity to promote this agenda in our contacts with
Iraqis, discussions within the coalition, and more widely. A gender
expert from the Women and Equality Unit has been seconded to the
Coalition Provisional Authority and, in collaboration with Iraqi
women and other officials in Iraq, is working to ensure women's
full and equal participation in the Iraqi political and reconstruction
process.
UN Authorisation
24. On 22 May the United Nations Security
Council adopted Resolution 1483. The Resolution was based closely
on a draft tabled by the US, UK and Spain. In summary, the Resolution:
— recognises the rights and responsibilities
of the US and UK as occupying powers;
— gives the UN a vital role through
wide-ranging responsibilities for a Special Representative of
the Secretary General, who is given a specific mandate in such
areas as the political process, humanitarian activities, economic
reconstruction and promotion of human rights;
— foresees a political process leading
to an internationally recognised, representative government of
Iraq;
— calls on other UN member states and
international organisations to play their part in fulfilling the
resolution's aims, including ensuring security and stability;
— ends all sanctions, other than the
arms embargo;
— arranges for the orderly wind-up
of the Oil for Food Programme;
— ensures that oil sales are made in
accordance with international best practice;
— creates the Development Fund for
Iraq to disburse oil revenues;
— provides that these funds can only
be spent to meet the humanitarian needs of the Iraqi people, for
the economic reconstruction and repair of Iraq's infrastructure,
for the continued disarmament of Iraq, and for the costs of Iraqi
civilian administration, and for other purposes benefiting the
people of Iraq;
— creates an International Advisory
and Monitoring Board to oversee oil sales and spending by the
Development Fund, with representatives of the UN, IMF and World
Bank, and regular reporting to the Security Council;
— places an obligation on all UN Member
States to assist in bringing to justice those responsible for
crimes under the former Iraqi regime; and
— obliges all Member States to take
action to prevent trade in stolen Iraqi antiquities.
25. The Secretary General has since appointed
the UN High Commissioner for Human Rights, Sergio Vieira de Mello,
as his Special Representative. De Mello arrived in Baghdad on
2 June. We are offering him our full support. His immediate priorities
include assessment of the situation on the ground, the needs of
the people of Iraq and the areas where the UN and international
organisations can add most value. He will also work on behalf
of the Secretary General to facilitate the political processes
leading to an internationally recognised, representative government
of Iraq.
26. In order to ensure that actions taken
by the Occupying Powers to create a functioning administration
accord with the international law of occupation, ORHA/CPA has
an Office of Legal Counsel to provide legal advice in this respect.
Procedures have been established for pre-promulgation scrutiny
of legislative and other legal acts of the Coalition Provisional
Authority.
27. Whilst the introduction of democratic
changes in government can not be imposed by the Occupying Powers,
this does not affect the rights of the Iraqi people themselves
to develop their own systems of government. It is therefore permissible
for the Occupying Powers to play a facilitating role in relation
to reforms genuinely undertaken by the people of Iraq themselves.
During the period prior to the passage of Resolution 1483 the
CPA did not seek to impose such changes in government on Iraq.
28. Since the passing of United Nations
Security Council Resolution 1483, the question of the UK's responsibilities
in respect of political reform is no longer governed solely by
the law of occupation. The resolution makes clear that the eventual
aim of the political process in Iraq should be the formation by
the people of Iraq of a representative government based on the
rule of law that affords equal rights and justice to all Iraqi
citizens. To that end, Resolution 1483 supports the formation
of an Iraqi interim administration by the people of Iraq, with
the help of the CPA and working with the UN Special Representative,
as a transitional administration run by Iraqis, until a representative
Government is established by the people of Iraq assumes the responsibilities
of the CPA. The precise modalities as to how this shall be put
into effect are still developing, but they will be based upon
the provisions of Resolution 1483.
"In your letter of 22 April[4]
you set out the position of an occupying power under the Fourth
Geneva Convention and the Hague Regulations. No mention was made
in the letter of the requirement for United Nations authority
for the occupying powers to exercise some of their functions.
When did the Government conclude that UN authority would be required,
and was the advice of the Attorney General sought when the FCO
compiled its reply of 22 April?"
29. The FCO's letter of 22 April was confined
to the scope of authority of Occupying Powers under the law of
occupation because this is what was requested in the Committee
Assistant's letter of 8 April. The Committee asked for information
on what Occupying Powers are able to do under the law of occupation.
There is no legal requirement under the law of occupation for
UN authorisation to enable an Occupying Power to exercise its
functions. UN authority is only required to enable an Occupying
Power to take actions that are not otherwise authorised by the
law of occupation. It was evident from the reply given to the
Committee that further authority in the form of a Security Council
resolution would be required to enable the Occupying Powers to
go beyond their normal scope of authority under the law of occupation.
30. The Attorney General was consulted on
the terms of the FCO's reply to the Committee Assistant's letter
of 8 April.
"United Kingdom Policy with respect to Iraq's
Neighbours. In particular, the Committee wishes to know what initiatives
the UK has been pursuing in relation to Iran and Syria, and to
what extent those countries have helped or hindered the establishment
of order in Iraq."
Iran
31. The UK seeks to support reform in Iran
through a twin-track policy of critical engagement and robust
dialogue on matters of concern.
32. As part of this engagement, there have
been more ministerial visits in the last couple of years than
at any time since the revolution. The Foreign Secretary has visited
Iran three times. Mr O'Brien visited last month, and the Iranian
Foreign Minister Dr Kharrazi visited the UK in early February.
The Finance Minister, Mr Mazaheri, is planning to visit the UK
at the end of June/beginning of July.
33. The deeper UK-Iran relationship has
brought benefits. Iran has adopted a positive attitude on Afghanistan,
where we have shared objectives, to the benefit of both Afghanistan
and regional stability. Bilateral co-operation on drugs is excellent.
On the commercial front, we are close to finalising an Investment
Promotion and Protection Agreement.
34. The UK is closely involved in the EU-Iran
negotiations on a Trade Co-operation Agreement (TCA). A third
round of talks took place in Tehran earlier this month, in parallel
with Political Dialogue talks. However, we have consistently made
clear to the Iranians that progress on a TCA is conditional on
progress on political dialogue and reform: the two are "interdependent,
indissociable and mutually reinforcing elements of the global
approach which is the basis for progress in EU-Iran relations"
(EU General Affairs Council (GAC) in June 2002). We did so most
recently at the June 2003 GAC: "deepening of economic and
commercial relations between the EU and Iran should be matched
by similar progress in all other aspects of the EU's relations
with Iran".
35. But there are still grounds for concern.
There are disquieting reports that Iran may be developing Weapons
of Mass Destruction. Together with the other G8 countries we addressed
the proliferation implications of Iran's advanced nuclear programme
at the Evian summit. The June 2003 GAERC stressed the need for
Iran to answer timely, fully and adequately all questions raised
regarding its nuclear programme. The Council called on Iran to
co-operate fully with the IAEA and to conclude and implement urgently
and unconditionally an Additional Protocol to their comprehensive
safeguards agreement with the IAEA under the Non-Proliferation
Treaty.
36. Though there has been some progress
on human rights, abuses are still relatively widespread. Positive
progress on these issues is essential if the relationship is to
deepen further. The June 2003 GAC expressed specific concern about
the handling of demonstrations.
37. We suspect Iran continues to support
rejectionist groups opposed to the Middle East Peace Process,
and there are concerns about the presence of Al Qaeda in Iran,
as in other countries in the region. The Government of Iran is
strongly opposed to Al Qaeda and the Iranians have said they have
arrested some members of the Al Qaeda network. We are urging them
to do more.
Iran/Iraq
38. he Iranians have been generally supportive
on Iraq. We appreciated Iran's restraint in not intervening during
the conflict. Iran in return benefited from the removal of Saddam
Hussein from power. We believe that Iran's interests will be well
served by a stable and prosperous Iraq with equal rights for Shia
Muslims, universal participation in political processes and a
less aggressive government in Baghdad. In addition, coalition
forces have enforced the surrender of the Iranian Mojahedin opposition
terrorist group (MeK).
39. But problems remain. First, the Iranians
believe the MeK has not surrendered completely on the ground;
and fears there may be some truth in MeK propaganda claiming that
there is a deal between the US military and the MeK. We have assured
them this is not so. The MeK is a proscribed terrorist organisation
in the US as well as in the UK. Second, there are uncertainties
about longer-term Iranian intentions in Iraq now that the conflict
is over.
Syria
40. The UK is committed to a policy of constructive
and, where necessary, critical engagement with Syria, which allows
us to support reform while maintaining a robust dialogue on issues
of concern. On post-conflict Iraq, we have sought to include Syria
in our thinking. During his last visit to Damascus (14-15 April)
Mike O'Brien discussed the issue at some length with President
Bashar Al-Assad. The Syrians have not attempted to hinder our
efforts to establish order in Iraq.
41. The UK and US have made clear to Syria
that they should not give shelter to senior Iraqi figures. The
Syrians deny that they are doing so and have announced the sealing
of their borders to prevent Saddam loyalists entering. All Iraqis
entering Syria now require visas.
"Is FCO satisfied that its diplomatic presence
in Baghdad was established with sufficient speed as hostilities
ended, and at an appropriate level? How does the UK's diplomatic
response compare with that of other countries? What is the division
of responsibilities between the UK Special Representative and
the Head of the British Office in Baghdad?"
42. The British Office in Baghdad opened
in May, headed by Christopher Segar, a senior Diplomatic Service
officer. The team consists of four UK based staff at present,
but as plans for transition to an Iraqi interim administration
develop, so too will options for upgrading the status of the Office.
The team are initially focusing on developing contacts with Iraqi
bodies, and contacts with the CPA, the UN, NGOs and others working
on the reconstruction of Iraq and the transition to an Iraqi interim
administration. As the situation stabilises, we will increase
staffing of the office and extend the range of services on offer,
in line with other UK diplomatic missions. These will include
consular and visa services. The Office has a particularly important
role in assisting British companies who wish to do business in
Iraq, especially those involved in reconstruction and humanitarian
assistance.
43. Due to the poor condition of the old
Embassy premises, the staff are housed in "flat pack"
accommodation, which consists of container units adapted for office
and residential accommodation for four staff, plus the necessary
IT and communications equipment. In due course, the containers
will be replaced by a medium-term prefabricated embassy and village
for approximately 40 staff.
44. At present some 22 countries have some
form of diplomatic representation in Iraq, but the security and
political situation has generally prevented the resumption of
normal diplomatic activities.
45. The Head of the British Office in Baghdad
is responsible for promoting the UK's bilateral interests in Iraq.
The Special Representative's role is to work with Iraqis, with
Coalition partners and with other representatives of the international
community to help and guide the political processes leading to
the establishment of an interim administration.
"What legal process is envisaged for dealing
with crimes against humanity by the Baathist regime, evidence
for which is now being uncovered?"
46. UK forces have been tasked with securing
and protecting evidence of legacy crimes as they encounter it,
to hand over to the relevant prosecuting authority at the appropriate
time. We have sent a team of nine forensic experts from the NGO
Inforce to Iraq to investigate legacy crimes and mass graves and
to make recommendations for further UK and CPA assistance in this
area. The team will draw up a longer term strategy for dealing
with forensically important sites in Iraq. The UK has also sent
an expert from the NGO Indict to advise on a strategy for investigating
legacy crimes.
47. We have always believed that those who
have been responsible for genocide, crimes against humanity and
war crimes should be brought to justice. We believe that it should
be for the Iraqi people to decide how this might be done, with
suitable international help. A series of mechanisms might be required,
ranging from special courts to truth and reconciliation commissions.
48. Ann Clwyd MP was appointed by the Prime
Minister as his Special Envoy to Iraq on Human Rights on 24 May.
She travelled to Iraq on 29 May to investigate the human rights
situation on the ground, including visiting some of the mass graves
where the victims of Saddam's regime were buried. She will report
back directly to the Prime Minister.
"Is the Government confident that Iraqi nuclear
sites, such as al-Tuwaitha, have been made fully secure? Are reports
that radioactive material has been looted from these sites accurate?
What steps are being taken to ensure that such material does not
find its way into the wrong hands?"
49. Al-Tuwaitha is in the US area of responsibility.
We have seen several media reports of alleged looting at al-Tuwaitha.
We have followed these up with the IAEA, and with the US authorities.
An IAEA safeguards team has recently visited al-Tuwaitha to establish
the situation, and to see if any IAEA seals have been broken.
Their findings were not available at the time of writing.
Iraq and Terrorism
50. Iraq had a long record of support for
terrorism. This included support for radical Islamic groups such
as the Syrian Muslim Brotherhood, Palestinian terrorist groups
(eg Abu Nidal), the activities of the MeK against Iran, payments
to the families of suicide bombers as well as the assassination
of political opponents in Iraq and abroad. There was some intelligence
evidence about linkages between members of al-Qaeda and people
in Iraq. The large number of official Iraqi documents secured
by coalition troops in Iraq may or may not include references
to links between the Iraqi regime and Al Qaeda. We are working
on analysis of these documents, which will take some time. We
are also actively seeking to establish whether claims made by
some newspapers of documents showing Al Qaeda/Iraq links, are
genuine. We would welcome sight of any documents discovered by
journalists or private individuals, so that experts can analyse
those too. We cannot guarantee we would be able to publicise the
results of that analysis. But if it transpires that we can share
any new insights with the FAC, then we will do so.
AFGHANISTAN
"What is the current security situation in
Afghanistan? Does Afghanistan continue to threaten regional stability,
and do terrorist groups continue to operate there? Are there any
proposals to expand, contract or otherwise alter the UK's involvement
in Afghanistan?"
51. The security situation in Afghanistan
remains fragile. We condemn in the strongest possible terms the
attack against ISAF in Kabul on 7 June which resulted in the deaths
of four German soldiers. There have also been other worrying developments:
the murder of an ICRC worker and an Italian tourist in March;
attacks on UN demining teams. There is also evidence that Taliban/Al
Qaida remnants and other opposition forces have regrouped and
are operating more effectively in the south and south-east. But
attacks remain sporadic—and do not appear to constitute
an organised offensive. It is recognised that much of Afghanistan's
borders are poorly policed and that this may facilitate the movement
of terrorists into and out of the country.
52. The UK, international partners and the
Transitional Administration are working together to prevent Afghanistan
from once again becoming a safe haven for terrorism, both through
continuing Coalition military commitments and through support
for rebuilding Afghanistan's economy and society.
53. Significant UK involvement in Operation
Enduring Freedom missions on the ground in Afghanistan ended with
the withdrawal of 45 Commando on completion of its three month
tour in June 2002. The UK currently contributes around 300 personnel
to the International Security Assistance Force (ISAF) under joint
German/Dutch leadership. The UK is committed to maintaining the
UK contribution at this level when NATO takes over the command
and control function in August.
54. As announced to Parliament by the Secretary
of State for Defence on 8 May, the UK will lead a Provincial Reconstruction
Team (PRT) in Mazar-e-Sharif from July. This will involve around
60 UK military personnel as well as representatives from the FCO
and DfID. The US has already successfully deployed PRTs to three
regions: Gardez, Bamian and Kunduz. PRTs aim to help extend the
authority of central government beyond Kabul and facilitate security
sector reform and reconstruction by contributing to improved security
in the regions.
55. The UK is making a significant contribution
to rebuilding the Afghan security sector with over £13 million
disbursed last year to support work with the Afghan National Army,
Police, judicial reform, and human rights processes. A further
£16 million is planned for support to security sector reform
this year with an additional £25 million allocated for counter-narcotics
work.
56. Support from Afghanistan's neighbours
will be crucial to Afghanistan's further development. Afghanistan
has long suffered as the pawn in international and regional disputes,
and has been a victim of unwanted interference from its immediate
neighbours. The signing of the Kabul Declaration on Good Neighbourly
Relations by Afghanistan and neighbouring states in December 2002
marked the beginning of a new chapter. Neighbours pledged to support
Afghanistan in her reconstruction effort and to cooperate in areas
of mutual concern. Most importantly, Afghanistan and her neighbours
pledged to ensure mutual respect for, and non-interference in,
each others' borders and internal affairs. We have offered the
Transitional Administration support in setting up a series of
meetings of the Good Neighbourly Relations Declaration signatories
to discuss practical co-operation in key areas.
MIDDLE EAST
PEACE PROCESS
"The Middle East `Road Map'. In particular,
the Committee wishes to learn what recent contacts there have
been between the United Kingdom and the Israeli Government on
the one hand, and the United Kingdom and the Palestinian Authority
on the other."
57. The Government remains committed to
revitalising the Middle East Peace Process, implementing the Quartet's
roadmap and achieving a two-state settlement, as anticipated in
the roadmap, in 2005.
58. The Prime Minister and the Foreign Secretary
have been in frequent contact with the parties, the US and EU
colleagues in pursuit of these objectives. UK diplomacy, including
a series of contacts between the Prime Minister and the Foreign
Secretary and Palestinian leaders, played a key role in facilitating
the appointment of a Palestinian Prime Minister and the publication
of the roadmap. Subsequently we have used contacts with the Palestinians
to encourage them to play their part in implementation of the
roadmap. The Prime Minister spoke to Abu Mazen most recently on
18 May.
59. The Prime Minister and the Foreign Secretary
met Israeli Foreign Minister Shalom on 15 May when he visited
London, and made the case for Israel to work with the international
community to revitalise the peace process. The Prime Minister
telephoned Israeli Prime Minister Sharon most recently on 27 May
and the Foreign Secretary telephoned Israeli Foreign Minister
Shalom on 27 May.
60. In addition, FCO officials are in frequent
contact with the Israeli Government and the Palestinian Authority.
The Permanent Under Secretary spoke to the Director-General of
the Israeli MFA on 21 May.
61. There has been considerable progress
since the FCO note on this subject of 22 April.
— The appointment of an empowered and
credible Palestinian Prime Minister, Mahmoud Abbas, on 29 April.
— Publication of the roadmap on 30
April.
— Acceptance of the roadmap by the
Palestinians.
— The Israeli Cabinet's decision on
25 May to accept the roadmap.
— US/Arab Summit in Sharm el-Sheikh
on 3 June.
— President Bush's meeting with the
Israeli and Palestinian Prime Ministers in Aqaba on 4 June.
62. We welcome President Bush's personal
engagement as demonstrated by the summits at Sharm el-Sheikh and
Aqaba. We welcome the commitment of the Arab leaders at Sharm
el-Sheikh to a negotiated solution and their determination to
assist, including by preventing support reaching terrorist groups.
At Aqaba, both sides made important commitments: the Palestinians
on ending terrorism and incitement, the Israelis on dismantling
settlement outposts and improving the humanitarian situation.
63. These are significant steps, creating
a real opportunity for both sides to work together to create a
brighter future for the millions of Israelis and Palestinians
who have had to live every day under the shadow of indiscriminate
violence. But both sides need to make early, visible and significant
steps to improve conditions on the ground, to build on their political
dialogue and renew security co-operation. We expect all parties
to implement the roadmap, starting with the provisions of Phase
I, which include: Palestinian action against terrorism; rebuilding
of Palestinian security infrastructure; reform of Palestinian
institutions, including constitutional reform. Israeli action
to facilitate reform; easing of the humanitarian situation in
the Occupied Territories; withdrawal of Israeli forces from Palestinian
controlled areas; and a freeze on all settlement activity.
64. Despite the progress made by both sides
we do not underestimate the difficulties they face in implementation,
and the importance of turning words into action. It is important
that the acts of extremists are not allowed to undermine progress
towards peace. We will continue to press the Israeli and Palestinian
Authorities as necessary to implement the steps set out in the
roadmap and improve the situation of ordinary Israelis and Palestinians.
65. In particular, we will continue to make
clear our deep concerns about the treatment of civilians in the
Occupied Territories by the Israeli authorities. The Foreign Secretary
raised with Silvan Shalom on 15 May the issue of civilian deaths
in the Occupied Territories, including British citizens Tom Hurndall,
James Miller and Iain Hook.
66. The international community, through
the Quartet, is committed to supporting the parties as they work
towards a just and lasting settlement. The UK stands ready to
offer any assistance we can.
COUNTER-TERRORISM
COMMITTEE
"Has the UN's Counter-Terrorism Committee
met the UK's objectives to date? What are the UK's priorities
for the CTC in the coming year?"
67. Our long-term objective is to reduce
the threat to the UK from international terrorism to create a
secure United Kingdom within a safer and more peaceful world.
The work of the CTC over its 20 months of existence (for 18 months
under UK chairmanship) has contributed to progress in its achievement.
68. The CTC has met two important objectives:
maintaining the broad consensus behind Security Council Resolution
1373 and engaging with all States (and relevant international
groupings) to focus on the need for every State to make its contribution.
The CTC has now established dialogue with all UN member states
on the need to revise or upgrade their laws to meet the requirements
of Security Council Resolution 1373. The number of countries having
ratified all 12 existing counter-terrorism conventions has risen
from two in July 2001, to 36. The CTC has also played an important
co-ordination role. It has facilitated greater international co-operation
and practical mutual assistance among states in building counter-terrorist
capacity. And this year brought together regional and international
organisations to evaluate ways in which they could enhance the
effectiveness of their action against terrorism.
69. But we recognise that there is more
to be done and it is important that the CTC maintains its momentum,
as 11 September 2001 becomes more distant. The CTC needs to develop
further its role in facilitating the provision of technical assistance
and its focus on those countries that pose particular difficulties.
With those States which already have legislation in place covering
all aspects of 1373, the CTC can now move to examine the executive
machinery to implement that legislation. To do this the CTC will
need to deepen its monitoring and consolidate its organisational
structures. The CTC will also need to be sufficiently agile to
respond to new priorities, in particular the UK would like to
see the CTC address the risks posed by potential terrorist access
to Weapons of Mass Destruction.
"What further progress has been made in cutting
off sources of finance for terrorist organisations?"
70. The UK continues to raise the issue
of terrorist financing in bilateral contacts with other governments
and we continue to develop international co-operation at the operational
level (see examples below). We continue to play a full role in
the Financial Action Task Force (FATF) which is leading multilateral
efforts to create best practice standards in this field. The FATF
has recently agreed best practice documents on wire transfers
and charity regulation and is now working on a best practice document
on alternative remittance systems.
71. The international community has frozen
over $120 million since 11 September 2001. The UK still has frozen
£345,000 following the release of previously frozen funds
to the Interim Afghan Authority. The UN has listed over 360 individuals
and entities to its list of groups and individuals affiliated
to Al Qa'ida, the Taliban or Usama Bin Laden.
72. In addition the UK has, under its international
obligations under UNSCR 1373, taken freezing action against over
30 groups and individuals (including from the West Bank and Gaza,
Colombia, and South Asia).
73. Alongside these ongoing international
efforts to encourage others to raise their standards, the Chancellor
of the Exchequer has issued freezing orders against the Al Aqsa
Foundation, adding them to the list of groups whose assets we
freeze because of their support for or involvement in terrorism.
And earlier this year, two individuals were found guilty of financing
terrorism.
"Is the Government satisfied with the current
level and quality of co-operation with the police and intelligence
agencies of other EU member states?"
74. Yes. Since the attacks of 11 September
2001, our co-operation with the relevant counter-terrorism authorities
in other EU States, which was already good, has intensified and
continues at a high level. It is inevitable that the quality and
quantity of co-operation varies between partners, not because
of lack of will but through differences in capabilities and coverage.
This co-operation continues both within the framework of the EU
and bilaterally.
75. The police also have in place the long
established and successful Counter-Terrorism and Extremism Liaison
Officer Scheme. This currently involves UK police officers with
counter-terrorism expertise being based in national police headquarters
in France, Belgium (covering Benelux), Germany, Austria (also
covering Central Europe and Switzerland) and Italy. The main purpose
of these posts is to enhance and support police co-operation in
preventing, investigating and prosecuting terrorist and extremist
activity. The UK also fully supports Europol's counter-terrorism
remit.
"What steps is the Government taking to deal
with the proliferation of terrorist techniques and instruction
manuals on the internet?"
76. The ability of terrorists to use the
internet both to communicate covertly and to spread information
such as bomb-making skills, is a key problem. The government is
considering with G8 partners how both to put in place preventative
mechanisms (eg working with service providers) and to use terrorists'
use of the internet as an intelligence tool.
Foreign and Commonwealth Office
18 June 2003
4 See Ev 69. Back
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