14 Relations between the EU and Iraq
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| Commission Communication: EU and Iraq: a Strategic Framework
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| Legal base | — |
| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 14 June 2004
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| Previous Committee Report | None
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| To be discussed in Council | 17-18 June European Council
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| Committee's assessment | Politically important
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| Committee's decision | Cleared, but information on progress requested
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Background
14.1 Elsewhere in this Report we clear an overall EU strategy
for the Mediterranean and Middle East.[27]
That strategy includes the development of the EU's relations
with the new authorities in Iraq, after the transfer of sovereignty
on 30 June 2004. This latter is dealt with in more detail in
the Commission's Communication of 9 June, "The European Union
and Iraq: A Framework for Engagement".
14.2 In his helpful Explanatory Memorandum of 14
June, the Minister for Europe (Mr Denis MacShane) sees this transfer
and the reinforcement of the central role of the UN as offering
"opportunity for the EU to support Iraqi efforts to give
their country a fresh start". He summarises the Commissions
proposals thus:
"The Communication suggests that the EU should
establish engagement over the immediate, short and medium term.
It further recommends that the EU Member States, the Commission
and the High Representative work together as well as in full co-ordination
with the United Nations and the International Financial Institutions.
"It suggests three medium term objectives:
- The development of a stable
and democratic Iraq;
- The establishment of an open, stable, sustainable
and diversified market economy; and
- Iraq's economic and political integration into
its region and the open international system.
"The Communication suggests the EU takes action
in three phases:
— Phase
One includes, inter alia, the establishment of informal political
dialogue, support for elections, economic assistance and the
on-going implementation of the €305 million package of humanitarian
and reconstruction assistance;
— Phase Two would start after elections
(due no later than January 2005) and would include, inter alia,
the launch of formal political dialogue with the elected Transitional
Government, assistance in areas of mutual interest, continued
support for Iraq's engagement within its region and the expansion
of technical assistance and capacity building programmes; and
— Phase Three would include, inter alia,
the start of negotiations for an EU/Iraq Agreement, targeted assistance
on economic diversification and poverty reduction, and the continuance
of existing action in support of democratisation, human rights
and rule of law".
The Government's view
14.3 The Minister says that: "We strongly believe
that it is essential that the EU re-engages with Iraq. This will
send an important signal of the increasing normalisation of Iraq's
relationship with the international community", and that
such "an early signal from the EU for engagement with the
Interim Iraqi Government after 30 June 2004 will offer support
to the task they, along with the UN, have set themselves to establish
a democratically elected Iraqi Government". The Commission
Communication is, he says, "broadly in line" with the
Government's thinking: "Its recommendations tally with the
areas where the Government believes the EU will be able to add
value to the engagement of the international community with Iraq.
This is also consistent with the recommendations under UNSCR 1546
for greater international support for Iraq".
14.4 In particular, the Minister says, "the
Government would like to see the early establishment of informal
political dialogue, for example engagement between the EU Troika
and Iraq. We also believe that early support from the international
community, including the EU, to aid capacity building within Iraq
is vital. Continued support from the EU, and the engagement of
the international community, is vital to aid the emerging multilateral
framework to assist with reconstruction and capacity building
within Iraq". The Government recognises "that the speed
of implementation will depend on an improving security situation
in Iraq. We therefore welcome the flexible approach suggested
by the Commission that will establish engagement with Iraq as
quickly as possible and includes recommendations to help the Interim
Government address security". In sum, the Government believes
that "this is the right moment for the EU to establish a
medium term strategy for its engagement with Iraq" and "welcome[s]
the Commission approach and the broad initial support it has received
from Member States".
14.5 Finally, the Minister notes that the Communication
will form the basis for discussion at the European Council on
17-18 June and that it is likely that it will also be discussed
at the June and July General Affairs and External Relations Councils.
Conclusion
14.6 We have no questions to ask of the Minister
at this stage, and clear the document. But this is very much a
work-in-progress, including a number of uncertainties —
above all, whether, how quickly, and for how long, circumstances
will permit the EU to engage in the process envisaged in the Communication.
We hope for the best, but must not overlook the worst, given
recent history in Iraq. We accordingly ask the Minister to keep
us informed of developments in the EU's relationship with Iraq,
and note that we may seek an opportunity for debate at a later
stage if the situation in Iraq were to deteriorate rather than
improve.
27 See para 12 above. Back
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