18 European Security and Defence Policy:
Peace Monitoring Mission to Indonesia
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(27498)
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(b)
(27504)
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Draft Council Joint Action amending and extending Joint Action 2005/643/CFSP on the European Union Monitoring Mission in Aceh (Indonesia) (Aceh Monitoring Mission - AMM).
Draft Council Decision concerning the extension of the agreement in the form of an Exchange of Letters between the European Union and the Government of Indonesia on the tasks, status, privileges and immunities of the European Union Monitoring Mission in Aceh (Indonesia) (Aceh Monitoring Mission - AMM) and its personnel
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| Legal base | Article 14 EU; unanimity (Joint Action); Article 24 EU; unanimity (agreement)
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| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 18 May 2006
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| Previous Committee Report | None; but see HC 34-v (2005-06), para 40 (12 October 2005) and HC 34-x (2005-06), paragraph 19 (16 November 2005)
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| To be discussed in Council | 12-13 June General Affairs and External Relations Council
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| Committee's assessment | Politically important
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| Committee's decision | Cleared, but further information requested
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Background
18.1 The need to deal with the aftermath of the Tsunami that devastated
large areas of the coastline of the Indonesian provinces of Aceh
and North Sumatra gave added impetus to a negotiated peace in
Aceh between the Indonesian Government (GoI) and the separatist
group, the Free Aceh Movement (GAM). Under the stewardship of
former President of Finland Ahtisaari, a peace agreement was signed
in Helsinki 15 August 2005, in the form of a Memorandum of Understanding,
between the GoI and the Free Aceh Movement (GAM), which it was
hoped signalled the end of this 30-year conflict. The MOU incorporated
the establishment of an AMM, to monitor the implementation, through
a civilian ESDP mission collaborating with the ASEAN countries
of Brunei, Malaysia, Philippines, Singapore and Thailand.
18.2 On 12 October 2005, we cleared a draft Council
Joint Action providing the basis for the establishment of the
AMM and an agreement between the GoI and the EU on its status
and that of its staff in Indonesia, which were agreed during the
Parliamentary recess in order to enable deployment by 15 September
for six months. Its principal tasks were to:
a) monitor GAM demobilisation and monitor and
assist with the decommissioning and destruction of its weapons,
ammunition and explosives;
b) monitor the re-location of non-organic military
forces and non-organic police troops;
c) monitor the reintegration of active GAM members;
d) monitor the human rights situation and provide
assistance in this field in the context of the tasks set out in
subparagraphs (a), (b) and (c) above;
e) monitor the process of legislation change;
f) rule on disputed amnesty cases;
g) investigate and rule on complaints and alleged
violations of the MoU; and
h) establish and maintain liaison and good co-operation
with the parties.
18.3 Later, the then Minister for Europe (Mr Douglas
Alexander) reported good progress at the halfway stage: the original
targets re decommissioning weapons held by the GAM and the withdrawal
of non-local troops and police from Aceh had been exceeded; amnestied
GAM prisoners were receiving government compensation, and the
first phase of rehabilitation funds had been paid out to former
GAM combatants. The leadership on both sides had demonstrated
their political commitment to the agreement. Potential spoilers
had shown few signs of wishing to wreck the agreement. The AMM
(to which the UK was contributing 11 staff) had played a key role
in this success. Co-operation between the EU and ASEAN had worked
well, with the headquarters and district officers composed of
a mix of EU and ASEAN staff.
18.4 Then, in February, in response to GOI and GAM
wishes, the Head of Mission requested a three-month extension
to allow a continued monitoring presence in Aceh until local elections,
which were expected to take place in June. The AMM would be reduced
in March from around 200 to 85, reflecting the fact that a) and
b) had been completed, leaving the mission with c) - h). A Commission
Election Monitoring Mission was expected to be deployed.
The draft Joint Action and the draft Council Decision
18.5 In his 18 May Explanatory Memorandum, the Parliamentary-Undersecretary
of State at the Foreign and Commonwealth Office (Lord Triesman)
says that the mission has overseen successful decommissioning
of GAM weapons and withdrawal of some GOI troops from Aceh. He
goes on to say that in response to the wishes of GOI and GAM the
Head of Mission has now requested an additional three-month extension
from 15 June 2006, to allow a continued monitoring presence in
Aceh until local elections, which are now expected to take place
by September. The AMM would be reduced from around 200 to 85 EU
and ASEAN country monitors, reflecting the fact that some of the
mission's tasks have already been completed. He also says that
a Commission Election Monitoring Mission is expected to be deployed
to monitor the local elections.
18.6 The Joint Action will formally agree extension
of the mission and the Council Decision the provisions of the
SOMA. Although the draft of the Joint Action is still in the process
of negotiation, it is a short technical document, formally agreeing
a three-month extension; ditto the SOMA. He is submitting his
Explanatory Memorandum early because of the impending Whitsun
recess.
The Government's view
18.7 The Minister says that Partners are agreed
that a short extension of the mission is desirable, which the
Government supports, the mission having "made a significant
contribution to peace in Aceh, and this short extension which
will help maintain confidence and avoid a vacuum prior to local
elections".
18.8 He goes on to say that the original UK contribution
of 10 monitors has reduced in size for the second phase and our
contribution is now 8 people, and may reduce further depending
on mission needs. "An extension of 3 months for 8 people
would cost around £116,000. This comes from the Peacekeeping
budget, a call on the Treasury's central reserve." Mission
running costs come from the CFSP budget to which the UK contributes
about 17%, "but no additional funds will be needed for the
extension as this can be covered from within the original reference
amount set aside".
Conclusion
18.9 Given the nature of the mission — the
first of its kind, and the first in Asia — the widespread
interest in the House in both UK and EU efforts to assist in dealing
with the aftermath of the Tsunami and in European Security and
Defence Policy, we considered a Report on the inception and initial
progress of the AMM appropriate.[60]
18.10 In February, however, we considered that
a straightforward extension such as the one now proposed did not
warrant a substantive Report to the House. But those elections
have now slipped from June to September. It would also seem that
the reductions that were then anticipated have not taken place.
18.11 We have no wish to hold up this important
work, and clear the documents, on the basis that the texts are
as anticipated by the Minister, and on the understanding that
he reverts to us if it transpires otherwise.
18.12 However, we would have expected him to have
shed light on why the anticipated reductions have not taken place
and why the election timetable has slipped, i.e., to have provided
a proper progress report, explaining the context within which
this further extension is being sought. We should accordingly
like him to do that now.
60 See headnote. Back
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