31 EU and Non-proliferation of Weapons
of Mass Destruction
| (27512)
—
| Draft Council Joint Action in Support of the Implementation of UN Security Council Resolution 1540
|
| Legal base | Article 14 EU; unanimity
|
| Department | Foreign and Commonwealth Office
|
| Basis of consideration | EM and letter of 24 May 2006
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| Previous Committee Report | None
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| To be discussed in Council | 12 June General Affairs and External Relations Council
|
| Committee's assessment | Politically important
|
| Committee's decision | Cleared
|
Background
31.1 As the Council secretariat explains in its note (annexed
to this Report) on the EU Strategy against the Proliferation of
Weapons of Mass Destruction (WMD), the European Security Strategy
"A secure Europe in a better world", which was adopted
by the European Council in December 2003, identified the proliferation
of weapons of mass destruction as a key threat for EU security
— hence the subsequent adoption of the Strategy against
WMD proliferation.
The draft Joint Action
31.2 As the Minister for Europe (Mr Geoffrey Hoon) explains in
his 24 May 2006 Explanatory Memorandum, on 28 April 2004 the UN
Security Council unanimously adopted resolution 1540, which he
describes as "a major piece of the international non-proliferation
architecture". He continues his explanation as follows:
"The resolution requires states to put in place a range
of non-proliferation measures from prohibiting WMD possession
and use to controlling transit, transport and storage of WMD and
related materials. The resolution also called upon all states
to present, no later than October 28 2004, a first report to the
Committee of the Security Council established pursuant to resolution
1540 (the 1540 Committee) on steps they have taken or intend to
take to implement the resolution."
31.3 He goes on to say that, on 27 April 2006, the UNSC adopted
a further resolution (UNSCR 1673) extending the mandate of the
1540 Committee for two years and decided that "the Committee
should intensify its efforts to promote the full implementation
of UNSCR 1540 through outreach, assistance and co-operation".
He then says that it also invited the 1540 Committee:
"to explore with states and international, regional and
sub-regional organisations sharing lessons learned, and the availability
of programmes which might facilitate the implementation of UNSCR
1540.
"Support to UNSCR 1540 is a key element
for implementation of the EU WMD Strategy agreed on 12 December
2003. The draft Joint Action is a direct response to UNSC calls
to intensify efforts to promote the full implementation of 1540
and focuses in providing support through projects aimed at:
(i) Raising awareness about the requirements related
to UNSCR 1540 and the importance of this international non-proliferation
instrument
(ii) Contributing to strengthening the target state's
national administration capacities."
31.4 He says that projects will be monitored through
regular reports prepared by the United Nations Secretariat (Department
for Disarmament Affairs) and support will be targeted towards
regions where the gaps in implementation of the resolution are
greatest. Workshops are currently planned for China, Peru and
Ghana. The EU financial contribution would be given to the UN
and will "as a general rule" only cover the expenses
for target states and if possible, of regional and sub-regional
organisations.
The Government View
31.5 The Minister says:
"Resolution 1540 plays an important role
in preventing the proliferation of WMD, their means of delivery
and related materials, in particular by non-state actors and terrorists.
The submission of national reports to the 1540 Committee is an
essential tool for informing the Security Council about progress
in global implementation of resolution 1540. It also allows a
better understanding of how nations are meeting the challenges
posed by WMD proliferation and gives the Committee a fuller understanding
of where states require assistance in implementation of the resolution.
"The preparation of a national report requires
considerable effort and technical knowledge on behalf of states.
Technical assistance and the exchange of experience on the process
of drafting national reports and adoption of measures to implement
1540 can directly contribute to increased compliance with reporting
obligations. The UK and Argentina co-hosted the first regional
dialogue with members of the Committee since the resolution's
adoption in April 2004. 27 countries participated in this event,
which was generally considered to be a resounding success. The
proposed seminars are successors to this event and fully consistent
with UK efforts to assist and encourage all states to meet fully
their international obligations under UNSCR 1540."
31.6 The Minister also notes that this would be the
first Joint Action in support of UNSCR 1540 and that it is consistent
with the EU Strategy against the Proliferation of Weapons of Mass
Destruction.
31.7 Finally, the Minister says that the total cost
of the project is limited to €200,000, of which the UK share
will be €34,000 (£23,700, based on the 17% UK share
of the CFSP budget); and that the Presidency hopes to gain agreement
at the 12 June 2006 General Affairs and External Relations Council
in order to release funds in time for the first scheduled seminar
in Beijing in early June.
The Minister's letter
31.8 In his separate letter of 24 May 2006, in addition
to again explaining the context and purpose of the proposed Joint
Action, the Minister says that the Presidency put the draft of
the Joint Action before the Non-Proliferation Working Group on
17 May and asked for it to be adopted at the 12 June GAERC, which
he says:
"is earlier scheduling than we had anticipated.
Without the draft text, we have not been able to inform Parliament
about definitive costs of the programme until now, even though
we were aware that the initiative was under consideration. My
officials in Brussels have raised the problem of the limited time
that is available for national parliamentary scrutiny and asked
whether agreement of the Joint Action might be postponed. However,
the Presidency tell us that agreement is needed at the 12 June
GAERC if funds are to be released in time for the first seminar
in Beijing."
31.9 He notes that we would be overseas immediately
after the Whitsun recess (in Helsinki, on the Committee's customary
visit to the incoming Presidency, for discussions on its priorities)
and says that:
"In light of the value the UK attaches to
UNSCR 1540 and the considerable efforts we have undertaken on
a national level to encourage full implementation of this important
piece of the non-proliferation architecture, I hope the Committee
will understand if I am reluctant to postpone the Decision before
scrutiny by both Committees has been completed. However, should
your Committee find time to consider the memorandum while in Helsinki,
I would be very grateful."
Conclusion
31.10 We acknowledge the thought behind the Minister's
suggestion, but it is not practicable, since not all members of
the Committee were on the visit in question. Moreover, that the
notion of this type of support for to UNSCR 1540 has been in play
for some time makes the short notice puzzling, since despite what
the Minister says about wanting to clarify uncertainty about costs,
they were plainly never going to be more than tiny. It is perhaps
more a reflection of that small project size and of a small-country
Presidency team dealing with a lot of other related business (the
report of our last meeting, when three other items of ESDP business
were submitted on the basis of unofficial or non-existent texts).
In any event, it is a further indication of the problems around
the timely and effective scrutiny of Common Foreign and Security
Policy/European Security and Defence Policy, about which the Committee
has expressed concern on a number of occasions over the years
and in evidence to the Modernisation Committee.
31.11 We shall continue the conversation with
the Minister when he next gives evidence to us. In the meantime,
we do not object to his having joined the consensus on the Joint
Action on this occasion and in the circumstances he describes,
and clear the document.
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