10 European Neighbourhood Policy: EU-Egypt
Action Plan
| (27599)
10560/06
COM(06) 282
| Draft Council Decision on the position to be adopted by the European Community and its Member States within the EU-Egypt Association Council with regard to the EU-Egypt Action Plan
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| Legal base | Article 15 TEU; unanimity
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| Document originated | 7 June 2006
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| Deposited in Parliament | 20 June 2006
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| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 29 June 2006
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| Previous Committee Report | None; but see (26434) 7313/05; HC 38-xv (2004-05), para 14 (6 April 2005); (26155-60 and 26174): HC 38-ii (2004-05), para 9 (8 December 2004); and HC 38-vii (2004-05), para 8 (2 February 2005); (25708) 9921/04: HC 42-xxii (2003-04), para 22 (9 June 2004); and (25744-50) —: HC 42-xxiv (2003-04), para 6 (23 June 2004)
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| To be discussed in Council | To be determined
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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
10.1 The European Neighbourhood Policy (ENP) proposes a new framework
for relations with the eastern European neighbours of the enlarged
EU (Ukraine, Belarus and Moldova), its southern Mediterranean
neighbours (Morocco, Algeria, Tunisia, Egypt, Israel, Palestinian
Authority, Jordan, Syria and Lebanon) and three countries of the
southern Caucasus (Georgia, Armenia and Azerbaijan). A closer
relationship with the EU is offered in return for progress on
internal reform, with the objective of promoting regional and
sub-regional co-operation, political stability and economic development.
The ENP does not prejudge future applications for EU membership
by eligible countries.
10.2 Our predecessors cleared the European Neighbourhood
Strategy, along with the Country Reports on seven "First
Wave" partners — Ukraine, Moldova, Morocco, Tunisia,
Israel, Jordan and the Palestinian Authority — in June 2004.[32]
Later that month, they cleared what the then Minister for Europe
described as "some of the elements which could form part
of the EU's offer" and the likely priorities of each Plan.[33]
Then, on 8 December 2004, the then Committee cleared the Action
Plans on the seven "First Wave" partners that were subsequently
approved by the 13 December 2004 General Affairs and External
Relations Council.[34]
Each of the Action Plans, the then Minister said, combined "opportunities
for closer co-operation in areas of common interest, with a stronger
desire from the EU to establish a set of shared common values
including on issues such as human rights, democratisation, counter-proliferation
and counter-terrorism".
10.3 Finally, the previous Committee cleared the
Commission Communication that presented the key elements of Country
Reports for Armenia, Azerbaijan, Georgia, Egypt and Lebanon and
made recommendations on Action Plans for these countries. Each
Country Report assessed bilateral relations between the EU and
the partner country, reflecting progress under their respective
Partnership and Co-operation or Association Agreements, and described
the political, economic and social situation in each country.
10.4 For Egypt, on the basis of the Country Report,
the Commission, in close co-operation with the Presidency and
the Secretary General/High Representative where appropriate, was
to initiate formal consultations with aimed at concluding a comprehensive
and balanced Action Plan, with the key priorities covering two
broad areas:
- commitments to specific actions
which reinforce respect for international obligations, democracy
and the rule of law, including the holding of democratic elections,
administration of justice and human rights and to certain objectives
in the area of foreign and security policy; and
- commitments to actions which will bring these
partner countries closer to the EU in a number of priority fields
such as economic and social development policy (including poverty
reduction and sustainable development), trade and the internal
market (including sectors such as energy, transport, the environment,
maritime affairs and fisheries, information society, research
and innovation, justice and home affairs and people-to-people
contacts).
10.5 The Action Plan would identify key actions in
a limited number of fields which need to be addressed as a particularly
high priority. Priorities for action would be as specific as possible,
with a clear time horizon, so as to constitute benchmarks which
could be monitored and assessed.
10.6 The then Minister for Europe welcomed the prospect
of closer co-operation in areas of common interest, based on shared
common values and effective implementation of political, economic,
social and institutional reforms, and involving an Action Plan
that supported and encouraged Egypt's own reform programme and
targeted financial and technical assistance. He said that the
Government would remain in close contact with the Commission during
the negotiations so as to ensure that the Government's key ENP
objectives were met.
10.7 In clearing earlier Action Plans with partners
in the "near neighbourhood" and in North Africa and
the near-Middle East, the previous Committee noted that the challenge
now was to ensure delivery, and that a relationship based on "shared
common values", including on issues such as human rights,
democratisation, counter-proliferation and counter-terrorism,
must be precisely that — with States that did well being
able to hope for enhanced trade access, increased help in capacity-building,
better access for nationals and so on, and those that did not,
not being able so to do; and that the same tests would need to
be applied in due course with these additional prospective partners.
They accordingly hoped that the draft Action Plans would reflect
the essentially reciprocal nature of the partnership on offer.
The Council Decision
10.8 In accordance with the Council Conclusions of
14 June 2004, stipulating that Action Plans will be approved by
the Council and subsequently endorsed by the respective Association
or Co-operation Councils, the Commission attaches the text of
a proposal for a Council Decision on the position to be taken
by the European Community and its Member States within the EU-Egypt
Association Council with regard to the adoption of a Recommendation
of the EU/Egypt Action Plan annexed to it.
10.9 In its introduction, the Commission says:
"Egypt's unique geographical position and her
historical and strategic relations with the Arab and African countries,
and her key role for peace and stability in the Middle East, as
well as the EU's increasing role on the global arena and its enhanced
contribution to peace, security and economic development in the
Mediterranean and the Middle East, enable Egypt and EU, through
this Action Plan to further develop their cooperation on regional
and international issues, particularly referring to the Middle
East Peace Process, disarmament and arms control, including illicit
transfer of small arms and light weapons, non proliferation of
weapons of mass destruction and their delivery systems in the
Middle East and elsewhere, and the fight against terrorism; to
enhance and to promote dialogue between cultures and civilizations
and to promote South-South trade and cooperation."
10.10 The Commission says that the Action Plan "sets
ambitious objectives based on joint ownership, common interests,
reciprocal commitments, differentiation, shared values and implementation
of national plans and reform programmes, politically, economically,
socially and institutionally". The level of ambition of the
EU-Egypt relationship will depend on the degree of commitment
to common values as well as the implementation of jointly agreed
priorities; the pace of progress "will acknowledge fully
the efforts and concrete achievements in meeting those commitments".
Recognizing "Egypt's efforts and reform priorities to further
develop and modernise all sectors of the Egyptian society and
economy based on the respect of her identity, specificities and
national priorities", the Action Plan aims to support such
efforts and priorities as reflected in the 2002-07 National
Development Plan, "President
Mubarak's Electoral Platform for 2005" and "the Government's
statement to the parliament in January 2006". It says that
these include "national priorities aiming to: improve quality
of life and standard of living; increase employment opportunities
and reduce unemployment; reduce poverty and expand the coverage
of social security; eradicate illiteracy and develop education
and higher education; consolidate the role of institutions, promote
the protection of human rights and fundamental freedoms; continue
maintaining and ensuring judiciary independence; expand the participation
in political life; enhance human resources and institutional capacity
building; increase rates of economic growth and investments; increase
female participation in development; achieve a significant expansion
in the production and exports capacities; improve industrial potentials;
promote innovation, scientific research and technological development
and preserve the environment".
10.11 The Action Plan covers New Partnership Perspectives,
Priorities for Action and 25 pages of detailed actions covering:
—
Enhanced political dialogue, economic and social development and
reform;
— Trade related issues, market and regulatory
reform;
— Transport, energy and environment;
— Migration, social integration, justice
and security;
— Science and technology, research and
development, information society and audio-visual co-operation;
and
— People-to-people contacts.
10.12 In his 29 June 2006 Explanatory Memorandum,
the Minister for Europe (Mr Geoffrey Hoon) says that, building
on and reflecting the current state of relations with Egypt, the
Action Plan defines the way ahead for the next three years. He
says that the negotiations have taken some time, and the Commission
is still waiting for the final agreement from Egypt, after which
the document will be presented to the Council for approval. "That
the European Commission has published this Action Plan before
obtaining Egyptian agreement is intended to send a message to
the Egyptians that there will be no further negotiations. We therefore
do not expect the text of the document to change."
10.13 He goes on to say that Egypt is offered the
following new partnership, economic integration and co-operation
perspectives :
- "The perspective of moving
beyond the existing relationship to a significant degree of economic
integration including through a stake in the EU's Internal Market,
and the possibility for Egypt to participate progressively in
key aspects of EU policies and programmes;
- "An upgrade in the scope and intensity of
political co-operation;
- "The opportunity for convergence of economic
legislation, the opening of economies to each other, and the continued
reduction of trade barriers;
- "Institution-building support;
- "Support for cross-border and transnational
co-operation;
- "Possibility of gradual opening of certain
European Community programmes, promoting cultural, educational,
environmental, technological and scientific links".
10.14 He then says that, in "a comprehensive
set of priorities for action" within and beyond the scope
of the Association Agreement, the following should receive particular
attention:
- "Pursue legislative reform
and application of international provisions on human rights;
- "Take forward political dialogue and re-enforce
co-operation in the fight against terrorism, and respect for human
rights;
- "Development of a favourable environment
for growth and foreign investment;
- "Co-operation in matters of employment and
social sector;
- "Facilitate trade and negotiate an agreement
for liberalisation of trade in services".
10.15 Once been agreed by the Council, and formally
adopted by the EU and Egypt, progress against will be monitored
using existing structures under the EU/Egypt Association Agreement
and formally reviewed after three years.
The Government's view
10.16 The Minister says that the Action Plan meets
the Government's key objectives for ENP "of a safe, secure
neighbourhood" and welcomes "the prospect of an enhanced
relationship with Egypt on the basis of shared common values,
and effective implementation of political, economic and institutional
reforms". He continues as follows:
"The Government believes that the approach in
the Action Plan rightly combines opportunities for closer co-operation
in areas of common interest, with a stronger desire from the EU
to establish a set of shared common values including on issues
such as human rights, democratisation, counter-proliferation and
counter-terrorism. The Government hopes that the Action Plan will
provide support and impetus to Egypt's own reform programme aimed
at further integration in European economic and social structures.
In setting out jointly agreed areas for reform, the Action Plan
will also serve as an effective tool for targeting technical assistance.
"The Government believes this is the right moment
to develop more coherent EU policies for its neighbours. We welcome
the ENP and its approach, which should enable a differentiated
approach to each partner country within a wider policy framework.
We recognise this is a long-term policy which will evolve gradually
over time. We strongly believe it is essential that EU Member
States remain actively involved in shaping this policy, to ensure
it supports our objectives to the region and to Egypt."
10.17 Finally, the Minister says that there are no
additional financial implications at this stage: "Co-operation
from 2004-2006 is funded from within existing regional budgets
and we continue to believe that no increase in spending is required
to implement the ENP at present. Existing assistance should be
made more effective and targeted towards the priorities identified
under the policy." Looking ahead, he says that funding from
2007 will be under the new European Neighbourhood and Partnership
Instrument (ENPI). He says (somewhat oddly) that "funding
arrangements are being considered as part of the wider negotiations
on the next Financial Perspective"; that the indicative financial
framework for the ENPI for 2007-13 is €11,967 million in
current prices; and that the Government will support "appropriate
allocation of resources to ENPI countries according to criteria
including need, policy environment and effective use of previous
assistance".
Conclusion
10.18 With its European Neighbourhood Policy,
the EU is seeking to work with countries, many of whose societies
and traditions are very different from those of Europe, without
what has hitherto been seen as the major stimulus for progress.
It is perhaps no coincidence therefore that the Minister begins
with those areas that will determine whether or not, over time,
"a set of shared common values" can be established.
Much will depend on the starting point. In that respect, a franker
assessment of that starting point would have been valuable.
10.19 We ask the Minister first how he assesses
the genuine readiness and capacity of the Egyptian government
and civil society to work together towards achieving the very
detailed and challenging agenda set out in the Action Plan, especially
in those areas that he has highlighted.
10.20 Secondly, we ask the Minister for his views
on why, at the outset, the Commission has felt the need "to
send a message to the Egyptians that there will be no further
negotiations" — what are the areas of difficulty?
10.21 Thirdly, we ask the Minister to explain
what he means by saying he believes it is essential that EU Member
States remain actively involved in shaping this policy, "to
ensure it supports our objectives to the region and to Egypt".
This suggests at least the possibility of some sort of tension
between Member States and the Commission, and we ask what those
"objectives to the region and to Egypt" are, which he
implies might in some way be jeopardised, and to explain what
is meant by "active involvement" in this context.
10.22 We have no wish to hold up the Action Plan,
whose aspirations we endorse. But we should be grateful for a
fuller exposition.
10.23 We now clear the document.
32 (25708) 9921/04; see HC 42-xxii (2003-04), para
22 (9 June 2004). Back
33
(25744-50) -; see HC 42-xxiv (2003-04), para 6 (23 June 2004).
Back
34
(26155-60 and 26174) 16164/04, 16166/04, 16162/04, 16167/04, 16218/04,
15991/04 and 16178/04; see HC 38-ii (2004-05), para 9 (8 December
2004); HC 38-vii (2004-05), para 8 (2 February 2005). Back
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