18 European Security and Defence Policy:
Chad and the north-east Central African Republic
| (28946)
—
—
| Joint Action launching ESDP mission in Eastern Chad and North East Central African Republic
|
| Legal base | Articles 14, 25(3) and 28(3) TEU; unanimity
|
| Department | Foreign and Commonwealth Office
|
| Basis of consideration | EM of 5 October 2007
|
| Previous Committee Report | None
|
| To be discussed in Council | To be determined
|
| Committee's assessment | Politically important
|
| Committee's decision | Cleared, but further information requested
|
Background
18.1 On 31 July, the UN Security Council unanimously adopted Resolution
1769 (2007), which authorized the deployment of a 26,000-strong
joint United Nations-African Union force, in an attempt to quell
the violence in Sudan's western Darfur region, where fighting
between pro-Government militias and rebel guerrillas has killed
more than 250,000 people since 2003. To be known as UNAMID, it
will have up to 19,555 military personnel, including 360 military
observers and liaison officers, a civilian component including
up to 3,772 international police and 19 special police units
with up to 2,660 officers.
The draft Joint Action
18.2 In a helpful 5 October 2007 Explanatory Memorandum, the Minister
for Europe (Jim Murphy) outlines the relevant chain of events:
—
the 23 July General Affairs and External Relations Council confirmed
the EU's readiness to consider provision of a bridging military
operation until such a time as the UN is able to establish an
operation after 12 months, if a military operation continues to
be required at that point, and tasked its competent bodies to
continue planning;
— a 10 August report on the situation in
Chad by the UN Secretary General (S/2007/488) indicated that the
humanitarian situation "has shown no signs of improving"
since February, with more than 400,000 refugees and internally
displaced persons (IDPs) as a result of the fighting and an estimated
700,000 others in host communities also affected;
— following the 10 August report (S/2007/488),
a UN Security Council Presidential Statement supporting the proposed
EU mission on 27 August and a joint EU-UN assessment mission to
the region at the end of August, the UN Security Council authorised
the deployment of an EU force for one year through UNSCR 1778
on 25 September. He says:
"As well as providing protection and support
for the UN mission, the EU force would provide wide-area security.
This would promote security and confidence in the Area of Operations,
helping to deliver the wider objectives of the multidimensional
presence, including confidence to allow IDPs and refugees to return
home."
— The
UN Security Council decided on 25 September to establish a "multidimensional
presence" in eastern Chad and north-eastern Central African
Republic. UNSCR 1778 established a new UN policing-focused mission
in these two areas, to be known as MINURCAT, and authorised the
European Union to deploy a military force to protect and support
the personnel of the UN mission.
18.3 The Joint Action, he explains, is currently
still under discussion in Brussels (the latest draft of which
he attaches to his EM), but is in standard format, similar to
previous Joint Actions launching EU operations.
The Government's view
18.4 The Minister says that the UK "has confirmed
publicly its strong support for this operation, proposed originally
by the new French government, as a key means of contributing to
regional stability and a resolution to the Darfur crisis"
and continues as follows:
"In light of other heavy operational commitments,
the UK will not be able to deploy ground troops or forces as part
of this operation, although a small number of UK personnel are
likely to participate in the mission. France is likely to provide
the largest single contribution to the mission, including both
the Operation (strategic/outside theatre) and Force (in-theatre)
Commanders as well as the Operational Headquarters. Other likely
contributors include Sweden, Belgium and Poland. There will be
close liaison between the EU force and the UN force in Darfur
(UNAMID), as well as with the two host governments.
"A key part of the overall regional strategy
is encouragement for renewed political dialogue between the Presidents
of Chad and Sudan. Progress is also required to address internal
tensions within Chad, and in this sense the Government welcomes
the signing on 13 August of the Political Agreement for the reinforcement
of the democratic process in Chad. UNSCR 1778 encouraged continued
national dialogue in Chad and Central African Republic and greater
regional co-operation."
Financial Implications
18.5 The Minister says that likely costs have yet
to be fully assessed, with detailed technical work ongoing:
"The common headquarters and infrastructure
costs of the operation will be funded through the EU ATHENA mechanism,[35]
and are likely to total some 99.2M Euros. Taking into account
some reallocation of the ATHENA budget, the total payable by the
UK (which pays 17.5%) is estimated currently at 14.21M Euros or
£9.9M. The Operation Commander is also likely to bid in due
course for the costs of Intelligence/ Surveillance assets to be
met in common, likely to be agreed on precedent from previous
operations, and this may cost the UK an additional £4-5M.
Other costs, unless otherwise agreed unanimously by the Council
(which is unlikely), will lie where they fall with contributing
countries, according to ATHENA mechanism rules. The costs of the
mission will continue to be scrutinised carefully."
Timetable
18.6 The Minister says that the EU and UN are keen
to deploy the missions as soon as possible:
"Force deployment will be possible once the
rainy season has ended, so from mid-October onwards. The timing
of approval of the Joint Action is not yet clear, as discussions
are ongoing in Brussels, but given the operational need to get
preparations underway it is possible that it may be submitted
for agreement under written procedure as early as the end of the
week beginning 1 October."
Conclusions
18.7 In the circumstances, we are content to clear
the Joint Action on the basis of the information currently available.
18.8 However, we are concerned that there is an
apparent ambiguity in the mission's terms of reference: the Minister
says the UN authorised the European Union to deploy a military
force to protect and support the personnel of the UN mission,
and at the same time says that, as well as providing protection
and support for the UN mission, the EU force would provide wide-area
security. We should be grateful if he would clarify its terms
of reference.
18.9 There is also uncertainty about the size
and composition of the force, and its costs: for the UK, this
could be between £10 million and £15 million. Again,
we should be grateful if the Minister would clarify these aspects
as soon as possible.
35 Article 28 TEU sets the principles for financing
civilian and military crisis management operations. Under that
provision, CFSP expenditure shall be charged to the EC budget,
except for such expenditure arising from operations having military
or defence implications. For the common costs of such operations
the Council established a special mechanism (ATHENA). Back
| 
