Select Committee on Foreign Affairs Minutes of Evidence


Examination of Witnesses (Question Numbers 120-139)

LORD MALLOCH-BROWN KCMG AND STEPHEN LILLIE

2 JULY 2008

  Q120 Ms Stuart: But there are no attempts to link up universities to have students coming over. You are just talking about two Chevening scholars?

  Lord Malloch-Brown: I do not think that there is the political will on their side for that kind of opening up.

  Stephen Lillie: The focus so far has been on the English language programmes. Two teachers were there to teach the Koreans to teach English.

  Q121 Mr Purchase: May I ask you about our priorities with regard to North Korea? When replying, will you refer to its labour relations and workers' rights? We visited the Kaesong industrial complex and I was appalled—as I think were my colleagues—to learn that wages were not paid to the workers. They were given to the Government and they sliced them off, for their purposes or the purposes of their family, before giving anything to the workers. That seemed to be against everything that we know about in International Labour Organisation work. Such practice was outlawed in most advanced capitalist western countries in the early part of the last century. Given our adherence to ILO organisations, what are Britain's top priorities?

  Lord Malloch-Brown: I shall respond first to that point. The DPRK is not a member of the ILO, so while the working conditions for North Korean workers, as you will have seen at Kaesong, are better than those for workers in the rest of the country, it is a bit of a Faustian pact. They work there under the conditions that you describe. They are not really getting the full amount of their already rather modest wage. The hope was that it would start opening things up. There will be issues. For example, South Korea is pushing for goods that are produced at Kaesong to be covered by the EU-Korea free trade agreement, which is currently under negotiation. Well, if that were to happen, I imagine that we would want human rights issues to be incorporated into the agreement. More broadly, the absence of workers' rights is part of our whole effort to advance the broader human rights agenda—again, getting the UN special rapporteur involved and pressing on our own bilateral contacts to expand rights. That is the key. Kaesong is what it is. It is better than the average €1 a month that workers get elsewhere, but it is a classic situation of people operating in conditions where they have no rights and are not getting their full salary. It is unacceptable, even if a little better than the rest.

  Q122 Mr Purchase: So what can we do? Are there opportunities to get more younger Koreans here to study and to start to understand different ways? The absence of a free trade union in any country is one to be deplored, especially in circumstances such as those in North Korea. You are right. The technology is that of the 1950s. It is pretty well behind the times. The use of cheap labour—not quite slave, but very cheap—to make the thing go is an absolute affront to any decent human being. Can we do something? Is there scope for North Koreans to study in the UK? Are any systems or schemes set up?

  Lord Malloch-Brown: No. As we said earlier, before you came back, not really. That is not through a lack of willingness on our part, but because of a paranoid regime that really does not want people to go abroad. We are trying to identify two Chevening scholars to come here from North Korea, but that is the tiniest of toes in the door. I know from when I was head of the United Nations Development Programme, and we had a much larger programme whereby we were trying to bring people out to train them in economic planning, that ultimately the only country the regime would let us take them to was China. It would not let us bring anybody to the West for fear that in addition to getting economic training, some political free thinking would rub off on them, too. We are in the situation of demandeur. We have very little direct influence. It is a closed regime, which does not thank us for the generous food aid we provide and does not allow us to use it as a lever because of its lack of humanity towards its own people.

  Q123 Mr Purchase: So what would be the British top priority for North Korea?

  Lord Malloch-Brown: It is to bring North Korea more fully into the global community through things such as the Six-Party Talks so that the range of more normal pressures starts to have effect and the regime engages, gets a little richer, gets a glimpse of a better future for itself and its people in the world, and becomes amenable to pressure and dialogue as it engages.

  Q124 Mr Heathcoat-Amory: When we were in Korea, we were told that many North Koreans cross into China and that several hundred a week are forcibly sent back to North Korea, where they have committed a criminal offence in trying to leave. They are then punished, or worse. China is a signatory to the UN refugee convention and its 1967 protocol, which requires it to look into the refugee status of each of those escapees, instead of which it treats them all as a group, as illegal immigrants or economic migrants. Do you believe that China is in breach of its international human rights obligations?

  Lord Malloch-Brown: You are right: China is a signatory to the UN refugee conventions. It insists, however, that those defectors are economic migrants and, as you say, on those grounds returns them to the DPRK. We have raised that both in the most recent UK-China human rights dialogue and as part of the EU-China human rights dialogue, and the Foreign Secretary covered that point in a letter to your Committee following his appearance here. We have sought to raise the issue in every way we can. Whether China is in breach or not is something for the United Nations High Commissioner for Refugees to have a view on, rather than us, and I am not sure that it does, does it?

  Stephen Lillie: I am not aware that it has expressed that view, but it has expressed concerns about how it works with the Chinese.

  Q125 Mr Heathcoat-Amory: I do not think that is good enough. North Korea may be a slave state that has opted out of the world system, but China is a member of the Security Council. It is therefore part of that international network of obligations and law. It is hosting the Olympics. I know the issue has been raised with China, but why do we not get the United Nations Human Rights Council to investigate? This is not a handful of abductees we are talking about; it is hundreds of people every week, on a routine and continuing basis, trying to leave one country and go to another. They are leaving a country where they are persecuted and if they get sent back, they are punished. It is no good raising the issue with China; we want a row with China. This is a request from me and, I hope, this Committee: can you formally raise it with the United Nations so that it starts to do something about a convention that China has voluntarily signed up to and which it pretends to abide by?

  Lord Malloch-Brown: I am happy to go back and look at this again. I would just say that in every country, including this one, clear differences are made between economic migrants and refugees, and we get criticised, too, for whom we put in the economic migrant category. Just the fact that you are punished for illegally leaving your own country is not in itself grounds for being able to claim refugee status. In other words, when we return economic migrants to countries, they may well be subject to legal procedures, so it really is a matter for the United Nations High Commissioner for Refugees to determine whether this case load can lay sufficient claim to refugee status to enable it to try to persuade and force China, through its obligations to the convention, to put in place procedures to test the claims of individuals. We will take a look at it, but I do not think it is quite as straightforward as it seems. As I say, we do raise it. We have been very clear in two different sessions with the Chinese this year that we do not accept their position that all the people concerned are economic migrants.

  Q126 Mr Heathcoat-Amory: I know these things are never completely straightforward, but the evidence we have is that there is a breach of the convention going on here, on a systematic basis, and people who are sent back are not just punished, they sometimes face torture. I do not know whether that is true, but I think someone ought to find out. If that is not a breach I do not know what is. Would you undertake to look into this again and engage with the United Nations about this—about its own convention?

  Lord Malloch-Brown: I certainly undertake to look into it, and we will find out where the UNHCR is on this—yes.

  Chairman: Perhaps we can have a note.[1] Minister, as you are aware, the Korean war never ended. There is an armistice, but not an end to the war, and there is still a United Nations command. We would like to ask some questions about that.

  Q127 Ms Stuart: The two areas on which I want to probe a little further are what the UK security commitment is and how we see the situation post-2012. Let me begin by asking how we see the security commitment and, more importantly, raising the question of the Military Armistice Commission and Britain's current role in it, and how we see the future of Britain's participation in that.

  Lord Malloch-Brown: On the latter point, our participation in the Armistice Commission has evolved a little recently: we have involved military staff—the defence attaché, who is the senior Commonwealth member of the United Nations Command Military Armistice Commission and a brigadier in Seoul—and a liaison officer, who is an official and our political counsellor, so that we have both military and political representation, if you like, on UNCMAC and its issues. As to the issue going forward, we obviously, through the military committee, have participated in this at the staff officer level since the war. There is the prospect now, in 2012, of the transfer of the wartime command from the US to the Republic of Korea, but that function does not get in the way of the UNC, as it is called, which will retain responsibility for maintaining the armistice. That will remain under US control. We think that that is vital because it allows the transit of reinforcements and equipment through Japan if they are needed. There is a question going forward—if a peace agreement replaces the armistice—of whether there would be a UK role in that. Again, primary responsibility devolves on to the membership of the Six-Party Talks—the DPRK itself, the Republic of Korea, the USA, China and obviously Japan. Whether we become formally involved or not, we will continue to take a close interest because, obviously, the economic and political stability of north-east Asia remains crucial to us.

  Q128 Ms Stuart: May I probe you a little further on the UK's representation? The naval attaché was withdrawn, and we have some rather short-term postings of junior officers in Tokyo. There is a hint that the UK is even considering withdrawing its rather minimal commitment. Can we have an assurance that we will not give up our seat at the table, however minimal that seat may be?

  Lord Malloch-Brown: I will leave the assurance to Mr Lillie—officials are around a lot longer than Ministers, so it is worth more. As I understand it, however, we do not accept the proposition that it is a downgrading. The naval attaché has been replaced by the political counsellor, and by having both the defence attaché and the political counsellor, we have a broader array of talents on the committee, because we have both the military and the political foreign policy side. We remain committed, but I am not quite sure what longer-term plans there are.

  Stephen Lillie: I do not feel empowered to give a long-term commitment.

  Lord Malloch-Brown: I am not asking you to give a commitment. I am thinking in terms of our planning.

  Stephen Lillie: There are no papers being prepared for the Minister at the moment to suggest that we should in any way change our representation. The switch from the naval attaché to the political counsellor reflected changes to the whole defence attaché network worldwide. The provision of junior officers has happened before, but that is very much an additional supporting role to help the Japanese self-defence forces in the rear command and the South Korean forces in South Korea. But no consideration is being given—in the Foreign Office at least—to changing that basic headline representation by the defence attaché and the political counsellor.

  Q129 Ms Stuart: We may return to that subject in the recommendations in our report. May I now take you to 2012, when we will essentially see the withdrawal of the US, and things will be completely under South Korean control? There is a clear mismatch in terms of who will have responsibility and who will have control. Are the Government satisfied that the arrangements are working?

  Stephen Lillie: On the handing-over of wartime command in 2012, we need to keep it in mind that the basis for the security of South Korea is not the UN command, but the US-ROK mutual defence treaty. It has always been our assumption and understanding that in the case of a war, it would be the US and ROK combined forces that would be activated, at least in the first instance. Although command will be handed over to the ROK in 2012, the US is still part of the combined forces there, and we would accept the judgment of the United States forces that that is an acceptable arrangement, which fully meets their security requirements.

  Q130 Ms Stuart: In 2007, General Bell said that this would create a "military authority-to-responsibility mismatch for the United Nations Command", so I am not even sure whether the Americans are terribly satisfied that this works, but you may want to write to us. In that context—this is a specific question of UN command—do you think that they will be able to provide an international officer back in the headquarters in Japan by the end of the year? Again, we got the impression that that was rather important, but I accept that these are rather specific and detailed questions, so I am happy for you to write to us.[2]

  Chairman: Thank you. May we move on to questions about Japan?

  Q131 Mr Illsley: First, may I go back to my colleague's comment regarding the handful of abductees? It is worth stressing again that that is a really important issue in Japan; indeed, I was surprised just how important it was, until I met the families. However, my question to you, Lord Malloch-Brown, relates to Japan's chairmanship of the G8. What is our assessment of how effective that chairmanship has been? Have any issues been identified or highlighted on which we and the Japanese do not see eye to eye? My impression from our visit was that there are few, if any, issues on which we have a problem in our relationships with the Japanese.

  Lord Malloch-Brown: Again, as I said about South Korea, although it is even truer of Japan, our relationship is so good that I sometimes detect frustration among diplomats on both sides that there is not enough to work on, because we agree on things. They were therefore quite pleased to have a summit. To be honest, there was some despair on our side earlier in the year because Japan has deep domestic difficulties and a Prime Minister who has faced a lot of problems. There was a worry in terms of the Japanese leadership of the G8 that the ambitions would fall short because people were distracted. In fact, as we get close to the G8, the agenda has shaped up as pretty good. The Japanese have surprised people by their leadership on climate change. They were in the slow lane on climate change for a long time, but under Prime Minister Fukuda, they have really stepped up and made some pretty bold initiatives in terms of their own domestic target of a 60 to 80% cut by 2050 and their commitment to funding a low-carbon revolution. They have also become partners with us in contributing to the new World Bank climate investment funds. So, on that issue, we have seen significant progress. The Japanese have also done pretty well on development. They had the Tokyo international conference on African aid, which discussed Japan-Africa development. It was quite a success, and that has given new momentum to development issues as we come into the G8 meeting. They have also been quite receptive to incorporating food and oil into the conference at a very late stage. We just had the G8 Foreign Ministers meeting last week, and we were pretty pleased because there were statements on issues such as Zimbabwe and Burma. You can never take it for granted that such things will be in a Japanese-hosted meeting, because of Japan's general reticence about taking politically provocative positions. They will also have an Africa session and a major non-G8 powers session at the G8 next week, and they will bring in some of the major Asian regionals at one point. So it will be a fairly imaginative G8 session, and we can all feel that it looks promising.

  Q132 Mr Heathcoat-Amory: You mentioned climate change, and the Japanese have moved on that, but we detected a reluctance to go for a binding national emissions reduction target. They are keen on research and technology transfer, which you mentioned, but do you think that Japan will bind its future industrial capacity in the way that a binding target implies?

  Lord Malloch-Brown: Fukuda gave a very important speech on 9 June. You were there earlier, right? In that speech, he set the domestic long-term target of a 60 to 80% reduction in emissions by 2050 and, critically, said that a trial emissions trading scheme would be initiated later this year. All the signals are that the Japanese are preparing to enter into an international scheme. It is right that there is some continuing reticence. I suspect that they are probably under quite a lot of pressure from the Bush Administration not to commit to an international scheme yet, but I would expect, with the change in the US Administration and both candidates committed to a global emissions system, that Japan will not hold out against it.

  Q133 Mr Heathcoat-Amory: Are the British Government alert to the danger of the world dividing into developed countries with targets that may be difficult to meet—that is certainly what is happening here with the Climate Change Bill—and other industrial countries, which may benefit if businesses shift to them to avoid the targets? Although I am sure that Japan will do a lot to develop technology to counter climate change, do you think that it will finally wriggle out of the sort of target that we will be obliged to pursue? It is not impressed by whatever leadership or pioneer role we are taking. The moral lead does not impress the far east terribly, in my experience. How concerned are the British Government about that?

  Lord Malloch-Brown: We have got to make sure that the process that began in Bali and will conclude in Copenhagen is a global one. There are all sorts of groups of countries that could be free riders: industrialised countries that do not buy into the scheme or large developing countries that declare that they do not want to join the scheme until they have climbed the industrialisation ladder as well. There are all sorts of anomalies. We have stopped talking at this point about South Korea, but it has one of the bigger emissions footprints around, yet it counts as a developing country, so it fell outside Kyoto. We have got to solve the free-rider problem and create a global scheme that is seen as fair in how responsibilities are differentiated, to use the word of the negotiators, and that everybody is in.

  Q134 Mr Illsley: Just to follow on from what David said, in one of our meetings—I think that it was with Mr Tsuruoka—he said that Japan had led on the issue of climate change. He made an interesting comment. He said, "I don't think we've achieved very much by taking that leadership role. It hasn't brought the developing countries into taking the action that we want." Is there any sign that Japan may be moving away from a leadership role on climate change?

  Lord Malloch-Brown: They may think that they were leaders, but for a long time they were not. For a long time, they said the right things but were real back markers, along with the US. It is really only since Prime Minister Fukuda took office a year ago that we have seen it. The prospect of chairing the G8 came together with that to move Japan very dramatically on that. I actually think that it is a huge commercial opportunity for the Japanese, because Japan is exactly the kind of country likely to benefit from opening up a technological lead in terms of low-carbon energy technologies. If the whole world chooses to retool itself with low-carbon energy, I bet that a lot of the technology that we use will have a "Made in Japan" label. I think that they have great opportunities.

  Q135 Ms Stuart: Japan seems to have discovered Africa as well, not just climate change. It seems incredibly proud of its international development commitment. What is your assessment of that? Is it something that could, in the long term, create a new dynamic as to who the donors are for somewhere such as Africa, or is it just part of a kind of awakening on Japan's side to the fact that if it wants UN reform, space at the top table and to be an international player, with that comes certain obligations, and giving aid to Africa is just one of them?

  Lord Malloch-Brown: In fairness to the Japanese, they have not just discovered Africa. The TICAD IV conference—Tokyo international conference on African Development—at the end of May was, as its name implies, the fourth, and they take place at three or four-year intervals, so the Japanese have been pushing the issue for a dozen years or so. I was the co-chair of TICAD III with the Japanese and they have done a lot. I think they are, to be honest, quite aggravated. I would apply the last question to this issue. This is somewhere where they feel they have done a lot and it has not been recognised. There are some competitive juices flowing now at the way China has swooped in and very quickly created, frankly, a larger programme and a lot more African buzz and attention around it. What the Japanese have promised to do now is double their official development assistance to Africa, excluding debt relief, by 2012. That means they will have a target of $1.4 billion by 2012, but one should observe that, important and generous though that is, it will be less than the UK is giving to Africa at that time, despite the fact that Japan is a considerably larger economy. It will also come from re-allocating aid from other regions to Africa, because unlike the UK, Japan is not on track to reach 0.7 per cent. of its gross domestic product being given as ODA by 2012. They will do some important things and it might be worth pulling out several, because some are being done very much in partnership with the UK. The Japanese have a long history of being very good on food issues in Africa, and not just food aid, whereby they are giving $100 million at the moment, which is mainly targeted at Africa. They have been incredibly important in improving African rice production by the development of the so-called Nerica—new rice for Africa—crop, which is an African-Asian hybrid that does well in African drought conditions but has the productivity of an Asian rice. It has dramatically transformed west African rice production. Over the next five years, the Japanese will train 100,000 health workers in Africa. They also made a significant contribution to the Global Fund to Fight AIDS, Tuberculosis and Malaria. Very much encouraged by us, they are trying to do a lot on education in Africa. They have committed to construction of 1,000 primary schools, the training of 100,000 teachers in maths and science and so on. Those are important initiatives, but they are still within a financing framework that is significantly less than what, for example, we are doing.

  Q136 Sir Menzies Campbell: Minister, in a minute I shall ask you to make an assessment of Japan's current international role, and your last answer and the answer before are both quite important factors in making such an assessment. However, there is another component that you are probably uniquely qualified to help us with, which is the issue of Japanese permanent membership of the Security Council. Could you briefly cast your mind back to your days on the East River? Just how important do you think Japan regards the possibility of permanent membership of the Security Council, and to what extent are the objections of China, for example, capable of being overtaken?

  Lord Malloch-Brown: On that last point, an extraordinarily high priority for Japan's foreign policy is to achieve membership of the Security Council. Some of the setbacks that it has suffered over the past few years—it seemed to be enticingly close, and has now receded—have been a deep blow to Japanese self-esteem in the foreign policy area. We are very clear that we strongly support its membership of the council. Because it is the second largest economy in the world, it is the second largest contributor to peacekeeping operations. On the simple Boston tea party principle of no taxation without representation, it seems inherently unfair that Japan is being asked to pay ever larger portions of a growing global peacekeeping bill but has no direct say over it. It has made Japan rather recalcitrant on the expansion of peacekeeping, and grumpy about it. It has turned Japan into budget cutters and all the rest of it. We are losing its support in the same way that we are, on a smaller scale, losing Germany's, and that has a real cost, because I think that we all assume that the multilateral portion of global peacekeeping is likely to increase. I hope that we will come back. Part of the Prime Minister's initiative of international institution reform is to get the Security Council issue resolved. Just yesterday at the African Union summit, I was pressing a number of African Governments to get their act together and decide what form they want African representation to take, so that we can resume an effort to resolve it. More broadly, Japan sees itself as a little bit taken for granted in its foreign policy everywhere. It is still, as I said, the second largest economy in the world, yet one would never know it, as western Ministers and leaders all beat their way to the doors of Beijing or Delhi, but less frequently to Tokyo. The Japanese are publicly gracious about that, but I think that they scratch their heads a bit about how they have been so eclipsed, given how important they remain. It is very much in our interest to stay extremely close with the Japanese, find them a forum as a permanent member of the Security Council and encourage them, within the limitations of article 9 of their post-war constitution, to become active in peacekeeping missions such as Afghanistan and now, with staff officers, even in Sudan. We do not want Japan to skulk back into itself, disappointed by its lack of a global role or recognition of that global role, or to be thrown off balance by its increasingly competitive relationship with China.

  Q137 Sir Menzies Campbell: You have managed very comprehensively to answer the question I had not yet asked, but no matter. On the issue of willingness to spend money but not capital on military contribution, is there anything that the British Government can do to persuade the debate internally in Japan? As we all know, it is locked into the history and the events of the 1930s and 1940s. I am not talking about sticks or carrots, but is there anything that we can do to foster an understanding that a military contribution of the kind that they could well make, both in peacekeeping and in the more civilian aspects of military activity, would enhance their claim for membership of the Security Council as well as being a good thing in itself?

  Lord Malloch-Brown: In a way, you answered the question with that last observation. The way to do it is through as multilateralised a direction as possible. Even Afghanistan was difficult for Japanese public opinion, because the military side of Afghanistan is not a fully fledged UN operation. Afghanistan and Iraq are difficult places for Japanese public opinion to see Japan immersing itself in. It is much easier for Japan, as it is for Germany, to accept that within internationally endorsed UN-mandated peacekeeping activities. I see a kind of convergence between these objectives of trying to get Japan permanently on to the Security Council and getting Japanese public opinion to accept that with membership of the Security Council come broader multilateral obligations and responsibilities. I think we need to drive those two things together.

  Q138 Sir Menzies Campbell: We are at one on that. I have one last question. I deduce from what you said about the Prime Minister's commitment, and from your own eloquence, if I may say so, in support of the topic, that the Government place a high priority on this, and will take every opportunity to push a solution that we, I think, agree would be ideal.

  Lord Malloch-Brown: Absolutely, yes.

    Chairman: Thank you. Can we move on to some questions about the economy?

  Q139 Mr Hamilton: Minister, you mentioned earlier the revolution in green energy, the move away from fossil fuels, and how Japan would likely benefit and produce many of those new technologies. However, I wondered whether you could give us your assessment of Japan's current economic position. We all know, and we have stressed this afternoon, that it is the second largest economy in the world, still; and while people beat their way towards the doors of the Foreign Ministry in Beijing they seem reluctant to go to Tokyo, yet Tokyo has considerably more economic muscle. What do you think is Japan's vulnerability, given its recent history in terms of banking and credit, to the current credit squeeze worldwide? Is it going to suffer more or less than other developed economies, in your opinion?

  Lord Malloch-Brown: This is one of those cases where the failure of Japan fully to liberalise its international financial system and to allow as large a foothold in its banking sector for multinational banks as others have done is perversely rewarded at this point by the markets; in a sense the most liberalised international financial model—the allegedly Anglo-Saxon model of fully liberalised financial markets—has taken a bit of a knock from them recently. Japan is protected against that. It has a low level of foreign investment in its economy compared with other economies of a similar situation, and not only does it have relatively low exposure of its own banking sector to overseas banks but equally Japan itself has not got a high degree of exposure to sub-prime in the US or housing bubbles elsewhere. Its own housing bubble was a long while ago and while housing prices have come back in Tokyo they are nothing like the problem we have. Japan is actually growing again; part of the business of everybody overlooking the fact that it is still the world's second largest economy is that along with that goes a five-year-old view of what is happening to the Japanese economy. It is growing again quite nicely thank you. They have brought down, I think, their estimate from 2.1% to 1.5%, but that still is pretty respectable compared with where the other G8 economies for the most part are. I think it is looking fine, and we also need to acknowledge the relationship between the health of the Japanese economy and our own, because while I have said that foreign direct investment in Japan is only 2.5% of its GDP, which is very low by global standards, nevertheless within that group are some very prominent UK investors—GKN, Astra Zeneca, GlaxoSmithKline, Unilever, Virgin, British Airways, HSBC, Standard Chartered and Dyson. Also, in areas such as legal services we now have a lot of British law firms there. Correspondingly we, who are much more open to FDI in our economy, have 1,450 Japanese companies that have FDI here and which employ more than 100,000 people, and that process continues. Just in the past year, Sony and Fujitsu have set up European headquarters here. Over the past 20 years, Nissan, Toyota and Honda have transformed the automotive supply chain with their investments in the UK; indeed, they account for more than half the cars made in the UK. All three, by the way, have made substantial new investments in the sector over the past year. So we have strong two-way economic links, and the health of Japan's economy matters a lot to us.



1   Ev 106, Ev 108 Back

2   Ev 106 Back


 
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