House of Commons - European Scrutiny Committee

European Scrutiny Committee Contents

8 Presidency report on European Security and Defence Policy

(30250)

16686/08

French Presidency Report on European Security and Defence Policy

Legal base —

Deposited in Parliament 10 December 2008

Department Foreign and Commonwealth Office

Basis of consideration EM of 11 December 2008

Previous Committee Report None; but see (29743) 10415/08: HC 16-xxv (2007-08), chapter 13 (25 June 2008); (29307) 16426/07: HC 16-viii (2007-08), chapter 23 (16 January 2008) and (29518) 7235/08: HC 16-xxii (2007-08), chapter 8 (21 May 2008)

Discussed in Council 11-12 December 2008 European Council

Committee's assessment Politically important

Committee's decision Retained under scrutiny; further information requested

Background

8.1 At their 1998 summit meeting in St Malo, the then Prime Minister, Tony Blair, and former French President Chirac proposed that the European Union should have "the capacity for autonomous action, backed up by credible military forces": in particular, the military capacity to take on humanitarian tasks, rescue, peace-keeping and the tasks of combat forces in crisis management (as listed in Article 17.2 EU, known as Petersberg tasks).[28] These proposals were adopted at the Cologne European Council in June 1999.

8.2 At the 1999 NATO Washington Summit and, subsequently, the December 2000 Nice European Council, both organisations agreed that the EU would act only where NATO as a whole was not engaged. NATO also agreed at the Washington summit to support ESDP with the so-called "Berlin-plus" arrangements, whereby the EU can call on key NATO facilities in order to run its own military operations. The Helsinki European Council in December 1999 set Member States a military capability target known as the Headline Goal — deploying 50-60,000 troops, capable of conducting the full range of Petersberg Tasks, within 60 days, sustainable for up to a year, with air and naval support as necessary, before the end of 2003. From the likely scenarios envisaged, the EU Military Staff (EUMS) generated the "Helsinki Headline Catalogue" which specifies which capabilities are required in each of the 144 capability areas. Member States aimed to address these shortfalls through the November 2001 European Capabilities Action Plan (ECAP).

8.3 Notwithstanding the findings of the first phase of ECAP in May, the June 2003 Thessaloniki European Council confirmed that ESDP was operational across the full range of Petersberg tasks, albeit limited and constrained by recognised capability shortfalls.

8.4 The June 2004 European Council then approved a new Headline Goal 2010, which focuses on the qualitative aspects of capabilities — interoperability, deployability and sustainability — as the basis of Member States' work on meeting capability shortfalls in the medium term.

8.5 At the same time, the December 2003 European Security Strategy, identified, in place of large-scale aggression against any Member State, terrorism, proliferation of weapons of mass destruction, regional conflicts, state failure and organised crime as "new threats which are more diverse, less visible and less predictable". This and the EU's Headline Goal 2010 aspirations led in 2004 to the Battlegroups initiative — each Battlegroup based on a combined arms, battalion-size force (1,500 troops) reinforced with combat support and combat service support; sustainable in the field for 30 days, extendable up to 120 days; capable of standalone operations or for the initial phase of large operations; employable across the full range of both the Petersberg tasks and those identified in the European Security Strategy; designed specifically, but not exclusively, to be used in response to a request from the UN.

8.6 At the 2004 Capability Commitment Conference, Member States made an initial commitment to the formation of 13 battlegroups. Four member states (UK, France, Italy and Spain) provided their national battlegroups at an early stage of the programme, and in 2006 a German-French battlegroup with contributions from Belgium, Luxembourg and Spain had achieved partial operational capability for evacuation and extraction. From January 2007, the EU was to have the full operational capability to undertake two battlegroup-size rapid response operations, including the capability to launch both operations almost simultaneously.

8.7 The EU's civilian crisis management capability, or civilian ESDP, has developed in tandem, principally since the Helsinki European Council in December 1999. The June 2000 Feira European Council listed four priority areas in which the EU should acquire civilian capabilities — police, the rule of law, civil administration and civil protection — with the goal by 2003 of a police force of up to 5,000 personnel contributing to international missions across the range of conflict prevention and crisis management operations. The December 2004 European Council endorsed a Civilian Headline Goal 2008 which envisages the deployment of civilian ESDP capabilities within 30 days of the decision to launch a mission (to help with security sector reform and support to disarmament and demobilisation processes) while the December 2005 European Council agreed on a concept for setting up and deploying civilian response teams with the initial goal of a pool of up to 100 experts by the end of 2006 (for early assessment of a crisis situation, support for the establishment of civilian ESDP missions and support to an EU special representative or an ongoing civilian operation; mobilised and deployed within five days of a request).

The ESDP Presidency report

8.8 Each Presidency submits a report on European Security and Defence Policy to the European Council (in December or June) recording: significant developments over the six months of each Presidency; referring where appropriate to activities undertaken in earlier months; highlighting progress in specific areas; and drawing attention to others where further work is needed.

The French Presidency report

8.9 The report is a record of ESDP developments during the French Presidency in the second half of 2008. The main sections are: EU Operational Activities, Development of Civilian and Military Capabilities, Human Rights and Gender Issues, EU Training and Exercises, and Co-operation with International Organisations and third states.

8.10 The report also covers the European Defence Agency (EDA); Civil Military Co-ordination; Security Sector Reform and Conflict Prevention.

8.11 As is customary, the report concludes with a mandate from the Council for the incoming Presidency. This prioritises areas for the Czech Presidency to take forward over the next six months.[29]

The Government's view

8.12 The Report is helpfully and comprehensively summarised and analysed by the Minister for Europe at the Foreign and Commonwealth Office (Caroline Flint) in her Explanatory Memorandum of 11 December 2008.

8.13 The Minister welcomes the Report as a comprehensive description of progress and achievements in European Security and Defence Policy (ESDP) under the French Presidency, along with "the positive steps which have been taken in a number of areas of ESDP during the French Presidency, in particular capabilities, civilian and military planning integration and the launch of ESDP operations in Georgia and off the Somalia coast." She continues as follows:

"On capabilities, the UK welcomes the establishment of a joint civilian-military strategic level planning structure which should ensure greater coherence between the EU institutions, civilian and military planners, and the EU and NATO. The UK also welcomes agreement and a more refined level of ambition for European operations which more accurately reflects the types of operations which may be undertaken in either an EU, NATO, UN or other multinational framework, and which need to drive our capability planning for the future.

"The size and scope of civilian ESDP missions has grown quickly, as the EU increasingly looks to civilian ESDP missions to deliver real change in some of the world's most difficult conflicts or post-conflict areas. But so too has the need for Member States to commit to developing civilian capabilities. The French Presidency has focused on encouraging this, and at the November GAERC Ministers agreed to develop national action plans on civilian capacities, and to assess progress annually.

"On operations, a key priority in Kosovo has been "reconfiguration" of the international presences from the UN Mission, UNMIK (associated with Kosovo's pre-independence period) towards a new International Civilian Representative and EU rule of law mission (EULEX). Following intensive international discussions, the way is now clear for EULEX deployment throughout Kosovo, which commenced on 9 December. The Monitoring Mission to Georgia underpinned the implementation of the peace agreements agreed between the French and Russian Presidents. Its rapid launch was the trigger for Russian withdrawal from the zones adjacent to South Ossetia and Abkhazia.

"The UK is deeply concerned by increased pirate attacks off Horn of Africa. ESDP operation ATALANTA, commanded by a British Rear Admiral is an important part of the response. The EU will coordinate with efforts of other organisations (e.g. NATO, the multinational coalition Combined Task Force 150) to ensure most effective response. The UK and our partners are engaging with regional partners to develop a cohesive international response, including to address the root causes of lawlessness on land in Somalia.

"The UK has continued to take a leading role in developing ESDP to ensure that it remains in line with our objectives of having a more capable, coherent and active policy that remains supportive of and complementary to NATO."

8.14 The Minister then turns to Operational Activities:

Western Balkans

BOSNIA-HERZEGOVINA

"Following the successful reconfiguration of Operation ALTHEA in Bosnia and Herzegovina (BiH) in 2007 the European Union force (EUFOR) numbers some 2200 troops on the ground, backed up by over-the-horizon reserves. Its operational priorities remain the maintenance of a safe and secure environment, the transfer of Joint Military Affairs (JMA) tasks to relevant national authorities, and support for the armed forces of Bosnia and Herzegovina as regards training.

"On 10 November 2008 the Council assessed operation ALTHEA and approved the recommendations made in the Secretary-General/High Representative's six-monthly report on the operation. The Council expressed deep concern at the recent political developments in Bosnia and Herzegovina. However, it noted that despite a difficult political situation, the security situation remained stable.

"In the context of the European Union's overall commitment in Bosnia and Herzegovina, the Council highlighted the decisive progress made by operation ALTHEA towards accomplishing its mandate, and in particular the completion of the military and stabilisation tasks provided for by the Dayton/Paris Agreement. Accordingly, the Council considered that the preparatory work for a possible development of the operation should be continued, taking into account the future role of the EU Special Representative.

"The outcome of this preparatory work will be submitted to the Council in March 2009 so that it can take a decision on the future of the operation as soon as the conditions have been met. The future development of operation ALTHEA will have to take political developments into account.

"The Council noted that cooperation with NATO on operation ALTHEA was continuing to work smoothly.

"The EU Police Mission in Bosnia and Herzegovina (EUPM) has continued to promote and support the reform of the BiH police services. The Mission has concentrated on supporting the BiH authorities in implementing the two police reform laws adopted in April 2008. The EUPM has continued its action on concrete capacity building at State level and countrywide harmonisation of all laws pertaining to lawenforcement agencies and police officials.

"With the assistance of the EUPM, the State Investigation and Protection Agency (SIPA) has made substantial progress in implementing sustainable policing arrangements for the targeting of organised crime networks and bringing to justice key figures allegedly involved in serious criminal offences. The EUPM has also stepped up its action to combat organised crime by assisting with the indepth analysis of crimes, using advanced investigative techniques and intelligence and organising a major communication and awarenessraising campaign.

"The EUPM has further developed effective mechanisms for coordination between the lawenforcement agencies and the judiciary, particularly as regards relations between police and prosecutors.

"The EUPM has offered to assist the BiH authorities with implementation of the strategy for border management and combating illegal immigration, which are important elements of the process of European integration.

"Stefan Feller succeeded Vincenzo Coppola as head of mission on 1 November 2008.

KOSOVO

"The EULEX Kosovo mission has continued its deployment and preparations for taking over operational responsibility, in accordance with the arrangements in the United Nations SecretaryGeneral's reports of 12 June and 24 November 2008. The 24 November report was welcomed in a UN Security Council presidential statement of 26 November 2008. The mission reached its initial operational capability on 2 December. With 1600 personnel deployed, it will commence its operations in the coming days.

"In this framework, the mission will be able to start operational fulfilment of its mandate, which is to uphold and promote the rule of law Kosovo-wide under UN Security Council Resolution 1244.

"In accordance with its mandate as described in the Joint Action adopted by the Council of the European Union on 4 February 2008, the EULEX mission will act in three key areas: the police, justice and customs. In these areas, EULEX Kosovo's activities will involve monitoring, mentoring and advising the competent Kosovo institutions, whilst retaining certain executive responsibilities. EULEX Kosovo will ensure that cases of war crimes, terrorism, organised crime, corruption, interethnic crimes, financial/economic crimes and other serious crimes are properly investigated, prosecuted, adjudicated and enforced, according to the applicable law, including, where appropriate, by international investigators, prosecutors and judges.

"EULEX will help to ensure that all Kosovo rule-of-law services, including a customs service, are free from political interference. EULEX will contribute to strengthening cooperation and coordination throughout the whole judicial process, particularly in the area of organised crime. EULEX will be able to contribute to the maintenance of public order and security in Kosovo, in cooperation with the local and international actors concerned.

Eastern Europe and South Caucasus

GEORGIA

"The Council adopted the Joint Action on the European Union Monitoring Mission in Georgia (EUMM Georgia) on 15 September 2008 for a period of one year. It was launched on time under the terms of the agreement on implementation of the Ceasefire Plan of 12 August, signed by the parties on 8 September. The EU observers were deployed and began their monitoring activity, as from 1 October, mainly in the areas adjacent to Abkhazia and South Ossetia. On 10 November the Council reaffirmed its determination that the mission would continue fully to implement its mandate in Georgia.

"In October and November, the Mission carried out nearly 500 patrols, by day and night. Nevertheless, frequent incidents in the vicinity of both Abkhazia and South Ossetia are a reminder that the situation remains volatile and that the safety of the observers remains a priority.

"In accordance with its mandate, the Mission is involving itself on the spot in the development of a conflict prevention and resolution mechanism. The EUMM acts in coordination with the actions of the European Community and complements those of the other international actors in the field, in particular the UN and the OSCE.

"The activities of the Border Support Team in Georgia, within the office of the EUSR for the South Caucasus, have continued. The team has continued to assist the implementation of the border reform in line with Priority Area 4 of the Action Plan drawn up by the EU and Georgia under the European Neighbourhood Policy. The Georgian authorities have asked for the Border Support Team's mandate to be continued in 2009.

MOLDOVA

"The EU Border Assistance Mission to the Republic of Moldova and Ukraine (EUBAM Moldova-Ukraine), which is a European Commission activity staffed to a large extent by seconded experts from EU Member States, has continued its activities. EUBAM MoldovaUkraine assists the governments of the Republic of Moldova and Ukraine in areas involving border, customs and fiscal matters, including through monitoring activities.

Asia

AFGHANISTAN

"The EU Police Mission in Afghanistan (EUPOL Afghanistan) has actively pursued implementation of its mandate, in particular by monitoring, mentoring, advisory and training action at all levels of the command chain of the Afghan Police.

"The Mission is now fully up and running. It is deployed in Kabul and in some fifteen provinces of Afghanistan, accommodated in Provincial Reconstruction Teams and Regional Commands. The Mission has endeavoured to render its action more coherent throughout Afghan territory.

"The Mission has been actively contributing to work and thinking on reform of the Ministry of the Interior and the police, in particular with regard to the drafting of a Vision for the Afghan Police drawn up under the auspices of the Joint Coordination and Monitoring Board, and the restructuring of the Ministry of the Interior. The Mission has also put considerable effort into interaction between the police and justice, and the areas of criminal investigation and border management.

"In carrying out its mandate, in parallel with the Community actions, the Mission has sought to act in coordination with its international partners, in particular UNAMA and the United States, within the framework of the International Police Coordination Board (IPCB). Coordination has been strengthened, inter alia through the setting up of Integrated Project Teams with the United States partners. The Mission has continued to assist in the running of the IPCB Secretariat by making available staff and funding.

"The decision to double the number of Mission personnel so that there are 400 staff members in the field will be implemented progressively from December 2008. That will enable the Mission, on the basis of a renewed mandate, to reinforce its activities in support of the Afghan National Police.

"Kai Vittrup took over from Jürgen Scholz as Head of Mission on 16 October 2008."

Middle East

PALESTINIAN TERRITORIES

"The EU Police Mission in the Palestinian Territories (EUPOL COPPS) has continued its action to assist the Palestinian Civilian Police in establishing lasting and effective policing arrangements.

"The Mission has embarked on setting up its Rule of Law section to assist the Palestinian justice system. It began deployment of its new staff in September bringing its personnel in the field up to around fifty. The Mission has started to draft its strategy for assisting the Palestinian courts and the prison sector. This document should be finalised by the beginning of 2009. In parallel, the Council has begun discussions on the extension of the Mission's mandate until the end of 2010.

"The EU has also embarked on an evaluation of what is needed by the Palestinian Authority to reinforce its support for the rule of law in the Palestinian Territories. Following deployment of a factfinding mission in June 2008, supplementary evaluations in the field have been launched with a view to a possible expansion of the EUPOL COPPS mandate at the beginning of 2009, and the stepping up of actions by the European Community and the Member States as part of the implementation of the EU Action Strategy."

RAFAH

"The EU Border Assistance Mission for the Rafah Crossing Point (EUBAM Rafah) suspended its operations after the closure of the Rafah Crossing Point at the time of the takeover of Gaza by Hamas in June 2007 while maintaining its operational capability to redeploy at short notice.

"The Council has reiterated its commitment to the EUBAM Rafah, to the Agreements concluded and to the region, in particular the population of Gaza. It has underlined the importance of the implementation of the Agreement on Movement and Access by all parties. The EU remains ready, as it has promised, to redeploy to the Rafah Crossing Point as soon as conditions allow. On 10 November 2008 the Council adopted a Joint Action extending the mandate of the Mission until November 2009.

"Alain Faugeras took over from Pietro Pistolese as Head of Mission on 25 November 2008."

Iraq

"The EU's Integrated Rule of Law Mission for Iraq (EUJUST LEX) continued its activities to assist with the training provided by the Member States for senior Iraqi police officers, prosecutors, judges and prison governors. So far, the Mission has facilitated the training of more than 1 800 senior Iraqi civil servants.

"Work on a renewed European Union commitment to the rule of law involving Community assistance, the ESDP Mission and Member States' programmes has been initiated on the basis of an evaluation of what is needed for justice and the rule of law in Iraq.

"The EU has agreed in particular to extend and reinforce the EUJUST LEX's mandate as from June 2009, making it possible for the Mission to carry out pilot activities on Iraqi territory where security conditions permit.

"Pilot actions would focus on consolidation of the activities undertaken, training on Iraqi territory and strategic advice, while pursuing the activities conducted in the Member States."

AFRICA

SOMALIA

"With its adoption of a crisis management concept on 5 August 2008, the Council decided to contribute actively to the implementation of United Nations Security Council Resolutions 1814 and 1816. The first measure to be taken was the establishment on 19 September 2008 of the military coordination action EU NAVCO, to combat piracy and protect maritime trade. Situated within the General Secretariat of the Council, the EU NAVCO cell, headed by naval captain Andrés Breijo Claur, consists of naval experts from several Member States. It has thus been possible to form a wide network of relationships with professionals in the maritime world.

"This measure has facilitated coordination between the protection needs of vessels chartered by the World Food Programme (WFP) and other vulnerable vessels, and the presence of Member States' and third States' naval units operating in the region. Since October 2008 the action of EU NAVCO has facilitated the establishment of escort slots, to the benefit of many merchant and fishing vessels. This has enabled warships, operating under national command, to accompany merchant vessels. EU NAVCO has also contributed to increased mobilisation of the Member States, including the provision of continuous protection for vessels chartered by been invited to participate in operation ATALANTA, which is due to begin in early December 2008. The tasks of EU NAVCO will be taken over by operation ATALANTA once it is launched.

"Increasing maritime security off the Somali coast is part of the European Union's overall action to stabilise Somalia. The task of the European Union's naval force (operation ATALANTA) will be to contribute to the protection of WFP vessels delivering food aid to displaced persons in Somalia, in accordance with the humanitarian objectives of UN Security Council Resolution 1814, the protection of vulnerable vessels cruising off the Somali coast and deterrence, prevention and intervention with a view to putting an end to acts of piracy and armed robbery off the Somali coast.

"Planning work on operation ATALANTA has made rapid progress during the autumn of 2008, with the designation of the operational headquarters at Northwood (United Kingdom) and the appointment of the operation commander, Rear Admiral Philip Jones. The first onboard Force Commander, Commodore Antonios Papaioannou, has been appointed to command the naval force from the launch of the operation on 8 December 2008.

"For operational planning reasons in particular, a rotation of several on-board Force Commanders has been proposed, to cover the duration of the mandate which was set at one year by the Council Joint Action adopted on 10 November 2008. Activities will also have to be coordinated with other actors present in the operational area."

CHAD / RCA (CENTRAL AFRICAN REPUBLIC)

"EUFOR Tchad/RCA, deployed in a remote theatre which is difficult to access, is making a significant contribution to the security of this area of Africa, containing regional tensions and supporting international efforts to protect civilians hit by the Darfur regional crisis. EUFOR is patrolling a very extensive area and is lending its support to the deployment of MINURCAT. EUFOR is also implementing protection measures for humanitarian organisations, thus highlighting the European Union's essential role in facilitating access to humanitarian aid.

"The EUFOR Tchad/RCA operation forms part of the multidimensional support which the European Union is providing for the region. There is complementarity between the European force and the cooperation and development measures taken by the European Community on the ground, as well as the continuing provision of humanitarian aid by the latter. The Commission's effective implementation of the accompanying programme for the stabilisation of eastern Chad, whose purpose is to contribute to that region's rehabilitation and reconstruction, is worthy of note.

"In the context of the mid-term review of EUFOR Tchad/RCA, the Council had emphasised that an international military presence would still be needed in the region after the European force had departed to ensure that the progress achieved would be lasting. The adoption of UN Security Council Resolution 1834, which stated the United Nations' intention that a military component of MINURCAT should take over from EUFOR, is thus an important step.

"The European Union has expressed its hope that the United Nations will be able to expedite the preparations for an efficient transition, together with the planning and force generation, with a view to effective transfer of authority to a United Nations military operation when the EUFOR mandate expires on 15 March 2009.

"In this context, close cooperation has been established between the General Secretariat of the Council in Brussels, the operational headquarters at Mont Valérien (France) and the UN Department of Peacekeeping Operations in New York.

"Three non-Member States of the European Union are taking part in the operation: Albania, Croatia and Russia."

DEMOCRATIC REPUBLIC OF CONGO (DRC)

"The two ESDP missions, together with the European Community activities, have maintained their support for the Security Sector Reform (SSR) process in the Democratic Republic of the Congo (DRC) through the provision to the local authorities of expertise and technical assistance in the various areas involved (police, justice and defence). These activities are continuing despite the serious developments in the east of the Democratic Republic of the Congo in recent months.

"The extension of the EUSEC RD Congo Mission by one year, until 30 June 2009, demonstrates the European Union's ongoing commitment to supporting SSR in the field of defence and to the stabilisation of the Great Lakes Region. The EUSEC RD Congo mission has continued to provide support to the European Union Special Representative.

"As regards the renovation of the military administration, the EUSEC RD Congo mission has continued the biometric census of the Armed Forces personnel. At the request of the Congolese Minister for Defence, implementation of the chain-of-payments project has been extended to the whole of the Armed Forces.

"EUPOL RD Congo has, since it was launched in July 2007, continued to support the efforts to reform the Congolese National Police (CNP), in particular through the Police Reform Monitoring Committee (CSRP). The Mission also continues to facilitate links between the police and the various stages of the judicial system with the help of its justice interface.

"The Mission is pursuing preparations for deployment of its unit in the east of the country (Goma and Bukavu) and is closely following the way in which the security situation in the region is developing.

"In addition, a study visit by two Council working parties, the Committee for Civilian Aspects of Crisis Management and the Politico-Military Working Party, has been organised in December 2008. That visit should provide an opportunity to meet the EUSEC and EUPOL missions on the ground."

GUINEA-BISSAU

"The EUSSR GuineaBissau Mission to assist the local authorities in the process of Security Sector Reform with respect to police, justice and defence was launched on 16 June 2008 for an initial period of twelve months.

"There has been progress albeit not at a uniform pace in all three sectors. Despite a change of government in August, the Mission has been able to establish good relations with the local authorities, in particular through workshops organised in cooperation with the local bodies responsible for the reform process. The Mission is seen as an important contribution by the international community to the reform process.

"The Mission has established very good contacts with all the international actors involved in the reform process and in particular with the European Commission delegation, the representatives deployed under the Stability Instrument, United Nations suborganisations and ECOWAS. A meeting of the "Friends of GuineaBissau" organised by the European Commission on 4 November in Brussels stressed that increased coordination between actors would be necessary.

"The desire of the national political authorities for a successful conclusion of the reform process has been shown inter alia by completion of the census of the armed forces and the holding on 16 November of parliamentary elections which were deemed fair and transparent by international observers. That desire will be a sine qua non for the future commitment of the European Union and the international community."

8.15 The Minister then considers the area of Capabilities in greater detail:

Development of Civilian Capabilities

"In accordance with the plan for implementation of the new Headline Goal 2010, the process of planning civilian capabilities has focused in the second half of 2008 on the establishment of a civilian strategic option (on the basis of the common pilot illustrative scenario drawn up during the first half of 2008, a scenario supportive of both civilian and military ESDP capability development processes, taking into account the relevant capabilities available to the European Community).

"This civilian strategic option has served as the basis for drawing up a list of the capabilities necessary, with the emphasis on personnel requirements. The General Secretariat of the Council has launched a study of the possibility of Member States making available the experts required. In parallel, the Member States have been invited to confirm again or modify the indications regarding the possibility of making available civilian personnel for ESDP Missions which they gave for the Capability Headline Goal 2008.

"The General Secretariat of the Council has continued work on finalisation of the Civilian Capability Management Tool, and in particular of a specific software application comprising several interconnected modules on a secure internet site.

"On the issue of mission support, the implementation of a global work programme to strengthen capacity is continuing (traffic light). The lessons learned from the rapid deployment of the Mission in Georgia will help to reinforce the work that has been undertaken.

"On the issue of human resources, the expert workshops set up in the summer of 2008 under the "Human Resources Action Plan for Civilian ESDP Missions" are considering the requirements to be satisfied by such personnel together with the procedures for generating forces and for deployment. The final report, scheduled for the winter of 2009, will ensure a standard approach and the dissemination of best practice. The publicising of ESDP Mission calls for contributions on the websites of the Council General Secretariat and the Missions has continued (for example, in a context of rapid deployment, to recruit support staff for EUMM Georgia Mission). Finally, a review of the "guidelines for the daily allowances applicable to civilian ESDP personnel" has begun in order to adapt the existing system of allowances.

"Regarding the Civilian Response Teams (CRTs), the creation of a group of 100 experts, which was begun at the end of 2007, was concluded in the summer of 2008. A fifth induction training course for the Civilian Response Teams was held in October 2008 with financial support from the European Commission. The need to increase the number of experts in the fields of finance and procurement has already been highlighted. Efforts are continuing to train the members of the CRTs in order to equip them with the appropriate tools and facilitate their rapid deployment. In the second half of 2008, a Civilian Response Team comprising seven people was deployed in Georgia.

"The concept of Preparatory Measures (and preparatory teams, in the context of the preparatorymeasures budget line within the CFSP budget, still being drawn up) was tested in the case of planning the EUMM Georgia. That experience highlighted in particular the importance of deploying a sufficient number of administration experts and the need for an instrument making possible procurement for a forthcoming mission during the preparatory period. The lessons learned will be taken into account in the European Commission's Framework Decision on this budget line in 2009.

"On the issue of logistics, a framework document on logistics for Civilian ESDP Missions has been drawn up to provide common bases for all missions. A detailed logistics handbook covering all the necessary procedures is being finalised.

"Regarding procurement, the conclusion of framework contracts is continuing in order to establish a proper catalogue of contracts. The framework contract for offroad vehicles drawn up in the spring of 2008 plays a key role in equipping EULEX Kosovo whereas some difficulties are being experienced with implementation of the framework contract for armoured vehicles. For insurance policies and communication and information systems, contractual procedures are in progress. In future, the catalogue should be supplemented by framework contracts in the medical and container fields. In addition to this catalogue, a study is under way on possible equipmentstorage options to deal with immediatedeployment situations.

"The procurement and finance training of experts for ESDP Missions and CRTs continues to strengthen ESDP personnel capacity in these specialised fields. At the same time, common tools have been put in place, in particular a technical database for the preparation of calls to tender. Support reinforced by the deployment of a roving expert is also planned by the European Commission.

"A practical handbook to assist missions is being drawn up by the General Secretariat of the Council and the European Commission and will be distributed to missions via a secure website. A system for transmitting the missions' administrative reports to the General Secretariat of the Council and the European Commission has been put in place. All these developments might make it possible to decentralise funding powers to Heads of Mission.

"In further work on civilian capabilities, the Council of the European Union on 10 November 2008 endorsed Ministerial Commitments as regards the Development of Civilian Capabilities and a progress report on the implementation of the new Civilian Headline Goal 2010.

"The Council of the European Union on 10 November noted the statement that the Watchkeeping Capability and Civilian Planning and Conduct Capability had attained full operational capability in August and November 2008 respectively."

Development of Military Capabilities

HEADLINE GOAL 2010

"Within the context of the Headline Goal 2010, new contributions to the Force Catalogue have been announced by some Member States, and are currently being studied. They will be taken into account in a new version of the Force Catalogue, to be produced during the first half of 2009. The EUMC has launched work to draw up a methodology to measure progress on capability development.

"The Capability Development Plan, of which an initial version and a first series of priority actions were approved by the EDA Steering Board in July 2008, will enable the Member States to focus their capability efforts on areas where there are gaps in the European Union's operational capability.

"Through the "Defence Ministers' Military Capabilities Development Commitments", considerable efforts have already been made to contribute by means of concrete and operational initiatives to resolving those gaps and thus strengthen the European Union's external action capability."

FORCE PROJECTION

"A series of initiatives, launched in variable configurations, should enable the Member States concerned to ensure better force projection in external theatres:

"preparations with a view to the establishment of a European airlift fleet (signing of a Declaration of Intent by 12 Member States), the establishment of an A400M multinational unit (signing of a Declaration of Intent by four Member States) and the imminent establishment of a European airlift command, initiated by several Member States. Lastly, the projection of an airbase during the BAPEX national exercise will illustrate the deployment of an airbase for a European force.

"The European Carrier Group Interoperability Initiative, based on a Declaration of Intent signed by nine Member States, will promote the interoperability of European navies and their carrier air groups and improve the efficiency of EU and of NATO operations.

"With a view to improving helicopter deployment in crisis management operations, including EU ones, the EDA Steering Board has approved a roadmap with a view to the launch in 2010 of a tactical training programme for helicopter pilots, and the EDA has started work on upgrading helicopters, the preliminary results of which are due to be presented in the spring of 2009. A multinational helicopter fund has been put in place. This should allow the financing of initiatives, including projects in the EDA or NATO framework, relating to the training of pilots and crews and to the upgrading of helicopters. The intention to assign the ad hoc Franco-German project on a future transport helicopter to the EDA has been confirmed by both countries."

SPACE

"The future of the European Union's space observation capability must be ensured.

"A Letter of Intent has been signed by five Member States, which confirmed their intention to cooperate under the MUSIS project and to involve the EDA under an ad hoc project.

"The European Space Agency and the EDA are working, in their respective spheres of competence, to increase European space surveillance capability.

"Finally, considerable efforts have been made to facilitate access to government-source satellite images by the European Union Satellite Centre. This will enhance the Union's analysis capability for the conduct of ESDP crisis management operations and missions.

MARITIME

"European maritime surveillance capability should be improved, especially as a result of EDA initiatives, including the ad hoc project on the future surveillance UAV (Unmanned Air Vehicle) (with the participation of seven Member States) and the work on the networking of European maritime surveillance systems.

"A major effort will be made as regards maritime mine clearance following the launch by 10 Member States (plus Norway) of an ad hoc project in the EDA framework."

FORCE PROTECTION

"Progress has been made in the EDA framework with a view to the launch in 2009 of a programme to enhance and develop equipment to combat biological agents."

COMMUNICATION

"Work is under way on establishing communications and information systems, such as the EU OPSWAN (Operations Wide Area Network) system, connecting Brussels, EU operational headquarters provided by the Member States, and the agencies concerned, such as the EU Satellite Centre.

RAPID RESPONSE

"The review of the rapid response concept should be concluded as soon as possible. It will take into account the progress made since 2003: the drawing up of the battlegroup concept in 2006, and the drafting in 2007 of maritime and air rapid response concepts. This work will maintain a high level of ambition with regard to rapid response, from the planning phase.

"Progress has been made in the implementation of the Maritime Rapid Response and Air Rapid Response Concepts: at the Maritime Rapid Response and Air Rapid Response information conferences held in October 2008, the Member States reviewed the resources and capabilities they had declared for 2009, and gave their initial indications for 2010 and beyond.

"At the Battlegroups Coordination Conference held in October 2008, Member States committed themselves in detail to providing the required number of battlegroups up to the first half of 2011. A generic preparation guide for battlegroups was finalised in July; it will be used by those Member States which wish to do so, to prepare battlegroups before their standby period. The document provides for the harmonisation of battlegroup planning and training, and hence better interoperability between the forces of the Member States.

EUROPEAN MULTINATIONAL FORCES

"Multinational forces represent a considerable potential for the European Union's capability for external action. Work is in hand to facilitate the use of European multinational forces in ESDP operations.

The first stage, which is currently being studied, consists of identifying Member States' willingness to facilitate the use of such forces in the ESDP framework.

EVACUATING NATIONALS

"Issues relating to the mobilisation of military assets within the framework provided by the consular lead State concept are under consideration.

ORGANIZATION OF EUROPEAN UNION STAFF (EUMS)

"The European Union Watchkeeping Capability has been fully operational since 1 August 2008. It monitors all ESDP operations and missions.

"On 10 November 2008, the Council noted the implementation of the measures which it had asked the Secretary-General/High Representative to take, in May 2007 following the informal Ministerial meeting in Wiesbaden, regarding in particular enhancing the planning abilities of the EUMS, increasing its staffing, undertaking its provisional restructuring and reviewing its terms of reference.

"The EUMS was restructured in March 2008. The EUMS now has a team of military planners who have already been working to support the planning of the European Union mission in Georgia (EUMM Georgia), and planning for the European Union operation to combat piracy off the coast of Somalia (ATALANTA). The new military analysis and planning section of the Military Staff has only just completed its training period. New more selective recruitment criteria should make it possible to improve the quality of Military Staff personnel in the medium term.

"The Council has indicated that it will return to this matter at its meeting in May 2009, on the basis of a report from the Secretary-General/High Representative.

FEEDBACK FROM EXPERIENCE

"The Military Staff continued developing the "lessons learned" process (ELPRO — EUMS Lessons Process), which has proved to be a useful tool for managing feedback from experience in military activities. The database currently contains 455 lessons relating to 8 types of military activity (linked to operations, exercises and battle groups). Among them, 102 come from recent lessons learned from EUFOR CHAD/CAR, MILEX08 and the Nordic battle groups and HELBROC.

EUROPEAN DEFENCE AGENCY (EDA)[30]

"The Head of the Agency's report highlighted noticeable progress on finalising the strategic framework and implementing elements of it (the CDP and three strategies), and on preparing, generating and launching specific cooperative initiatives.

"The long-term strategic framework has been supplemented by:

— "the initial version of the Capability Development Plan (CDP), approved by the Steering Board in July, which will enable the Member States to focus their capability-related efforts. Twelve priority areas of action have been selected by the Member States;

— "two new strategies, one on European armaments cooperation and the other on defence research and technology in Europe, adopted by the Steering Board in October and November respectively.

"Concrete progress has been made in the implementation of the strategy to strengthen the European defence technological and industrial base (EDTIB), adopted in May 2007, in particular:

"(i) adoption of a Code of Conduct on offsets, aimed at mitigating their adverse impact on competition and the EDTIB; (ii) agreement on specific measures to support small and mediumsized enterprises (SMEs) and non-traditional suppliers;

"(iii) the encouraging continuation of efforts to open up defence markets in Europe through the Code of Conduct on defence procurement.

"In addition to the progress made on practical capabilities projects, the EDA has made substantial progress on specific projects and initiatives:

— "in the field of airworthiness, the setting up of a European Union forum for military airworthiness authorities;

— "provisional support for intelligence training activities;

— "increased efforts in cooperation on research and technology, with the signature of the arrangement for a defence research and technology Joint Investment Programme on innovative concepts and emerging technologies, and the launch of eight projects in the framework of the Joint Investment Programme on force protection.

"The EDA continued its efforts to ensure that its work is complementary with the Organisation for Joint Armament Cooperation (OCCAR) and the LoI, in compliance with the provisions of the Joint Action. In its statement on cooperation between the EDA and OCCAR, the Council called on the EDA to conclude an administrative arrangement with OCCAR, to organise the relationship between them. Cooperation between the two bodies will help to safeguard the continuity of the development of capability plans. The EDA continued its efforts to ensure that its work was consistent with NATO's, in accordance with the provisions of the Joint Action. The EDA also made a substantial contribution to the EU-NATO Capability Group."

EUROPEAN DEFENCE TECHNOLOGICAL AND INDUSTRIAL BASE (EDTIB)

"The European Union must pursue its efforts, also in the Community context and within the EDA, to secure a robust and competitive EDTIB capable of meeting the Member States' capability requirements and of supporting the ESDP. In particular, further consideration should be given to the questions of reinforcing security of supply, opening up national markets and strengthening supply chains, notably through measures to encourage SMEs."

Civil-Military Coordination

"The Council took note of the continuing work on Information Exchange Requirements, in the framework defined by the competent Council bodies.

"The Council also noted that a project on network-enabled capabilities in the ESDP framework is currently being examined by the relevant Council bodies. Development of the concept is to be based on work relating to Information Exchange Requirements (IER).

"The Secretary-General/High Representative intends to set up a single strategic civilianmilitary planning structure for ESDP operations and missions, aiming to enhance the coherence of the civilian and military aspects of our operations, which represent the European Union's specific and unique added value."

Conclusion

8.16 This period has seen the launch of both the EU's largest civilian mission and its first naval enterprise. But the Minister says nothing about any of the costs, so it is impossible to come to any conclusions about the pressure that may be being put upon the CFSP budget (of which the UK contributes some 17%) by this ever-increasing range of activity.

8.17 Nor is there any mention of the progress in developing an evaluation process for civilian ESDP missions, which was mentioned a year ago in the mandate for the Slovene Presidency.

8.18 More profoundly, we are very disappointed by the Minister's failure to respond to our request — first articulated in our report on the EUMS and then in a subsequent letter of 4 June 2008 to her predecessor — that any document reviewing the European Security Strategy should be deposited in good time for proper scrutiny ahead of its adoption by the December European Council. Moreover, that Council has adopted not only that document without any parliamentary scrutiny,[31] but also three Declarations or Statements — on the enhancement of European Security and Defence Policy, on strengthening capabilities[32] and on strengthening international security.[33]

8.19 The Declaration on Enhancing ESDP says that making good the shortfall in the resources available in Europe by gradually improving civilian and military capabilities is "the prerequisite for allowing Europeans to assume in a credible and effective manner their responsibilities under a renewed transatlantic partnership, to which the European Council reaffirms its commit", and sets "numerical and precise targets" to enable the EU, in the coming years, to conduct simultaneously, outside its territory, a series of civilian missions and military operations of varying scope, corresponding to the most likely scenarios.[34] This renewed goal requires a commitment to develop robust, flexible and interoperable capabilities. This, the Council says, will entail "innovative forms of specialisation, pooling and sharing of major equipment projects, with priority being given to planning, crisis management, space and maritime security." The Declaration "would also encourage the efforts of the Secretary-General/High Representative to establish a new, single civilian-military strategic planning structure for ESDP operations and missions." The Statement on Enhancing International Security "decides on specific actions to enable the EU to play a more active role in combating terrorism, proliferation of weapons of mass destruction, organised crime and cyber-attacks"; it includes, for example, the statement that the acquisition by Iran of a military nuclear capability "would constitute an unacceptable threat to our security, both regional and international."

8.20 These documents are bound to have major implications for the Committee's future work, as well as more widely for the work of Parliament. As well as having clearly indicated our wish for the Solana report to be deposited ahead of adoption we have also equally clearly indicated our interest in wider developments in both European Security and Defence Policy— particularly with regard to the question of planning capability, and the need to avoid duplication with NATO [35] — and Common Foreign and Security Policy.

8.21 We therefore ask the Minister not only to comment on the points in paragraphs 8.16 and 8.17 above but also to explain why the Solana report was not deposited ahead of adoption and why she felt unable to share with the Committee any of the thinking in these important statements of future policy.

8.22 We also ask, again, that she deposits the Solana Review, together with the other Declarations and Statements referred to above, along with an Explanatory Memorandum (or Explanatory Memoranda) summarising the key features and outlining her views thereon, and assessing the implications for British foreign and defence policy, and particularly the relationship between a burgeoning ESDP and NATO.

8.23 We ask that she does this in good time for us to make a further Report to the House before she gives evidence to us on 4 February 2009.

8.24 In the meantime, we shall retain the Report under scrutiny.

Annex 1: MANDATE FOR THE CZECH PRESIDENCY

"On the basis of the present report and taking into account the European Security Strategy, the incoming Presidency, assisted by the Secretary General/High Representative and in association with the Commission, is invited to continue work on developing the European Security and Defence Policy, and in particular:

"To prepare and ensure effective implementation of decisions relating to present and future missions and operations, both civilian and military.

"To continue to develop civilian capabilities in the framework of the Civilian Headline Goal 2010, taking into account the commitments of Ministers on the Civilian Capabilities approved on 10 November 2008, and to ensure follow-up to the initiatives for the enhanced effectiveness of civilian crisis management.

"To continue work on the development of military capabilities in the framework of the Headline Goal 2010, focusing on recommendations from the Progress Catalogue 07 in conjunction with the Capability Development Plan.

"To support the European Defence Agency (EDA) in its work, in particular with regard to the Capability Development Plan (CDP) and strengthening the European Defence Technological and Industrial Base (EDTIB), taking into account consequent steps elaborated by the EDA.

"To further develop work on concrete capability projects and initiatives, including those developed by the EDA.

"On the basis of the report and recommendations by the Secretary-General/High Representative which were adopted by the GAERC in November 2007, to continue work on implementing the recommendations addressing shortcomings in the EUMS's ability to conduct planning for EU-led operations at the strategic level, with a view to the SG/HR's presenting a report at the GAERC in May 2009.

"Relating to the civil-military coordination (CMCO), to further develop work on the EU Network Enabled Capability concept.

"To continue implementing the EU exercise programme, including conducting the comprehensive evaluation of CME 08 and taking forward the work on the planning of the Crisis Management Exercise CME 09.