19 EU Special Representative in the former
Yugoslav Republic of Macedonia
| (30866) —
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| Council Joint Action extending the mandate of the European Union Special Representative in the former Yugoslav Republic of Macedonia (FYROM)
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| Legal base | Articles 14, 18.5, and 23.2; QMV
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| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 27 August 2009
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| Previous Committee Report | None; but see (30352) — HC 19-iv (2008-09), chapter 2 (21 January 2009)
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| To be discussed in Council | 14-15 September 2009 General Affairs and External Relations Council
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| Committee's assessment | Politically important
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| Committee's decision | Cleared
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Background
19.1 EU Special Representatives (EUSRs) are appointed to represent
Common Foreign and Security Policy where the Council agrees that
an additional EU presence on the ground is needed to deliver the
political objectives of the Union. They were established under
Article 18 of the 1997 Amsterdam Treaty and are appointed by the
Council. The aim of the EUSRs is to represent the EU in troubled
regions and countries and to play an active part in promoting
the interests and the policies of the EU.
19.2 An EUSR is appointed by Council through the
legal act of a Joint Action. The substance of his or her mandate
depends on the political context of the deployment. Some provide,
inter alia, a political backing to an ESDP operation, others
focus on carrying out or contribute to developing an EU policy.
All EUSRs carry out their duties under the authority and operational
direction of the High Representative (Javier Solana). Each is
financed out of the CFSP budget implemented by the Commission.
Member States contribute regularly e.g. through seconding some
of the EUSR's staff members.
19.3 The Committee last considered the mandate of
the EUSR to Macedonia in January 2009, along with those of four
other EUSR's — Kosovo, Bosnia and Herzegovina, the African
Great Lakes Region and Sudan. The Council was asked to approve
a twelve-month extension of the mandates unchanged, with the exception
of the EUSR for the FYROM, where the proposed mandate extension
was six months.
19.4 The EUSR for Macedonia, Erwan Fouéré,
was initially appointed under a Joint Action adopted on 17 October
2005. His mandate is to contribute to the consolidation of the
peaceful political process and the full implementation of the
NATO-brokered 2001 Ohrid Framework Agreement, which it was hoped
would facilitate further progress towards EU accession through
the Stabilisation and Association Process.[68]
The position is double-hatted with the post of Head of the European
Commission Delegation in Skopje.
19.5 The then Minister for Europe at the Foreign
and Commonwealth Office (Caroline Flint) explained the proposal
as follows in her Explanatory Memorandum of 14 January 2009.
"The continued presence of an EUSR provides
an essential contribution to the consolidation of peace, stability
and the rule of law in Macedonia. The EUSR plays a key role in
ensuring that the necessary efforts and reforms take place for
the full implementation of the 2001 Ohrid Framework Agreement,
which ended fighting between the ethnic Albanian National Liberation
Army and Macedonian security forces. These reforms are key for
improving rights of ethnic Albanians through respect for minority
languages, an increased role in the national parliament and an
agenda for decentralization. The EUSR also offers advice and facilitates
political progress, working to foster a climate of trust and dialogue
conducive to implementing reforms necessary to progress towards
the EU.
"These remain essential goals, in line with
the latest European Commission progress assessment, which underlined
in particular the need for more constructive and inclusive political
dialogue focused on delivering reform progress.
"We judge that the political and security situation
in Macedonia has been moving forward positively overall, but that
there remain challenges particularly in the light of the recent
and forthcoming elections. Parliamentary elections in 2008 were
marred by violence and intimidation as well as electoral malpractice,
a key problem picked out by the Commission's annual assessment
of progress. There will need to be an improvement in conduct of
forthcoming Presidential and local elections which will take place
in March 2009. If elections are conducted well, we will review
the need for a continuing EUSR presence.
"A distinct reporting chain is in place for
Mr Fouéré's two roles. The EUSR acts under the authority
and operational direction of the High Representative for the Common
Foreign and Security Policy, Javier Solana, as far as his tasks
as EUSR are concerned, and under the authority and operational
direction of the European Commission as far as his tasks as Head
of the Commission Delegation are concerned. This double-hatting
arrangement has led to increased EU internal coherence and co-ordination
in the field, thus enhancing the impact and cost-effectiveness
of EU action. The Government therefore supports the retention
of double-hatting in Macedonia. The mandate is being extended
for a further 6 months, rather than a full year, to coincide with
the period of Mr Fouérés appointment."
FINANCIAL IMPLICATIONS
19.6 The costs of EU Special Representatives are
met from the CFSP budget, to which the UK currently contributes
approximately 17%. Information provided by the then Minister on
the budget allocation was:
| Former Yugoslav Republic of Macedonia
| Total: €305,000
| UK share: €60,000 (£45,000)
|
Our assessment
19.7 As the then Minister made clear, two of the EUSRs were involved
in deep-seated crises far from Europe, while those in the Balkans
were, in two instances, taking over complex and challenging responsibilities
hitherto exercised by the wider international community. All in
all, given vivid ways in which these EUSR mandates illustrated
how the breadth and depth of the EU's Common Foreign and Security
Policy had developed in the decade since its inception, and conscious
of the wide interest in this issue in the House, we accordingly
recommended that these draft Joint Actions be debated in European
Committee B. That debate took place on 2 March 2009.[69]
The draft Joint Action
19.8 This Joint Action extends the appointment of Erwan Fouéré
as the EUSR in Macedonia for a further six months, under his existing
mandate.
The Government's view
19.9 In his Explanatory Memorandum of 27 August 2009, the Parliamentary
Under-Secretary of State Foreign and Commonwealth Office (Chris
Bryant) continues to endorse the appointment on the same basis
as did the then Minister for Europe at the beginning of the year
(c.f. the first two sub-paragraphs of paragraph 19.5 above). He
continues as follows:
"We judge that the political and security situation in Macedonia
has been steadily improving overall, but there remain some challenges.
Following the violence and intimidation, and electoral malpractice
witnessed in the 2008 Parliamentary elections, Presidential and
local elections this year showed an improvement in conduct. However,
there are still tensions in the political climate, particularly
over progress in implementing the OFA, with one ethnic Albanian
party boycotting Parliament and questioning the continuing validity
of the Agreement. The forthcoming months will be crucial as the
Macedonian government manages key pieces of legislation and responds
to the Commission's annual assessment of progress. If it does
well and the political climate improves, we will review the need
for a continuing EUSR presence."
19.10 The mandate is, he says, "being extended for a further
6 months, rather than a full year, recognising the improvement
in the political and security situation in Macedonia."
19.11 The Minister continues to endorse the "double-hatting"
arrangement, which he says has "led to increased EU internal
coherence and co-ordination in the field, thus enhancing the impact
and cost-effectiveness of EU action."
19.12 Finally, the Minister says that the additional
cost will be €263,000.
Conclusion
19.13 This further six-month extension seems sensible,
and raises no questions. We report it to the House because of
the continuing interest in developments in the Balkans and their
impact on the enlargement process.
19.14 We now clear the document.
68 The strategic framework for the EU's policy towards
the Western Balkan region. Back
69
See http://www.publications.parliament.uk/pa/cm200809/cmgeneral/euro/090302/90302s01.htm
for the record of that debate. Back
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