14 EU Special Representatives
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| Council Joint Action extending the mandate of the European Union's Special Representative for the Crisis in Georgia
Council Joint Action extending the mandate of the European Union Special Representative in Moldova
Council Joint Action extending the mandate of the European Union Special Representative in Afghanistan
Council Joint Action extending the mandate of the European Union Special Representative for the Middle East Peace Process
Council Joint Action extending the mandate of the European Union Special Representative for Central Asia
Council Joint Action extending the mandate of the European Union Special Representative for the South Caucasus
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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 January 2009
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| Previous Committee Report | None; but see (30336) and (30351-4) — HC 19-iv (2008-09), chapter 2 (21 January 2009)
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| To be discussed in Council | 10 February 2009 Economic and Finance Council
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| Committee's assessment | Politically important
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| Committee's decision | Cleared; relevant to debate in European Committee B on other mandates to be renewed (reported to the House on 21 January 2009)
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Background
14.1 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 are appointed by the Council
under Article 18 EU. 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.
14.2 An EUSR is appointed by Council under a Joint
Action. The substance of his or her mandate depends on the political
context of the deployment. Some provide a political backing to
an ESDP operation, others focus on carrying out or contributing
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 also contribute directly, via
secondment to the EUSR's staff.
14.3 In February 2006, EUSR mandates were in principle
extended for 12 months rather than the previous arrangement of
6 months, so as to enable extensions to be based on a more thorough
reporting cycle. EUSRs are required to prepare progress reports
in mid-June and mandate implementation reports in mid-November.
14.4 The EUSRs currently in office cover the following
regions: Afghanistan, the African Great Lakes Region, the African
Union, Bosnia and Herzegovina, Central Asia, Kosovo, the former
Yugoslav Republic of Macedonia, the Middle East, Moldova, Sudan,
the South Caucasus and, most recently, the Crisis in Georgia.
Some EUSRs are resident in their country or region of activity,
while others work on a travelling basis from Brussels.[40]
The Council Decisions
14.5 These draft Council Decisions extend the mandate
of six of them — Moldova, Afghanistan, the crisis in Georgia,
Central Asia, the South Caucasus and the Middle East Peace Process.
14.6 The Council is being asked to approve a twelve-month
extension of unchanged mandates. The comments of the Minister
for Europe at the Foreign and Commonwealth Office (Caroline Flint)
in her Explanatory Memorandum of 27 January 2009 on each one are
in italics beneath the summary.
The Crisis in Georgia
14.7 This Joint Action extends the mandate of the
EUSR for the Crisis in Georgia, Ambassador Pierre Morel, for 12
months until 28 February 2010. The EU established a Special Representative
for the Crisis in Georgia in September 2008 to ensure coordination
and consistency of external EU actions in the region. Ambassador
Morel also holds a concurrent mandate as EUSR for Central Asia
(see paragraph 14.9 below).
14.8 The EUSR's mandate is based on the objectives
established by the conclusions of the extraordinary European Council
meeting in Brussels on 1 September 2008[41]
and the Council conclusions of 15 September on Georgia.[42]
The EUSR's role is to enhance the effectiveness and visibility
of the EU in helping to resolve the conflict in Georgia.
14.9 In her Explanatory Memorandum, the Minister
explains that:
"Ambassador Morel was appointed EUSR for
Central Asia in 2006. The Government welcomed the additional appointment
of Ambassador Morel as EUSR for the Crisis in Georgia in September
2008. We support his reappointment; he has worked well with the
other EUSRs, relevant partners and international organisations
(e.g. the OSCE, UNOMIG) in the region. He has promoted good
governance and respect for human rights in an unpromising situation.
We wish him to remain beyond February 2009 to signal the EU's
continued serious commitment to these issues. Other good work
by Morel for Georgia includes the proposed incident
resolution mechanism, even though it has not yet come off;
his support for the Geneva Talks as a long-term process and his
personal commitment to them; his good relations with Karasin (Russian
Deputy Foreign Minister).
"Not renewing Morel's mandate would risk
causing uncertainty about EU commitment to Georgia at a delicate
time for the Geneva process and for decisions about the international
presence in Georgia.
"The Czech Presidency plans summits on the
Eastern Partnership and on the Southern Corridor: these are issues
where the benefits we hope will arise from Morel doing both jobs
can best emerge."
Moldova
14.10 Kalman Mizsei was appointed EU Special Representative
for Moldova on 15 February 2007 succeeding Adriaan Jacobovits
de Szeged. His mandate is focused on strengthening the EU's contribution
to the resolution of the Transnistria conflict in close coordination
with the Organisation for Security and Co-operation in Europe
(OSCE).
14.11 The EUSR also contributes to EU policy in other
areas, including improving EU-Moldova relations, contributing
to the strengthening of democracy and the rule of law, and assisting
in the fight against trafficking of weapons, other goods and people.
The role also complements the work of the European Commission's
office, which opened in Moldova in October 2005, including on
implementation of the EU-Moldova European Neighbourhood Policy
Action Plan 2009.
14.12 The Minister says:
"The Government supports the work of the
EUSR and the extension of the mandate because we would like to
see resolution of the conflict in Transnistria. Resolution would
remove a barrier to Moldova's reform and gradual integration with
the EU. Resolving Transnistria, and Moldovan reform and integration
would in turn promote greater stability in the region, thereby
supporting our objectives in Ukraine. Since his appointment, the
EU Special Representative has actively contributed to maintaining
international pressure for dialogue. The EU Special Representative
has also played a key role in implementing the EU's Border Assistance
Mission (EUBAM). The Mission aims to provide effective control
of the Ukrainian-Moldovan border, particularly the Transnistrian
segment. As the Transnistrian regime derives much of its income
from smuggling across the Moldovan-Ukrainian border, the Mission
has put pressure on it for the first time.
"2009 will also be an important year for
Moldova as the EU negotiates a successor to the European Neighbourhood
Policy (ENP) agreement."
Afghanistan
14.13 This Joint Action extends the appointment of
Ettore Sequi as the EUSR in Afghanistan for one year. His mandate
encompasses support to the government of Afghanistan, in particular
in the implementation of the EU-Afghanistan Joint Declaration,
support to the United Nations in Afghanistan, liaison with regional
countries in support of EU policy, supporting the EU's work on
human rights and coordination of EU work in Afghanistan.
14.14 The Minister says:
"The Government supports the extension of
this mandate. The European Union and Afghanistan's partnership
is defined by the Strasbourg Declaration of 16 November 2005.
The joint commitments made in this Declaration are kept under
review by periodic meetings between the Afghan government and
the EU.
"The EU (specifically, the European Commission
and member states) is a major donor to Afghanistan, having disbursed
or pledged $7.5bn between 2002 and 2011, including over $5bn of
pledges in support of the Afghan National Development Strategy
at the Paris conference in June 2008.
"EU member states provide approximately 16,000
troops to International Security Assistance Force. The EU launched
its Police Mission to Afghanistan (EUPOL) in June 2007.
"The EU Special Representative will continue
to play an important role in focusing the EU effort, and ensuring
that it dovetails with the work of other bilateral and multilateral
partners. The Afghan government and international partners, particularly
the UN, continue to insist upon the need for greater international
coordination in Afghanistan. In view of the many challenges facing
the country this year, particularly the Presidential elections
and the difficult security situation in the south and east of
the country, the need for effective international engagement is
even greater."
Middle East Peace Process
14.15 There has been an EUSR for the Middle East
Peace Process since 1996. The incumbent, Marc Otte, was appointed
on 14 July 2003. His mandate is based on the EU's policy objectives
which (as the Minister puts it) include a two-state solution with
Israel and a democratic, viable, peaceful and sovereign Palestinian
state, living side by side within secure and recognised borders
and enjoying normal relations with their neighbours, in accordance
with United Nations Security Council Resolutions 242, 338, 1397,
1402, 1850, 1860 and the principles of the Madrid conference.
14.16 The EUSR offers advice and conveys the position
of the EU to all parties, thereby contributing to the implementation
of EU policy on the process as agreed by the Council of Ministers.
The EUSR also represents the EU in meetings of the Quartet (UN,
EU, Russia and the US) at Envoy level.
14.17 The Minister says:
"The EUSR continues to play a valuable role
in the EU's support of the Middle East Peace Process, as demonstrated
by his involvement on the ground during the current crisis in
Gaza.
"Current focus is on the aftermath to hostilities
in Gaza and to that end the mandate is clear about the importance
of the EUSRs role in working towards the reopening of the crossings
and facilitating cooperation on security issues.
"Longer term the focus remains on how to
achieve the well established MEPP objectives, including a return
to Israeli-Palestinian negotiations.
"The Government judges that the role of the
EUSR remains an important tool of EU policy towards the Middle
East Peace Process and therefore supports the renewal of the mandate."
Central Asia
14.18 The EU established a Special Representative
for Central Asia in September 2005 to ensure coordination and
consistency of external EU actions in the region. Mr Pierre Morel
was appointed in September 2006. As well as enhancing EU effectiveness
and visibility in the region, the EUSR also aims to contribute
to the strengthening of democracy, rule of law, good governance
and respect for human rights and fundamental freedoms in Central
Asia. It was amended by a Joint Action on 15 February 2007 to
allow the Special Representative to contribute to wider Common
Foreign and Security Policy work on energy security, and to help
develop bilateral energy cooperation with important producer and
transit partners in Central Asia. It was further refined in Joint
Action 2007/113/CFSP of September 2007 following the adoption
of a new EU Strategy for Central Asia at the June 2007 European
Council. That Council assigned to the EUSR an enhanced role in
monitoring the implementation of the Strategy, making recommendations
and reporting to relevant Council bodies on a regular basis. It
also added a specific tasking for the EUSR to contribute to the
formulation of counter-narcotics aspects of the Common Foreign
and Security Policy. Pierre Morel's mandate was amended most recently
by Joint Action 2008/900/CFSP of 2 December 2008, which added
water management aspects to his responsibilities.
14.19 The Minister says:
"The Government welcomed the creation of
an EUSR for Central Asia and the appointment of Jan Kubis in July
2005 (Joint Action 2005/588 of 28 July 2005) followed by Pierre
Morel in October 2006 (2006/670/CFSP of 5 October 2006). As EU
Special Representative, Mr Morel has travelled extensively and
contributed to EU discussions on policy towards the region, including
on energy security and counter-narcotics. He has been effective
in raising the profile of the EU in Central Asia.
"We expect that the EU Special Representative
to continue to provide a common focus for delivering EU messages
not just on key human rights issues, but also on the benefits
of regional co-operation and on potential EU assistance in helping
the region to address some of its shared socio-economic difficulties.
We and EU partners have every reason to believe that Pierre Morel
will build on a significant record of achievement to date if he
continues as EUSR for Central Asia. The Government therefore supports
the extension."
SOUTH CAUCASUS
14.20 Peter Semneby was appointed EUSR for the South
Caucasus on 20 February 2006. He is tasked with assisting Armenia,
Azerbaijan and Georgia in carrying out political and economic
reforms; preventing conflicts in the region and contributing to
the peaceful settlement of conflicts, including through promoting
the return of refugees and internally displaced persons; engaging
constructively with main interested actors concerned with the
region; encouraging and supporting further cooperation between
States of the region, including on economic, energy and transport
issues; and enhancing the effectiveness and visibility of the
EU in the region.
14.21 The Minister says:
"Working with and through the EU forms
a key part of the UK's engagement with the three South Caucasus
countries, and the work of the EUSR forms an important part of
this engagement. His high-level political work supports the countries'
implementation of the European Neighbourhood Policy Action Plan,
which provides both a solid base for EU engagement — ensuring
that we and our EU partners adopt a coherent approach to the South
Caucasus — and is aligned with Government objectives in
the region. The EU will review the Action Plans for each of the
South Caucasus countries over the course of this year and aims
to agree successor documents under the proposed Eastern Partnership
"We are also encouraging the EU to play
a more substantive role in helping to prevent and resolve conflict
throughout the region, including through targeted and practical
funding of projects as well as maintaining high-level dialogue.
The mandate of the EUSR for the South Caucasus
was amended in October 2008 to reflect the appointment of an EUSR
for the Crisis in Georgia and the establishment of the EU Monitoring
Mission (EUMM) to Georgia. The work of the EUSR for the South
Caucasus is complementary to, and wider ranging than, the work
of the EUSR for the Crisis in Georgia and EUMM. At the same time,
the EUSR for the South Caucasus has provided useful guidance on
the local political situation to both the EUSR for the Crisis
in Georgia and the Head of the EUMM."
FINANCIAL IMPLICATIONS
14.22 The costs of EU Special Representatives are
met from the CFSP budget, to which the UK currently contributes
approximately 17%. Information provided by the Minister on budget
allocations for 1 March 2009-28 February 2010 for these five EUSRs
(which is less consistent, one with the other, than we would have
liked), is as follows:
| EUSR |
Budget Allocation
| Anticipated UK Contribution (€)
| Anticipated UK Contribution (£)
|
| Georgia
| €1,100,000 | —
| £176,800 |
| Moldova
| €1,178,000 | €200,226
| £180,000 |
| Afghanistan
| €2,850,000[43]
| €484,000 | £453,000
|
| MEPP |
€1,200,000 | —
| £191,000 |
| Central Asia
| €1,100,000 | —
| £176,800 |
| South Caucasus
| €1,100,000 | —
| £176,800 |
TIMETABLE
14.23 The Minister expects these Council Joint Actions to be agreed
at the 10 February Economic and Financial Council.
Conclusion
14.24 These mandates continue to provide a vivid illustration
of the breadth and depth of CFSP, of which the EUSRs are a key
component, a decade after its inception. All would appear to have
a role to play; all seem to be doing a good job, within the bounds
of the possible.
14.25 We clear the documents, which we are reporting
to the House because of the wide interest in the EU's Common Foreign
and Security Policy and European Security and Defence Policy.
14.26 We also consider them relevant to the debate
that we recommended should be held on the mandates of the EUSRs
to Kosovo, Bosnia and Herzegovina, Former Yugoslav Republic of
Macedonia, African Great Lakes Region and Sudan at our meeting
on 21 January.[44]
40 See http://consilium.europa.eu/cms3_fo/showPage.asp?id=263&lang=EN
for full information on the EU Special Representatives Back
41
The Council Conclusions are available at http://www.consilium.europa.eu/ueDocs/cms_Data/docs/pressData/en/gena/102338.pdf
Back
42
See page 8 of the Council Conclusions, available at http://www.consilium.europa.eu/ueDocs/cms_Data/docs/pressData/en/gena/102804.pdf
Back
43 The Minister says that this compares to an overall
budget of €4.05 million (£3.8m) for 2008-9, the bulk
of which savings have been made following Italy's decision to
provide gratis close protection for EUSR Sequi (who, prior to
this appointment, was the Ambassador of Italy in Afghanistan).
Back
44
See headnote: HC 19-iv (2008-09), chapter 2 (21 January 2009) Back
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