The Work of the Committee in 2007-08 - Foreign Affairs Committee Contents

2  Scrutiny of foreign policy

7.   The Committee has continued to conduct in-depth scrutiny of threats to global security, the United Kingdom's foreign policy response to those threats, and the United Kingdom's strategic international priorities. In January 2007 we announced that our future work on these subjects would be conducted as part of an overall inquiry entitled 'Global Security', which would be pursued through a series of focused exercises. This would enable us to scrutinise the work and effectiveness of the FCO in one region at a time, as well as to look at issues on a thematic basis. We have subsequently produced four reports under the overarching 'Global Security' inquiry title, on the Middle East and Russia in Session 2006-07, and on Iran, and Japan and Korea in Session 2007-08. We intend in early 2009 to publish a further such report, on non-proliferation.

8.  7. In addition to our work on global security, we have continued our monitoring of other consistently important areas of policy. We have taken evidence on developments in the European Union, and produced a Report on foreign policy aspects of the Lisbon Treaty. We carried out a major review of the United Kingdom's relationship with its Overseas Territories and produced a Report on this subject. We met jointly with the Defence Committee to take oral evidence from Ministers on Iraq and Afghanistan. As in previous years we have contributed to the work of the Committees on Arms Export Controls (formerly the Quadripartite Committee). We deal in more detail with each of these aspects of our work in the following paragraphs.

Global Security: Iran

9.  Our third inquiry in the 'Global Security' series focussed on Iran, in particular on the challenge posed by its nuclear programme. We took evidence from FCO Ministers and officials, academics and other commentators, and a former Ambassador to Iran. In November 2007 we visited Tehran and Esfahan; during the visit we met, among other interlocutors, Iran's chief nuclear negotiator, Dr Saeed Jalili.

10.  Our Report was published in March 2008.[2] On the nuclear issue, we concluded that:

[w]hilst Iran's suspension of an active nuclear weapons programme since 2003 is welcome, its continued enrichment activities and questions over its previous conduct mean its potential to develop such a programme remains. […]although technological constraints are likely to prevent Iran from developing a nuclear weapon, if that is its intention, in the near future, there is nevertheless a strong possibility that it could establish a 'breakout' nuclear weapons capability by 2015.[3]

11.  Our Report made recommendations as to the options open to the international community in addressing the possibility of Iran obtaining nuclear weapons, and the implications of those options for regional and global security, nuclear proliferation and energy security.

12.  The Government in its response welcomed our Report as "add[ing] much value to the debate on how to maintain a balanced, effective and credible policy on this crucially important issue for the international community".[4]

Global Security: Japan and Korea

13.  We decided to follow up our work on the implications for global security of Iran's nuclear programme by considering the threat posed by North Korea's nuclear programme and the responses of the UK and other Western powers. This was as part of a wider inquiry looking at UK relations with Japan and the two Koreas. In May 2008, we visited Japan (Tokyo and Osaka) and Korea (Seoul and the Demilitarised Zone in South Korea, and the Kaesong Industrial Complex in North Korea).

14.  Our Report, published in November 2008, considered Japan's and South Korea's contribution to international security and peacekeeping, North Korea's nuclear programme and international efforts to bring it to an end, relations between North and South Korea, and the effectiveness of the Foreign and Commonwealth Office's work in pursuing UK policy priorities in its relations with these countries.

Developments in the European Union

15.  We have maintained our longstanding practice of hearing evidence from the Foreign Secretary prior to the biannual meetings of the full European Council. We publish the transcripts of these sessions, and regard this as a useful exercise in accountability in itself. In addition, from time to time we also examine particular European issues in more depth and produce a Report.

16.  In Session 2007-08 we carried out an inquiry addressing the foreign policy aspects of the Lisbon Treaty. We took oral evidence on four occasions between November 2007 and January 2008: from academics and a former senior official of the European Commission, from Rt Hon the Lord Owen, former Foreign Secretary, from the current Foreign Secretary, and (during a visit to Brussels) from Dr Javier Solana, the EU's High Representative for the Common Foreign and Security Policy. We published our report on 20 January 2008, in time for it to be listed on the House's Order Paper as relevant to the debate on Second Reading of the Government's European Union (Amendment) Bill, which gave effect to the Lisbon Treaty in UK law.[5]

17.  We have continued our practice of visiting the capital of the country which holds the EU presidency in each six-month period, while taking the opportunity of combining this with visits to other EU states, particularly those which have recently acceded or to countries which are applicants for accession. In January 2008, to mark the start of Slovenia's presidency, a group of us visited Brussels and Ljubljana, while another group revisited Kosovo. This latter visit enabled the visiting group to discuss with a range of interlocutors the international community's role in Kosovo's imminent declaration of independence, just as a new government took office in Priština. The group met the incoming President, Fatmir Sejdiu, on the day of his election.

18.  Likewise, in July 2008 a group of us visited Brussels and Paris at the start of the French presidency, while another group visited Cyprus. We felt it was appropriate to follow up our January 2007 visit to Cyprus in view of the transformed situation in the island following Demetris Christofias's election as President in February 2008, which has led to the opening of negotiations on a political settlement of the 'Cyprus problem' between Mr Christofias and the Turkish Cypriot leader, Mehmet Ali Talat. The visiting group met Mr Christofias, Mr Talat and their chief negotiators, together with other political leaders in both communities, and we have subsequently received informal briefings at Westminster on the developing political situation in Cyprus from Mr Alexander Downer, the UN Secretary General's Special Adviser on Cyprus, and from HM High Commissioner to Cyprus. We propose shortly to publish notes on these discussions in Cyprus and London.

Overseas Territories

19.  In June 2007 we announced an inquiry into the exercise by the FCO of its responsibilities in relation to the United Kingdom's fourteen Overseas Territories. This inquiry was the first by the Foreign Affairs Committee into the Territories (other than Gibraltar) for over a decade. We received over 200 written submissions and held five evidence sessions. At one of these, we took evidence from all but one of the representatives of Territory governments who had travelled to London for the annual Overseas Territories Consultative Council.

20.  In March 2008 we visited four Overseas Territories. We divided into three groups: one delegation visited Bermuda; the second group went to the Cayman Islands and the Turks and Caicos Islands; and the third group visited the Falkland Islands, with a brief stop on Ascension Island.

21.  We published our Report in July 2008.[6] For the convenience of readers, we divided it into two parts. Part One was thematic: it considered the Territories' constitutional relationship with the UK, the quality of governance in the Territories, the FCO's management of the risks and contingent liabilities to which the Territories expose the UK, and progress on resolving sovereignty disputes. Part Two considered each of the Territories individually, summarising their geography, history and constitutions, and highlighting relevant recommendations from Part One.

22.  The Government responded to our Report in September 2008.[7] On one significant issue our inquiry had prompted an earlier response. In the Report we stated that we were very concerned by the serious allegations of corruption we had received from the Turks and Caicos Islands (TCI). We noted that hitherto the onus had been placed on local people to substantiate allegations. We commented that this approach "is entirely inappropriate given the palpable climate of fear on TCI", and we recommended that the Government should announce a Commission of Inquiry, with full protection of witnesses.[8] In May 2008 we had held a private meeting with the FCO Minister, Meg Munn, to express our concerns about these allegations. On 10 July the Governor of TCI announced the appointment of a Commission of Inquiry. The Commissioner is the former Appeal Court judge, Sir Robin Auld, who has been asked to report his findings to the Governor by February 2008.

23.  At the end of our Report we concluded that:

it is deplorable and totally unacceptable for any individual who has assisted the Committee with its inquiry to be subjected to threats, intimidation, or personal sanctions or violence in any form. If the Committee is informed of any such retaliatory measures being taken against any person who has submitted formal or informal evidence to this inquiry, it will take all appropriate steps within its powers.[9]

Global Security: Non-Proliferation

24.  In July 2008 we announced that we would examine the work of the British Government in working towards the FCO's policy goal on countering weapons proliferation and its causes. The inquiry as initially announced encompassed the proliferation of nuclear, chemical and biological weapons, and the role of ballistic missiles. In October 2008 we amended the inquiry's terms of reference to include also conventional weapons.

25.  In particular, we are looking at:

• The British Government's non-proliferation approach, as set out in the National Security Strategy;
• The effectiveness of the current rules-based international system in curbing current weapons proliferation;
• The potential merit of current diplomatic initiatives on non-proliferation, for instance the 2010 Nuclear Non-Proliferation Treaty Review Conference and the proposed Arms Trade Treaty; and
• The role of arms control and disarmament, including nuclear disarmament, in non-proliferation efforts.

26.  We have so far held three evidence sessions in this inquiry, taking evidence from Baroness Williams of Crosby, the Prime Minister's Adviser on Nuclear Proliferation, Lord Robertson of Port Ellen, former Nato Secretary-General, Sir Michael Quinlan, former Permanent Secretary at the Ministry of Defence, and academic commentators. We propose to hold further evidence sessions in the New Year. We also intend in January 2009 to visit the Conference on Disarmament in Geneva and the International Atomic Energy Authority in Vienna.

Iraq and Afghanistan

27.  We heard evidence on Iraq and Afghanistan in October 2008 jointly with the Defence Committee from both the Foreign and Defence Secretaries. This followed up an earlier joint meeting with the Defence Committee in January 2007 when we had taken evidence on Iraq.

Committees on Arms Export Controls

28.  The Committee has played a full part, together with colleagues from the Business and Enterprise, Defence and International Development Committees, in the work of the 'Committees on Arms Export Controls' (CAEC), formerly the 'Quadripartite Committee'. CAEC's main job is to review government policy on licensing arms exports and licensing decisions. Each year the Government produces an annual report on strategic export controls which CAEC scrutinises.

29.  In 2008 CAEC took oral evidence for the first time from the Ministry of Defence, as well as taking evidence from the Department for Business, Enterprise and Regulatory Reform (BERR), the Expert Group on Aerospace and Defence, and from several NGOs. It visited the biennial international defence exhibition held in Docklands, London,[10] and the Port of Southampton to inspect HM Revenue and Customs' operations at the Port.

30.  CAEC published its annual report in July 2008.[11] This considered the first two tranches of secondary legislation to emerge from the Government's current review of export controls. It welcomed the extension of extra-territorial controls to the trade in small arms and light weapons, portable anti-aircraft weapons and cluster bombs - all deemed to be high-risk items which may end up in the hands of terrorists. CAEC recommended that Parliament should go further and make it illegal for British citizens overseas, as well as everyone living in the UK, to trade in any form of arms or weaponry between overseas countries without a licence, i.e. that extra-territorial provisions should cover all the weapons which appear in the UK's 'Military List'.

31.  In its annual report CAEC expressed unhappiness at the deadline of two weeks it was given to comment on the second tranche of draft secondary legislation, and recommended that at least two months be allowed for the third tranche.[12] However, the third tranche arrived in September 2008, with a response deadline in October, again giving the Committees little time to examine the draft. CAEC has expressed its dissatisfaction at this situation to the Liaison Committee, which has conveyed its views to BERR.

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2   Foreign Affairs Committee, Fifth Report of Session 2007-08, Global Security: Iran, HC 142 Back

3   Ibid., para 23 Back

4   Fifth Report of the Foreign Affairs Committee, Session 2007-08, Global Security: Iran: Response of the Secretary of State for Foreign and Commonwealth Affairs, Cm 7361, May 2008 Back

5   Foreign Affairs Committee, Third Report of Session 2007-08, Foreign Policy Aspects of the Lisbon Treaty, HC 120-I Back

6   Foreign Affairs Committee, Seventh Report of Session 2007-08, Overseas Territories, HC 147-I Back

7   Seventh Report of the Foreign Affairs Committee, Session 2007-08, Overseas Territories: Response of the Secretary of State for Foreign and Commonwealth Affairs, Cm 7473 Back

8   Foreign Affairs Committee, Seventh Report of Session 2007-08, Overseas Territories, HC 147-I, para 196 Back

9   Foreign Affairs Committee, Seventh Report of Session 2007-08, Overseas Territories, HC 147-I, para 439

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10   DSEi (Defence Systems and Equipment International) Back

11   Business and Enterprise, Defence, Foreign Affairs and International Development Committees, First Joint Report of Session 2007-08, Scrutiny of Arms Export Controls (2008): UK Strategic Export Controls Annual Report 2006, Quarterly Reports for 2007, licensing policy and review of export control legislation (HC 254). The Government's reply was published as Cm 7485 in November 2008. Back

12   HC (2007-08) 254, para 14 Back

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Prepared 15 January 2009