66 EU Special Representatives
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Draft by the High Representative on the extension of the mandate of the EUSR for Afghanistan, the African Great Lakes Region, the African Union, Bosnia and Herzegovina, Central Asia, the former Yugoslav Republic of Macedonia, the crisis in Georgia, the Middle East Peace Process, the Republic of Moldova, the South Caucasus, Kosovo and Sudan
Council Decision extending the mandate of the European Union Special Representative for Afghanistan
Council Decision extending the mandate of the European Union Special Representative for the African Great Lakes Region
Council Decision amending and extending the mandate of the European Union Special Representative for the African Union
Council Decision extending the mandate of the European Union Special Representative for Bosnia and Herzegovina
Council Decision extending the mandate of the European Union Special Representative for Central Asia
Council Decision extending the mandate of the European Union Special Representative for the crisis in Georgia
Council Decision extending the mandate of the European Union Special Representative for the former Yugoslav Republic of Macedonia (FYROM)
Council Decision extending the mandate of the European Union Special Representative for the Middle East Peace Process
Council Decision extending the mandate of the
European Union Special Representative for Moldova
Council Decision extending the mandate of the European Union Special Representative for the South Caucasus
Council Decision extending the mandate of the European Union Special Representative for Sudan
Council Decision extending the mandate of the European Union Special Representative for Kosovo
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Legal base | Articles 28, 31 (2 ) and 33 TEU; QMV
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Department | Foreign and Commonwealth Office
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Basis of consideration | EM of 2 August 2010
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Previous Committee Report | None; but see (31290-1) , (31295-99) and (31300-04) (2009-10): HC 5-xi (2009-10), chapter 8 (9 February 2010)
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To be discussed in Council | To be determined
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Committee's assessment | Politically important
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Committee's decision | Cleared; further information requested
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Background
66.1 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.
66.2 An EUSR is appointed by Council through the
legal act of a Council Decision (formerly 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. Some EUSRs are resident
in their country or region of activity; others work on a travelling
basis from Brussels.
66.3 All EUSRs carry out their duties under the authority
and operational direction of the High Representative of the Union
for Foreign Affairs and Security Policy (HR; Baroness Catherine
Ashton). 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.
66.4 In June 2005 the Political and Security Committee
decided that EUSR mandates should in principle be extended for
12 months rather than the previous arrangement of six months.
This was put into effect in February 2006. The UK supported this
proposal, as it enables extensions to be based on a more thorough
reporting cycle. The renewed mandates now also ask EUSRs to prepare
progress reports in mid-June and mandate implementation reports
in mid-November.
66.5 The European Union currently has 11 EUSRs dealing
with 12 areas (one EUSR carries out two functions): Afghanistan,
the African Great Lakes Region, the African Union, Bosnia and
Herzegovina, Central Asia, Georgia, the former Yugoslav Republic
of Macedonia, Kosovo, the Middle East, Moldova, the South Caucasus
and Sudan.
66.6 The previous Committee considered the most recent
changes to their mandates on the basis of two Explanatory Memoranda
of 3 February 2010 from the then Minister for Europe at the Foreign
and Commonwealth Office (Chris Bryant). He explained that, the
earlier decision of the PSC notwithstanding, on this occasion
the Council Decisions were to be extended, not for the usual twelve
months, but only until 31 August 2010, or until the establishment
of the European External Action Service (EEAS), whichever was
the earlier; and that the HR intended to revert to the matter
in the light of further work on the EEAS.[289]
66.7 The Council Decisions concerning the latest
proposed extensions, and some of the history, mandate and activities
of each EUSR, is helpfully summarised by the Minister for Europe
(Mr David Lidington) in his Explanatory Memorandum of 2 August
2010. His comments on each one are in italics beneath the summary.
Afghanistan
66.8 The Minister says that the UK fully supports
the work of the EUSR, Mr Vygaudas Uackas, and the extension
of his mandate for six months or more. He describes him as a senior
political figure, in a strengthened, double-hatted position; a
welcome signal of the EU's intention to up its game in Afghanistan;
and key to driving forward the EU Action Plan for Afghanistan,
adopted at the October Council last year ("the roadmap for
a better coordinated, more focussed EU civilian effort in Afghanistan")
and for unified EU support to the Afghan Government for the implementation
of commitments made at the Kabul Conference.
"Usackas
was an early proponent of an EU Assistance Team for the Afghan
parliamentary elections in September, demonstrating his ability
to spot where the EU can add value to the wider international
effort.
"His efforts have helped secure the deployment
of an in-country Assistance Team over the elections period, which
will make a significant contribution both to credible and inclusive
elections and in support of the Afghan Government's commitment
to longer-term electoral reform. He is also the last piece in
the jigsaw to up the international civilian effort, following the
appointment of heavyweight figures for the role of NATO Senior
Civilian Representative and the UN Special Representative for
the Secretary General. Key to the civilian effort in Afghanistan
will be enhanced co-ordination between these three roles.
"The UK is keen to see Usackas' mandate extended
for significantly longer than 6 months. Given the hardship conditions
in Kabul, the EU mission there is having trouble recruiting and
retaining good staff. Short 6 month contracts only exacerbate
this problem."
Central Asia
66.9 This Decision extends the mandate of Ambassador
Pierre Morel for 12 months until 31 August 2011. 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 Morel was appointed in September 2006.
"The EUSR's mandate focuses on enhancing EU
effectiveness and visibility in the region. It 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. There have been a series of amendments to the mandate since
2007, adding work covering energy security, bilateral energy co-operation,
counter-narcotics and water management issues. The EUSR also has
an enhanced role in monitoring the implementation of the EU Strategy
for Central Asia, which was adopted at the June 2007 European
Council.
"The UK supports the continuation of this mandate.
As EUSR, Mr Morel has travelled extensively and contributed to
EU discussions on policy towards the region, including on energy
security, counter-narcotics and human rights, and he has been
effective in raising the profile of the EU in Central Asia. Mr
Morel has played a particularly valuable role during the recent
unrest in Kyrgyzstan, working closely with his opposite numbers
in the UN and OSCE to encourage a coordinated international
response to the violence."
The Crisis in Georgia
66.10 This Decision extends the mandate of the EUSR,
who is also Ambassador Pierre Morel, for 12 months until
31 August 2011. 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.
"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 and the Council conclusions
of 15 September on Georgia. The EUSR's role is to enhance the
effectiveness and visibility of the EU in helping to resolve the
conflict in Georgia. A key element of the role is representing
the EU in the "Geneva Talks" process, the mechanism
for seeking a resolution to the conflict.
"The UK supports the continuation of this mandate. While
the Geneva Talks have become bogged down over status issues, they
remain the only forum in which all the parties to the conflict
meet and the UK strongly supports their continuation. The
regularity of meetings, combined with local level Incident Prevention
and Response Mechanism (IPRM) meetings, help manage tensions between
Georgia, Russia and the separatist regions. The current EUSR,
Pierre Morel, has played a valuable role in keeping the process
going and has built personal relationships with key players, including
the de facto authorities in the separatist regions."
South Caucasus
66.11 This Decision extends the mandate of Mr Peter
Semneby for a six month period until 28 February 2011.
The intention is that by the end of this period the functions
carried out under the mandate shall have been absorbed into the
EEAS.
"The EUSR for the South Caucasus was first
appointed on 20 February 2006. The EUSR supports the work of High
Representative/VP Baroness Ashton in the region. He is tasked
with pursuing the following objectives; 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 concerning 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.
"The UK believes that the objectives of the
current EUSR mandate remain relevant, in a region that is of strategic
importance to the UK and the EU. However we also agree that much
of the mandate can be taken on by the EU Delegations in Tbilisi,
Baku and Yerevan under the EEAS, provided they are properly resourced
and tasked to do so. The exception is functions relating to conflict
resolution and prevention, which need to be undertaken by someone
based outside the region. This could potentially be a senior member
of the EEAS based in Brussels. In ongoing discussion about
what this role will cover and who will carry it out the UK will
seek to ensure whoever fills the position will have sufficient
seniority and experience to establish the level of access
and influence necessary to have an impact on key players."
Moldova
66.12 This Decision proposes a further extension
of the mandate of Mr Kalman Mizsei until the responsibilities
of this role have been transferred to the EEAS, no later than
28 February 2011. The Minister says that the initial extension
in February 2010 of six months needs to be repeated as the transfer
of the mandate to the EEAS has taken longer than anticipated;
and that he understands that the current EUSR mandate will be
split between DG level in Brussels and the EU Delegation Chisinau,
once the EEAS comes into force.
"The mandate of the EUSRs is to strengthen the
EU's contribution to the resolution of the Transnistria conflict
in close coordination with the OSCE. The EUSR works closely with
the other members of the 5+2 (the OSCE-led settlement negotiation
process) to identify shared objectives and overcome obstacles.
Although there has been little substantive progress this year,
we have seen a more constructive dialogue between Moldovan and
Transnistrian representatives at informal 5+2 meetings. And the
joint statements from Germany and Russia, and Ukraine and Russia
have raised the international profile of the Transnistrian conflict.
The EUSR will advise the EU as it discusses these proposals. Elections
in the second half of 2010 in both Moldova and Transnistria may
prevent further progress, but the EUSR's remit is to keep the
current focus on settlement discussions during this period.
"The EUSR also makes contributions towards EU
policy in other areas, including improving EU-Moldova relations,
the strengthening of democracy and the rule of law, and assisting
in the fight against trafficking of weapons, other goods and people.
He works closely with the EU Delegation in Chisinau, including
on implementation of the EU-Moldova European Neighbourhood Policy
Action Plan."
Macedonia
66.13 This Decision extends the appointment of Erwan
Fouéré until the Council decides, on a proposal
by the HR, that appropriate corresponding structures to those
under the current decision have been established in the EEAS.
The position is double-hatted with the post of Head of the EU
Delegation in Skopje.
"The proposed extension provides a pragmatic
way of ensuring political continuity of CFSP expertise and visibility
in Macedonia in the transition to the European External Action
Service. The mandate extension proposal is specifically expressed
to retain the option and intention of terminating the mandate
earlier, depending on developments.
"The presence of an EUSR has provided 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 (OFA), 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.
"The Macedonian government has made good progress
with some reforms, as the Commission concluded in its "Enlargement
Strategy and Main Challenges 2009-2010". It assessed that
Macedonia had substantially addressed the key priorities of its
accession partnership, and recommended opening accession negotiations
with the country. The Council committed to return to this matter
in 2010.
"However, political challenges remain to ensure
stability. An effective EU presence in Macedonia needs to encourage
the reforms necessary for its EU integration, as well as promoting
inter-ethnic stability. A delegation under the EEAS, with a strong
political role, as well as Commission capacity to support the
accession process, will provide the right mix to achieve this.
We look forward to a proposal from the HR in this direction. The
decision to extend the EUSR mandate maintains continuity until
this arrangement is available."
Sudan
66.14 This Decision extends the mandate of the EUSR,
Ambassador Torben Brylle, to 31 August 2011. However, the mandate
may be terminated earlier, if the Council so decides, on a proposal
of the HR following the entry into force of the decision establishing
the EEAS.
"The mandate of the EUSR is based on the policy
objectives of the EU in Sudan. It works with the Sudanese parties,
the African Union (AU) and the United Nations (UN) and other national,
regional and international stakeholders to achieve a peaceful
transition under the Comprehensive Peace Agreement (CPA). This
includes the organisation of a credible referenda on Abyei and
on self-determination of South Sudan in January 2011. This includes
actively contributing to the full and timely implementation of
the CPA and post-referendum arrangements; supporting institution
building and fostering stability, security and development in
South Sudan irrespective of the outcome of the referendum of self-determination;
improving security and safety of aid workers, and facilitating
a political solution to the conflict in Darfur; promoting justice,
reconciliation and respect for human rights, including full cooperation
with the International Criminal Court; and improving humanitarian
access throughout Sudan.
"We welcome the decision to renew the mandate
of the EUSR. The next year will be a crucial period
for Sudan with the referendum on Southern independence taking
place in January 2011 and the end of the Comprehensive Peace Agreement
period in July 2011. It is important that the EU continues
to engage on the whole portfolio of issues affecting Sudan.
The current EUSR has played an important role in
helping to promote a consistent international approach towards
Sudan maintaining close contacts with the African Union (AU) and
in particular the AU High-Level Implementation Panel for Sudan,
the United Nations (UN), the Inter-Governmental Agency for Development
(IGAD), the League of Arab States (LAS) and regional and other
key stakeholders including the E6 (P5 + EU) Group of Envoys. The
new EUSR will need to maintain this strong level of engagement
with key players.
"We have close and regular communication with
the current EUSR. His staff are like-minded in our analysis and
approach. We look forward to continuing to work with the EUSR
and will encourage an active contribution to the formulation of
a future comprehensive EU strategy and engagement following the
end of the CPA, as well as promoting constructive relations between
Khartoum and Juba irrespective of the outcome of the referenda.
We have valued the EUSR's support for the work of the Joint UN/AU
Mediator and the AUHIP with regard to international efforts to
facilitate a lasting peace agreement for Darfur. These efforts
and reporting on the process will remain important."
Bosnia and Herzegovina
66.15 This Council Decision extends the appointment
of Valentin Inzko until 31 August 2011. However, the mandate may
be terminated earlier by a Council Decision following the establishment
of the EEAS. The EU has appointed a EUSR to Bosnia and Herzegovina
(BiH) since 2002. Valentin Inzko was appointed on 11 March 2009,
and on 22 February 2010 his mandate was extended until 31 August
2010. The objective of the EUSR is to assist in the creation of
a stable, viable, peaceful and multi-ethnic Bosnia and Herzegovina
(BiH), co-operating peacefully with its neighbours and irreversibly
on track towards EU membership. To this end, the EUSR offers advice
and facilitation in the local political progress, co-ordinates
the activities of EU actors in BiH and provides EU actors and
EU Heads of Mission with regular reporting on the local political
situation. The EUSR also undertakes significant outreach work,
aimed at communicating to the BiH population the benefits of EU
integration and why certain reforms are necessary to realise them.
"The UK fully supports maintaining the Office
of the EUSR in BiH. The British Government is very concerned about
the situation in BiH, where reform progress has been slow and
there are high levels of ethnic nationalist rhetoric. Elections
are scheduled to be held in BiH on 3 October. The EUSR will therefore
have a key role over the next twelve months. He will work to focus
pre-election debate on the reforms necessary for further EU integration
and to encourage BiH's political leaders to work constructively
together on achieving these reforms. The EUSR will then be at
the centre of the EU's crucial early engagement with a new government
in BiH after elections. The EUSR will continue his outreach and
communication programme in BiH, in order to further communicate
the benefits of EU accession and the nature of the accession process
to the general public in BiH. The Government strongly supports
this work.
"The EUSR position is double-hatted with the
(International Community's) High Representative in BiH to ensure
a unified and coherent international community approach. The Peace
Implementation Council (PIC), which advises the High Representative,
concluded in June 2010 that the 5 objectives and 2 conditions
agreed as the criteria for closure of the Office of the High Representative
(OHR) had not yet been completed. The PIC will continue to review
progress against those objectives and conditions at its forthcoming
meetings, including its next meeting in November. This EUSR mandate
renewal does not prejudge a future PIC decision regarding closure
of the Office of the High Representative."
Kosovo
66.16 This Council Decision extends the appointment
of Pieter Feith until 28 February 2011 or until the Council decides,
on a proposal by the HR, that appropriate corresponding structures
to those under the current decision have been established in the
EEAS.
66.17 On 14 December 2007 the European Council underlined
the EU's readiness to play a leading role in strengthening stability
in the Western Balkans, including by contributing to a European
Security and Defence Policy mission and to an International Civilian
Office as part of the international presences in Kosovo. Joint
Action 2008/123/CFSP adopted on 4 February 2008 established an
EU Special Representative for Kosovo. Kosovo declared independence
on 17 February 2008.
66.18 The mandate of the EUSR is based on the objective
of securing a stable, viable, peaceful and multi-ethnic Kosovo,
which will contribute to regional stability. His tasks include
being the channel for the EU's advice and support to the political
process, promoting political coordination in Kosovo through the
EU missions, ensuring a coherent public message, and contributing
to the consolidation of human rights and fundamental freedoms
in Kosovo.
66.19 The EUSR role is currently combined with that
of the International Civilian Representative (ICR) who is appointed
by an International Steering Group (ISG, of which the UK is a
member) and is the ultimate supervisory authority over the implementation
of the UN Special Envoy's Comprehensive Settlement Proposal (Kosovo
committed itself to that proposal as part of its declaration of
independence). The ICR does not have a direct role in the administration
of Kosovo, but retains strong corrective powers to ensure the
successful implementation of the Settlement. The ICR's mandate
will continue until the ISG determines that Kosovo has implemented
the terms of the settlement.
"The UK fully supports maintaining the office
of the EUSR in Kosovo and we would welcome the continued appointment
of Pieter Feith in this post.
"Pieter Feith has a long track record of crisis
management in both NATO and the European Union and has been closely
involved with Kosovo since he was a senior policy official in
the NATO International Secretariat in the late 90s. He headed
the successful EU-led Aceh Monitoring Mission in 2005 and 2006.
In 2007 he was appointed Director of the EU's Civilian Planning
and Conduct Capability and is the Civilian Operation Commander
for the civilian ESDP missions. He has proved highly capable in
his role throughout, supporting development of a stable, viable
and prosperous Kosovo as it works towards its European perspective.
In particular he has contributed to efforts to hold free and fair
elections in line with international standards, has reached out
to the non-majority community and supported dialogue in the field
of religious and cultural heritage. He is very well placed to
continue to provide strategic policy leadership to the international
community effort in Kosovo and to work closely with the NATO and
EU missions there. He is also the International Civilian Representative
(ICR). This double-hatting has proved highly effective, adding
authority and political influence to enable the EUSR to achieve
the EU's objectives."
Middle East Peace Process
66.20 The mandate of Marc Otte is being extended
by six months until the end of February 2011 or until the HR decides
to incorporate the role into the new EEAS.
66.21 The mandate involves working with EU partners
to ensure strong collective support for the negotiations, encouraging
both sides to engage on the key final status issues and holding
both sides accountable for any actions that undermine the peace
process.
66.22 The Minister says that the UK will continue
to:
work with the EUSR and the High Representative
on work looking at how the EU could contribute to post-conflict
arrangements aimed at ensuring the sustainability of peace agreements;
work with EU partners to deliver an urgent
and fundamental change to the policy of closure of Gaza;
press Israel to lift the restrictions
and allow aid, people and commercial goods into and out of Gaza;
and
at the same time press for the immediate
release of the captured Israeli soldier, Gilad Shalit, and the
cessation of all violence.
"The EU, as a member of the Quartet for
the Middle East, has an essential role to play in international policy
on resolving the Arab-Israeli conflict. The EUSR and High
Representative are key to driving this policy forward and we will
continue to push for the EU to pursue an active stance in
support of US efforts towards direct negotiations between the
parties."
African Great Lakes
66.23 This Council Decision extends the appointment
of Roeland Van de Geer until 31 August 2011. The mandate may,
however, be terminated earlier by a Council Decision following
the establishment of the EEAS. Roeland Van de Geer was appointed
on 15 February 2007, and on 22 February 2010 his mandate was extended
until 31 August 2010. The objective of the EUSR is to assist in
the further stabilisation and consolidation of the post conflict
situation in the African Great Lakes Region with a particular
attention on the regional aspect of developments in the countries
concerned. To this end the EUSR maintains an active presence on
the ground and in relevant international fora to ensure the continued
commitment of the EU in the region, works closely with the UN/MONUSCO
on comprehensive Security Sector Reform in DRC, promoting good
neighbourly relations in the region, and contributes to post conflict
stabilisation in Burundi, Rwanda and Uganda.
"The UK fully supports maintaining the Office
of the EUSR in the African Great Lakes Region. The British Government
remains very concerned at the situation the Great Lakes Region
which is in an important stage of post regional conflict stabilisation
but where internal conflict in the DRC threatens regional stability
and prosperity. The EUSR will have an important role over the
next twelve months. He will work to establish and maintain close
contact with the countries in the region, the UN, the AU, and
regional organisations. He will advise and assist on Security
Sector Reform in DRC and will also contribute where requested,
to peace and cease fire negotiations and engage diplomatically
if agreements are broken. Mr Van de Geer also chairs and is a
key driver for the Minerals Taskforce which works to reform the
natural resource sector in DRC.
"The UK has a good relationship with the EUSR
and we believe that he makes a positive contribution to supporting
efforts to bring peace and stability to the region and we value
his analysis and expertise. Mr Van de Geer has long been involved,
and is a trusted voice, in the region.
"While Mr Van de Geer is cautiously optimistic
about progress in Burundi he remains very aware of the difficulties
the country represents, he was very active in seeking to ensure
the political engagement of all legitimate parties in the recent
elections. With elections taking place in Rwanda on 9 August,
and due to take place in DRC in 2011 we believe he will play an
important role in coordinating efforts promoting better electoral
processes in the region."
African Union
66.24 On 6 December 2007, the Council adopted Joint
Action 2007/805/CFSP appointing Mr Koen Vervaeke as
EUSR. This Council Decision extends the appointment until 31 August
2011. The mandate may be terminated earlier by a Council Decision
following the establishment of the EEAS.
66.25 The objective of the EUSR is to support African
efforts to build a peaceful, democratic and prosperous future
as set out in the EU Africa Strategy. To this end the EUSR enhances
the EU's political dialogue and broader relationship with the
AU, strengthening the EU-AU partnership, respecting the principle
of African ownership and working more closely with African representatives
in multilateral fora in coordination with multilateral partners.
"The UK fully supports maintaining the Office
of the EUSR in Addis where the African Union is based. The AU
is a key partner in Europe-Africa cooperation on human rights
and governance. A successful AU will bring the benefits of a reduced
peacekeeping burden, fewer thorny governance and human rights
issues and the increased prosperity that stability will bring
to Africa. This all chimes with the government's objectives on
reducing conflict, promoting sustainable global growth and supporting
Africa's participation globally where the AU is becoming a global
"voice for Africa". The organisation is already making
good progress on sanctioning instances of unconstitutional power
changes and peace keeping in Africa.
"The EU, the AU's biggest and most sustainable
source of finance provides 350 million for peace and security
and human rights alone. The UK can achieve a more able AU through
ensuring that EU funds are deployed effectively and co-ordinated
with wider donors to achieve common objectives. These are the
objectives that we will press the EUSR to achieve."
Financial Implications
66.26 The Minister provides the following information:
Afghanistan
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
Central Asia
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
The Crisis in Georgia
"The UK contributes 13.6% to the overall EU
budget in 2010. As the EU budget funds the CFSP budget the cost
to the UK for the extension will be approx. 91,000 of the
proposed 700,000 budget."
South Caucasus
"The UK contributes 13.6% to the overall EU
budget in 2010. As the EU budget funds the CFSP budget the cost
to the UK for the extension will be 183,300 of the proposed
1,410,000 budget."
Moldova
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
Macedonia
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
Sudan
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
Bosnia and Herzegovina
"The UK contributes 13.6% to the overall EU
budget in 2010. As the EU budget funds the CFSP budget the cost
to the UK for the extension will be approx. 481,000 of the
proposed 3,700,000 budget."
Kosovo
"For Kosovo a total allocation of 1,230,000
has been proposed for the period of the mandate (1 September 2010
until 28 February 2011). This is a significant decrease (of 430,000)
from the budget for the current 6 month period predominantly due
to reduced requirement for capital expenditure and for the contingency
reserve. This is despite a proposed increase in staff of five."
Middle East Peace Process
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
African Great Lakes
"The UK contributes 13.6% to the overall EU
budget in 2010. As the EU budget funds the CFSP budget the
cost to the UK for the extension will be approx. 197,600
of the proposed 1,520,000 budget.
African Union
"Details of the budget for this EUSR have yet
to be finalised. I will keep the Committee fully informed of costs
in writing during the summer Recess."
TIMETABLE
66.27 The Minister says that he expects these Council
Decisions to be agreed by written procedure on 8 August 2010.
The Minister's letter of 2 August 2010
66.28 The Minister explains that the last possible
opportunity for rollover is mid-August, as the current mandates
expire on August 31st.
66.29 He goes on to say that he has been able to
submit the documents for scrutiny before the summer Recess, because
he does not have a full package of agreed documents; that he expects
this by the end of the week in which he wrote his letter; and
that the first, early, drafts documents were not received until
13 July. He continues thus:
"We will continue to press strongly in Brussels,
including with the High Representative, for a more timely issue
of documents in the future. In the meantime, I am attaching the
set of draft Decisions together with an Explanatory Memorandum.
"I am fully committed to the rigorous parliamentary
oversight of the Government's policy in the EU. However, we consider
that some of the EUSRs are crucial to delivery of government policy,
in Bosnia and Herzegovina in particular, and also in Kosovo, where
we have been in the lead amongst member states in insisting that
the position of EUSR be maintained. EUSR Sudan has an important
role in ensuring delivery of the Comprehensive Peace Agreement
over the next 12 months, and I am pleased to note that the High
Representative has just announced her wish to appoint Dame Rosalind
Marsden to the position. [290]
For these reasons I may have to agree to these Decisions before
your Committee returns after Summer Recess."
66.30 The Minister concludes his letter by again
noting that details for the budgets for all EUSRs have not yet
been finalised, and by assuring the Committee that he will update
it "in a timely manner as soon as documents are received
in Brussels."
Conclusion
66.31 The Minister's Explanatory Memorandum illustrates
clearly the wide range of challenges and activities of the present
EUSRs.
66.32 We are concerned that, as on the previous
occasion, the Minister is unable to provide very much financial
information. We ask him to explain why it has again been necessary
to present a key component of these mandates in a piecemeal fashion.
66.33 We draw the Minister's attention to the
separate chapter of this Report, dealing with the continuing lack
of response to the previous Committee's questions about how the
Pakistan aspect of the EUSR Afghanistan position could be undertaken
most effectively and about the non-EUSR component of Mr Uackas'
double-hatted job, and ask him to provide this information.[291]
66.34 We are also concerned that the Committee
is presented with assurances from a Minister of Europe of commitment
to vigorous scrutiny set against explanations of operational necessity,
and promises to press strongly in Brussels for a more timely issue
of documents in the future, leaving the Committee once again reporting
a fait accompli to the House.
66.35 The timeline was known long ago. These mandate
renewals must have been in discussion for some months. Since no
major changes are involved, we see no good reason why the
draft texts could not have been produced much sooner. The next
time any mandates come up for renewal, we expect both full and
timely information full, meaning to include financial
information, and timely to mean, in time to scrutinise any proposal
and raise any relevant questions before it is adopted.
66.36 We feel that this should apply particularly
to any Council Decision to end an EUSR's mandate and incorporate
it into the activity of the EEAS. The Minister already raises
concerns about how this would work in the case of the EUSR to
the South Caucasus; the same sort of consideration would be bound
to arise in the case of the EUSR to the MEPP, whose mandate has
been extended for only six months, but without any explanation
by the Minister. Against this background, we are concerned to
note press reports that, at the July Foreign Affairs Council,
it was decided to end four mandates from February 2011, including
those of the EUSRs to the South Caucasus and to the MEPP (the
others being those to Macedonia and Moldova); and that the Council
was unable to reach any agreement on the position of the ICR/EUSR
to Kosovo. We therefore ask the Minister to explain:
how
his concerns about the need for conflict resolution and prevention
in the south Caucasus to be undertaken by someone based outside
the region have been resolved and, now a decision has been taken
to end the mandate in February 2011, how he will be able to ensure
that this role will be adequately covered and that the person
selected to perform it "will have sufficient seniority and
experience to establish the level of access and influence
necessary to have an impact on key players";
if
the EUSR and High Representative are key to driving EU policy
on resolving the Arab-Israeli conflict, the rationale behind abolishing
this EUSR post;
given
his strong endorsement of both the role of the ICR/EUSR Kosovo
and the present incumbent, what has held up agreement in the Council
regarding his mandate.
66.37 Against this background, we now clear the
documents.
289 See headnote: (31290-1) -, (31295-99) - and (31300-04)
- (2009-10): HC 5-xi (2009-10), chapter 8 (9 February 2010). Back
290
A Council press release of 11 August 2010 announced that Dame
Rosalind Marsden, a British diplomat with large experience in
African affairs, including as UK Ambassador to Sudan, has been
appointed the new EUSR from September 1st, replacing Ambassador
Torben Brylle (who is to become his country's ambassador to Austria).
See http://www.consilium.europa.eu/uedocs/cms_Data/docs/pressdata/EN/foraff/116132.pdf.
Back
291
(31425); see chapter 51 of this Report. Back
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