Documents considered by the Committee on 25 February 2015 - European Scrutiny Contents


1 EU Strategy in Afghanistan 2014-16

Committee's assessment Politically important
Committee's decisionNot cleared from scrutiny; for debate in European Committee B
Document detailsJoint Communication: Elements for an EU Strategy in Afghanistan 2014-16
Legal base
DepartmentForeign and Commonwealth Office
Document numbers(35996), 9467/14, JOIN(14) 17

Summary and Committee's conclusions

1.1 The Joint Communication outlines the key elements for a future EU strategy. It covers the political context as well as the key objectives and initiatives upon which the EU would seek to focus on in support of the Government of Afghanistan. It focuses on four key areas, with critical sub-objectives: promoting peace and security; reinforcing democracy; encouraging economic and human development; and fostering the rule of law and respect for human rights.

1.2 Details of the context — particularly the 2012 Tokyo Conference, at which the International Community pledged to improve aid effectiveness and provide US$16 billion to Afghanistan in return for the Government of Afghanistan meeting its commitments under the Tokyo Mutual Accountability Framework — are summarised below, and detailed in our previous Report.[1] So, too, the Strategy itself.

1.3 The authors noted that the strategic goal and objectives were developed in advance of clarity on the size and scale of any international military presence post-2014; expectations as to the degree of progress and the delivery of international assistance in support of the Government of Afghanistan's priorities in the event of a very limited international presence would necessarily have to be tempered.

1.4 In this latest update, the Minister for Europe (Mr David Lidington) has finally provided the Committee with the further information that it requested in its 5 November 2014 Report, concerning primarily the outcome of the 24-25 November 2014 London Conference on Afghanistan, which the UK co-chaired the alongside the Afghan Government (see paragraph 1.14 below for details).

1.5 When the Committee first considered this Joint Communication, it indicated that, though there was nothing controversial about it per se, it was minded to recommend it for debate in due course because of the role that, one way or another, the EU would be undertaking (with EU taxpayers' money) in post-2014 Afghanistan and the host of uncertainties surrounding the essentials for its successful implementation. That point has now been reached. We therefore recommend that the Joint Communication be debated in European Committee B.

1.6 We are conscious that, with a large backlog of debate recommendations, it is unlikely that this can be arranged prior to the dissolution of Parliament. However, we are confident that, in due course, our successors would support this recommendation; and believe that a new House would value the opportunity to debate the subject, and the next Government the opportunity to report on and discuss what has actually happened under the EU Strategy.

Full details of the documents: Joint Communication to the European Parliament and the Council: Elements for an EU Strategy in Afghanistan 2014-16: (35996), 9467/14, JOIN(14) 17.

Background

1.7 The Afghan Government and the International Community met on 8 July 2012 in Tokyo "to reaffirm and further consolidate their partnership from Transition to the Transformation Decade". The Tokyo Conference, together with the Chicago Summit of Afghanistan and ISAF contributing countries of May 2012, established what the Japanese Ministry of Foreign Affairs described as:

"a renewed stronger foundation for partnership to support sustainable growth and development of Afghanistan throughout the Transformation Decade (2015-2024). These undertakings are built on the outcome of the Bonn Conference in December 2011, where the Afghan Government and the International Community mutually renewed their long-term commitments in the areas of governance, security, peace process, economic and social development, and regional cooperation, as well as on the outcomes of the previous international conferences such as the London Conference in January 2010 and the Kabul Conference in July 2010. Chaired by the Japanese and Afghan Governments with the participation of ministers and representatives from 55 countries and 25 international and other organizations from around the world, today's conference also recognized the increasing roles of new partners and neighboring and regional countries for the sustainable development of Afghanistan."

1.8 Acknowledging the promulgation of its new Constitution, the Declaration pointed out that much nonetheless remained to be done to achieve a peaceful, stable and self-sustaining Afghanistan, including on such issues as security, with a focus on terrorism and counter-narcotics, poverty reduction, humanitarian needs, provision of basic social services, food security, protection of human rights in particular the rights of women and children, respect for individual dignity, promotion of education and culture, improvement of governance, reducing corruption, lessening reliance on international assistance, and promotion of private investment, thereby contributing to human security. The Bonn Conference had demonstrated a shared vision for long-term partnership between Afghanistan and the International Community to help Afghanistan attain sustainable economic growth and development and fiscal self-reliance from Transition through the Transformation Decade. Afghanistan and the International Community had accordingly established the Tokyo Mutual Accountability Framework (a.k.a. the 'Tokyo Framework'), which underpinned their partnership for the Transformation Decade.[2]

1.9 At the Conference, the International Community pledged to improve aid effectiveness and provide US$16 billion to Afghanistan in development assistance through 2015-17, to respond to Afghanistan's predicted budget shortfall following military transition. For Afghanistan to benefit fully from these funds, the Government of Afghanistan must meet its commitments under the Tokyo Mutual Accountability Framework (TMAF).[3]

1.10 The January 2014 Foreign Affairs Council Conclusions defined 2014 as a critical year. The Council called on the Government of Afghanistan to reciprocate the EU's commitment to Afghanistan by finalising negotiations on the Cooperation Agreement on Partnership and Development (CAPD). Sustained development would require the maintenance of security. With that in mind, finalisation of the Bilateral Security Agreement (BSA) with the United States of America was vital and would provide the basis for ongoing international support to increase the capability of the Afghan National Security Forces. The continued provision of significant international development assistance to the Afghan people across the country was dependent on a conducive security environment.

1.11 The High Representative and the Commission was tasked with preparing, by the second quarter of 2014, a strategy to the end of 2016.[4]

Commission/High Representative Joint Communication

1.12 The Joint Communication outlines the key elements for a future EU strategy. It covers the political context as well as the key objectives and initiatives upon which the EU would seek to focus on in support of the Government of Afghanistan. It focuses on four key areas, with critical sub-objectives: promoting peace and security; reinforcing democracy; encouraging economic and human development; and fostering the rule of law and respect for human rights. The context is detailed in our previous Report of 18 June 2014.[5] So, too, the Joint Communication itself.

1.13 The authors noted that the strategic goal and objectives were developed in advance of clarity on the size and scale of any international military presence post-2014; expectations as to the degree of progress and the delivery of international assistance in support of the Government of Afghanistan's priorities in the event of a very limited international presence would necessarily have to be tempered.

1.14 When we considered the Joint Communication in June 2014, the Minister for Europe noted that the work of the EU would be constrained by the tough security environment; the UK would continue to press for sensible and realistic outcomes. The strategy would need to be sufficiently flexible to adapt to developments on the ground and, importantly, the policies and priorities set by a new Afghan Government later this year. There would also be two key events — the NATO Summit and "the Development Conference" — that would look closely at the international community's future commitments. In helping to shape the proposed strategy, the Government would continue to urge prioritisation and better coordination with its international partners and other multilateral organisations (NATO and United Nations) engaged in Afghanistan, to avoid duplicity and guarantee a genuinely unified approach: any strategy must give weight to the importance of these relationships.

1.15 Though there was nothing controversial about the proposed elements for an EU Strategy, we felt that it would be appropriate to debate it in due course because of the role that, one way or another, the EU would be undertaking (with EU taxpayers' money) in post-2014 Afghanistan and the host of uncertainties surrounding the essentials for its successful implementation. But the Strategy had yet to be agreed; the outcome of Presidential elections was yet to be settled; and both USA and NATO post-2014 security agreements with the Government of Afghanistan were consequently still in limbo. Two key conferences were also on the horizon: first, the NATO Summit in Wales, and then the London Conference on Afghanistan. The Committee therefore asked the Minister to write to us in due course, with: a copy of the Strategy; his thoughts on the outcome of the Presidential election; more details concerning the dates, location and nature of the two key events to which he referred; and an update on the BSA with Afghanistan, NATO's equivalent SOFA, and the National Security Council's consideration of the UK's specific post-2014 military commitment.

1.16 The Minister subsequently reported that Dr Ashraf Ghani was sworn in as President on 29 September and had immediately appointed his electoral rival, Dr Abdullah Abdullah, as "Chief Executive and partner in what will be a National Unity Government", in which they would take decisions on key appointments and a programme for Government. The Prime Minister had met President Ghani on 3 October and underlined the UK Government's strong commitment to the new Government; alongside its own bilateral efforts, the Government would "continue to influence the EU and other Member States to engage constructively with the new Government at all levels, to ensure that we can take the necessary steps to align and deliver on our shared priorities". Both the US/Afghan Bilateral Security Agreement (BSA) and the NATO Status of Forces Agreement (SOFA) had now been signed. The UK 4-5 September NATO Summit in Wales had set out the long term commitment of NATO partners to Afghanistan, focusing on three key strands of activity:

a)  Resolute Support Mission;

b)  financial support for the Afghan National Security Forces; and

c)  NATO-Afghanistan Enduring Partnership.

1.17 The 20 October 2014 Foreign Affairs Council welcomed the formation of a Government of National Unity, reiterated the EU's long-term commitment to Afghanistan and reaffirms the comprehensive strategy agreed in June. It looked forward to working in close cooperation with the new government and international partners to safeguard the advances Afghanistan has made over the last 13 years and to support and incentivise urgently needed reforms. The EU recognised the important future role to be played by UNAMA in Afghanistan.[6] It pledged up to €1.4 billion in assistance up to 2020, complementing the development assistance to be provided bilaterally by Member States. The EU restated its willingness to finalise the Cooperation Agreement for Partnership and Development, as the basis for a wide-ranging long-term partnership between the EU and Afghanistan. The EU also restated its commitment to the extension of the EU police mission in Afghanistan (EUPOL) until the end of 2016.

1.18 The Council also called for a clear and unequivocal commitment to respect human rights, in particular the rights of women and girls, and says that it is now imperative that the Government of Afghanistan enact the reforms necessary to restore economic confidence, promote job creation, increase revenue generation, reform the judicial system, tackle the twin threats from corruption and narcotics and improve the accountability of the state to ordinary Afghans.

1.19 The London conference would, the Council said, provide the opportunity both for the government to set out its reform commitment in these areas and for the international community to restate its long-term commitment to support Afghanistan.[7]

Our assessment

1.20 We continued to regard the Joint Communication as an appropriate basis for future debate, especially as the Minister had nothing to say about the 23 page Strategy itself, and thus of the extent to which it reflected the approach that he advocated or how realistic he now thought it was in the light of subsequent political and security developments.

1.21 But, before then, we asked the Minister to report on the outcome of the London Conference, with his assessment in the light thereof of the prospects for the EU achieving its objectives over the next three years, including the extent to which it would depend on the commitments of the Afghan government and of other members of the International Community, and the likely impact of the post-2014 security environment. We also asked him to outline the outcome of the National Security Council's consideration of the UK's specific post-2014 military commitment.

1.22 In the meantime, we retained the Joint Communication under scrutiny.[8]

1.23 More recently, we had to remind the Minister that two months had passed, during which we had heard nothing from him; and asked him to provide this information forthwith.[9]

The Minister's letter of 10 February 2015

1.24 The Minister, "with apologies for the delay", provides "an overview of the London Conference, the focus and formation of the new National Unity Government, an update on the security situation, Human Rights and the EU's work in Afghanistan".

1.25 He does so as follows:

"LONDON CONFERENCE ON AFGHANISTAN

"On the 4 December the UK Government and the Afghan government co-hosted the London Conference on Afghanistan. The conference was an important opportunity for the new Afghan government to set out its vision for reform and for the international community, led by the Prime Minister, to signal its strong support for the new Afghan government. The Prime Minister congratulated President Ghani on the start his government had made and underlined the UK's commitment; making clear that we see our role in Afghanistan as changing — not ending.

"President Ghani and CEO Abdullah used the opportunity to set out an ambitious reform programme, tackling corruption and reconnecting Afghan citizens to their government. President Ghani thanked the international community for its sacrifices and set out his vision for a new partnership.

"The conference communiqué reaffirmed the commitment of the international community to Afghanistan and its support for the new Afghan government's focus on reform. The National Unity Government and International Community have also committed to holding a follow-up meeting of senior officials later this year.

"THE NEW AFGHAN GOVERNMENT

"The formation of the new Afghan national unity government, led by President Ghani with Dr Abdullah Abdullah as Chief Executive, represents the first democratic transfer of power in Afghan history. We are now encouraging the swift confirmation of Ministerial appointments to ensure momentum continues. Eight cabinet positions along with the current intelligence chief have been confirmed by the Afghan parliament. New Ministers are now in place at the Ministry of Finance, Interior, Foreign Affairs, Health, Rural Development, Mines, Refugees and Religious Affairs. These new Ministers have started work. We note that the new government's nominee for the position of Minister for Defence was rejected by the Afghan parliament. We are also mindful that no women ministers were approved.

"Nevertheless, it is not unusual in the Afghan political system for Parliament to reject a number of nominees requiring the government to return to Parliament with revised nominations. Alongside our own bilateral efforts, we will continue to influence the EU and other Member States to engage constructively with the new Afghan government at all levels, to ensure that we can take the necessary steps to align and deliver on our shared priorities.

"SECURITY

"In his last update report to Parliament on developments in Afghanistan on 29th January, the Foreign Secretary referenced the security challenges that remain in Afghanistan and the evolution of our support beyond 2014.

"The attacks against Afghan security personnel, innocent Afghan civilians, and international workers, including a British Embassy vehicle at the end of last year which resulted in the death of a UK national security contractor and an Afghan member of British Embassy staff, bring home to us the continuing challenge. The Afghan National Security Forces (ANSF) are proving increasingly effective in combating the insurgency and have now assumed complete security responsibilities from ISAF, including the lead for combat operations across Afghanistan. We know that to maintain this progress and protect the gains made so far, the ANSF will require continued support from the international community. The UK has committed £70 million per annum to 2017 in support of this crucial activity.

"The first significant act of the National Unity Government was to sign both the US/Afghan Bilateral Security Agreement (BSA) and the NATO Status of Forces Agreement (SOFA).

"This was a decisive and welcome move by the new President and provides the legal framework for the continuing presence of international military support. The BSA and NATO SOFA were subsequently ratified by the Afghan Parliament between 23-27 November. This was followed by formal agreement from NATO Foreign ministers on 2 December to the launch the new NATO Resolute Support Mission to train, advise and assist the ANSF from the start of 2015.

"HUMAN RIGHTS

"Women's and girls' rights featured prominently at the London Conference. CEO Abdullah Abdullah confirmed in his opening speech that protecting human rights, particularly women's and children's rights, would be a focus of the new government. The conference also highlighted the importance of civil society, justice reform and the need for increased economic opportunities for women. Together with our EU partners, we continue to raise the rights of women and girls with the Afghan government. We have allocated over £300,000 to address the psychological needs of victims of sexual harassment and violence in Afghanistan and provided £500,000 this year to the Afghan Independent Human Rights Commission (AIHRC). UK support for girls' access to quality education has included allocating £48.4m to the Girls Education Challenge Fund (2013-17). We also continue to work with our international partners such as the EU to improve the situation in Afghanistan for human rights defenders, including through the EU plus member states strategy on human rights defenders in Afghanistan.

"EU STRATEGY 2014-16 & THE EU/AFGHAN COOPERATION AGREEMENT ON PARTNERSHIP AND DEVELOPMENT (CAPD)

"The successful transition to a new Afghan government augurs well for the EU to achieve its objectives over the next three years. The reform agenda, as outlined by the new Afghan government's paper 'Realising Self-Reliance' and set out by President Ghani at the London Conference, provides a credible framework for delivering economic security by tackling corruption; maintaining progress on national security; delivering political reform; and consolidating progress on human rights. These are the right priorities and closely align with the EU's 2014-16 strategy. The EU Strategy is designed principally to ensure that the EU and Member States can adopt a comprehensive and coordinated approach to activities on the ground in support of the Afghan Government.

"As part of the EU's long term commitment to Afghanistan it will seek early agreement with the new Afghan government on the EU/Afghan Cooperation Agreement on Partnership and Development. If signed, the agreement will provide a legal underpinning for a long-term partnership between the EU and Afghanistan. This will be a priority for the EUSR as he works to deliver his mandate objectives in 2015.[10] Now that a new Afghan Government is in place, we will continue to work with the EU and Member States to reach an agreement. Once this work is concluded, as previously agreed with the Committee, I will deposit the relevant documents for your consideration."

THE LIKELY IMPACT OF THE POST 2014 SECURITY ENVIRONMENT

"We acknowledge that the work of the EU will be constrained by the tough security environment. But the ratification of the BSA and SOFA and the successful standing up of the NATO Resolute Support Mission is a welcome backdrop for EU work and brings to an end a long period of uncertainty. As acknowledged by your Committee, it will be important for the EU and Member States to remain flexible. Over the coming months, we are encouraging partners to work closely with the new Afghan government, adapting our approaches as necessary. This will be an ongoing discussion."

Previous Committee Reports

Eighteenth Report HC 219-xvii (2014-15), chapter 5 (5 November 2014) and Third Report HC 219-iii (2014-15), chapter 5 (18 June 2014); also see (36033), —: Second Report HC 219-ii (2014-15), chapter 11 (11 June 2014).


1   See Third Report HC 219-iii (2014-15), chapter 5 (18 June 2014). Back

2   See http://www.mofa.go.jp/region/middle_e/afghanistan/tokyo_conference_2012/tokyo_declaration_en1.html for further information. Back

3   The Tokyo Mutual Accountability Framework (TMAF) agreed in May 2012, establishes the mutual commitments of the Government of Afghanistan and the international community to help Afghanistan achieve its development and governance goals. Back

4   Available at http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/EN/foraff/140656.pdf. Back

5   See Third Report HC 219-iii (2014-15), chapter 5 (18 June 2014). Back

6   The United Nations Assistance Mission in Afghanistan (UNAMA) is a political mission established by the Security Council in 2002 at the request of the Government to assist it and the people of Afghanistan in laying the foundations for sustainable peace and development in the country. On 17 March 2014, the UN Security Council unanimously adopted resolution 2145(2014), which renewed the UNAMA mandate and set out the scope and range of activities it must undertake over the coming 12 months, as Afghanistan continues its political and security transition. Overall, the resolution calls for UNAMA, led by the Secretary-General's Special Representative, Ján Kubiš, to continue leading and coordinating international civilian efforts in assisting the South Asian nation with its transition - within the mandate and guided by the principle of reinforcing Afghan sovereignty, leadership and ownership. See http://unama.unmissions.org/ for full details. Back

7   See http://www.consilium.europa.eu/uedocs/cms_data/docs/pressdata/EN/foraff/145218.pdf , pp.2-24, for the Council Conclusions. Back

8   See Eighteenth Report HC 219-xvii (2014-15), chapter 5 (5 November 2014). Back

9   See (36623), -: Thirty-second Report HC 219-xxxi (2014-15), chapter 6 (4 February 2015); also at chapter 18 of this Report. Back

10   See (36623), -: Thirty-second Report HC 219-xxxi (2014-15), chapter 6 (4 February 2015); also at chapter ?? of this Report. Back


 
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