69 The EU and the Sahel: EUCAP Sahel
Niger
| Committee's assessment
| Politically important |
| Committee's decision | Cleared from scrutiny; relevant to the floor of the House debate on migration issues and the EU naval operation in the south central Mediterranean
|
| Document details | Council Decision on the European Union CSDP mission in Niger (EUCAP Sahel Niger)
|
| Legal base | Articles 28, 42(4) and 43(2) TEU; unanimity
|
| Department
Document number
| Foreign and Commonwealth Office
(36945), —
|
Summary and Committee's conclusions
69.1 The crisis in Mali, instability in Libya and Boko Haram terrorism
in Nigeria are all threatening Niger's security and development.
In addition, the country is faced with the illegal trafficking
of drugs, weapons and people on its territory. Some of this organised
crime serves to fund terrorist groups which are using Niger's
vast desert regions as trafficking routes or safe havens.
69.2 Council Decision 2012/392/CFSP established EUCAP
Sahel Niger, to build the capacity of Nigerien security forces
to fight terrorism and organised crime. It was launched in July
2012, and is currently "mandated" until July 2016. It
has five main tasks:
— advise
and assist in the implementation of the security dimension of
the Nigerien Strategy for Security and Development at national
level;
— support the development of regional and
international coordination in the fight against terrorism and
organised crime;
— develop and implement adequate criminal
investigation training programmes utilising a "train the
trainer" approach;
— support the development of Nigerien Security
Forces resilience by developing a Human Resources strategy and
providing training in management issues; and
— contribute to the identification, planning
and implementation of projects in the security field.[ 489]
69.3 This draft Council Decision proposes a budget
for July 2015-July 2016 of €9,800,000 (£6,964,000).
EUCAP will continue to assist the Nigerien authorities to define
and implement their National Security Strategy and contribute
to improving the capacities of Nigerien security forces in the
fight against terrorism and organised crime.
69.4 The mission performed poorly at first but, following
a change of leadership and focus, delivery has steadily improved
(see "Background" below).
69.5 The Minister for Europe (Mr David Lidington)
supports the proposal. He describes EUCAP Sahel Niger as an increasingly
important EU presence in the Sahel, both as a guided to recently-established
civilian CSDP Mission in Mali and as a crucial actor in the effort
to tackle the flow of migrants northwards from Sub-Saharan Africa
to Libya and on to the Mediterranean. Whilst it is necessary to
be realistic about what this Mission can achieve in the wide desert
spaces of Niger, the Minister agrees that the EU should do more
on upstream migration work in the Sahel, and that EUCAP should
be an important instrument in this area.
69.6 In their first Report on this mission, our
predecessors noted that it demonstrated, not for the first time,
the leading, sometimes solitary, and commendable role the Minister
and his officials have had in controlling the cost of CSDP missions;
we are pleased to be able to commend them once again.
69.7 The Minister notes that, in the context of
the growing migration crisis in the Mediterranean and North Africa,
plans to strengthen EUCAP's activity on migration — including
in the northern Nigerien town of Agadez — are currently
in hand. This additional migration activity will (as he says)
also require a Council Decision and a further revised budget,
which we look forward to receiving in good time.
69.8 At that juncture, as well as a detailed outline
of this proposed additional migration-related activity, we should
be grateful if the Minister would say more about what the Mission
has been doing during the past year (since his summary —
"EUCAP Sahel Niger has so far trained over 2,500 members
of the security forces, armed forces, civil service and judiciary"
— is precisely the same as that of a year ago).
69.9 On 23 April an Extraordinary European Council
agreed a number of actions, including:
· disrupting
trafficking networks, bringing the perpetrators to justice and
seizing their assets, through swift action by Member State authorities
in co-operation with EUROPOL, FRONTEX, the European Asylum Support
Office (EASO) and EUROJUST, as well as through increased intelligence
and police-cooperation with third countries;
· undertaking
systematic efforts to identify, capture and destroy vessels before
they are used by traffickers; and
· preparing
for a possible CSDP operation to this effect.
69.10 That CSDP operation is now moving ahead,
in the shape of EUNAVFOR Med, whose job will be to "disrupt
the business model of the smugglers, achieved by undertaking systematic
efforts to identify, seize/ capture and destroy vessels and assets
before they are used by smugglers".[ 490]
We deal with this and other aspects of the EU's response to the
growing migration crisis in a separate Report, where we are recommending
that they should be debated on the floor of the House. Given that
disrupting "the business model of the smugglers" will
also depend on the ability and willingness of Nigerien security
forces to interdict them, we consider that this chapter of this
Report be "tagged" to that debate.
69.11 In the meantime, we clear this Council Decision.
69.12 Given that the Committee was not in existence
at the point at which the budget would otherwise have run out,
we do not take issue with the Minister having over-ridden scrutiny.
Full
details of the documents:
Council Decision amending Decision 2012/392/CFSP on the European
Union CSDP mission in Niger (EUCAP Sahel Niger): (36945), —.
Background
69.13 The first year's budget was €8.7 million
(£6.2 million); the second year's, €9.2 million (£6.5
million). The mission got off to a slow start, largely due to
a rushed planning process, lack of local buy-in and inadequate
leadership. It began to pick up speed in its second year; so much
so that, in March 2014, the Minister for Europe (Mr David Lidington)
was able to report that the Mission was now delivering against
its mandate, and that an EEAS Strategic Review had recommended
extending the mandate for a further two years, from 17 July 2014,
with the Mission being roughly the same size, retaining its current
structure and costing a similar amount to now, with some small
changes to the current tasks. Niger remained a fragile democracy
in an increasingly volatile region; elections were due in 2015-2016,
and a visible EU presence at least until then would increase the
chances of a smooth poll.[ 491]
69.14 The draft Council Decision cleared by our predecessors
in July 2014 thus extended the mandate for two years to July 2016,
with a budget covering the period July 2014 to July 2015. The
Minister said that EUCAP Sahel Niger had now trained over 2,500
members of the Nigerien security forces, armed forces, civil service
and judiciary. He described the mission's work on improving the
services' human resource and forensic capabilities as having been
particularly successful; likewise its work to co-ordinate EUCAP's
activity with that of other international actors in Niger (the
latter led by the UK secondee in the Mission).
69.15 EUCAP would continue to assist the Nigerien
authorities to define and implement their National Security Strategy
and contribute to improving the capacities of Nigerien security
actors in the fight against terrorism and organised crime. The
Mission gained 11 new staff[ 492]
and would expand its activity in some areas, including additional
visits to the northern town of Agadez. Despite this, and (so said
the Minister) as a result of UK lobbying, the Mission's budget
for July 2014-July 2015 showed a very small decrease compared
to the previous year's budget, principally due to savings on capital
expenditure.[ 493]
The draft Council Decision
69.16 This draft Council Decision extends the budget,
covering the period 16 July 2015 to 15 July 2016. The proposed
budget is €9,800,000 (£6,964,000)0 (see the Annex to
this chapter of our Report for the Minister's detailed analysis).
The Government's view
69.17 In his Explanatory Memorandum of 22 June 2015,
the Minister says that his officials "have interrogated the
budget" and that he judges the proposed expenditure "to
be commensurate with delivery of the mandate and good value for
money".
69.18 Recalling the slow start, the Minister says
that, following a change of leadership and "a focus on bottom-up
projects", delivery has steadily improved. He again notes
that co-ordination between the EUCAP and other international actors
(led by the UK secondee), and work with Niger's regional command
centres, as particular areas of strength, and that EUCAP Sahel
Niger has so far trained over 2,500 members of the security forces,
armed forces, civil service and judiciary.
69.19 He continues as follows:
"In the context of the growing migration crisis
in the Mediterranean and North Africa, plans to strengthen EUCAP's
activity on migration — including in the northern Nigerien
town of Agadez — are currently in hand. We can expect further
planning documents on this uplift to be circulated in due course.
The additional migration activity will also require a Council
Decision and a further revised budget, and I shall write again
to the Committees once these have been received.
"In the meantime, this Council Decision and
the associated budgetary impact statement are necessary for the
Mission to continue its work under its current mandate. It was
recommended by Brussels committees that the Mission should use
the second year of its 2014-16 mandate to increase its activity
on training, capacity-building and other front-line tasks. This
new budget makes provision for the Mission to do this, and whilst
the overall budget rises by some 7%, this combined with other
adjustments have enabled the Mission to increase its planned project
activity by 53% in 2015-16. As before, projects and training are
linked to one or more of the Mission's four objectives:
· "Developing
Interoperability (between the Nigerien services);
· "Building
technical competence and expertise;
· "Strengthening
human resources systems and structures;
· "Ensuring
co-ordination among international donors and Nigerien recipients."[ 494]
69.20 Regarding the mission's overall perspective,
the Minister says:
· "EUCAP
Sahel Niger is becoming an increasingly important EU presence
in the Sahel. Whilst the civilian CSDP Mission in Mali has only
recently launched, lessons are being learnt from its elder sister
in Niger; and as the latter reaches maturity it is seen by many
Member States as a crucial actor in the effort to tackle the flow
of migrants northwards from Sub-Saharan Africa to Libya and on
to the Mediterranean. Whilst we should be realistic about what
this Mission can achieve in the wide desert spaces of Niger, we
agree that the EU should do more on upstream migration work in
the Sahel, and that EUCAP should be an important instrument in
this area. In the meantime we welcome the increased focus on projects
and training under the current mandate, and therefore support
the Mission's budget for 2015-16."
Previous Committee Reports
None, but see (36171), —, Sixth Report HC 219-vi
(2014-15), chapter 11 (9 July 2014); (35390), —:
Nineteenth Report HC-xviii (2013-14), chapter 16 (23 October
2013) and Forty-sixth Report HC 83-xli (2013-14), chapter 13
(9 April 2014).
Annex: The Minister's detailed
analysis of the 2015-16 Budget
"The Proposed budget for EUCAP Sahel Niger is
€9,800,000. This represents a 7% increase on the current
allocation of €9,155,000. This increase is due to the recruitment
of three extra staff, and costs incurred in delivering increased
training and project activity, for which Member States have given
support. The increase will be funded from within the existing
CFSP budget which covers the costs of all civilian CSDP missions.
UK officials have interrogated the budget. We judge the proposed
expenditure to be commensurate with delivery of the mandate and
good value for money. Comparison of the new budget to the previous
budget is set out below (in euros):
| Budget heading
| Current budget
| Proposed budget
|
| 1. Personnel costs
| 5,172,123
| 5,502,551.30
|
| 2. Missions
| 322,120
| 233,362.33
|
| 3. Running expenditure
| 1,858,323
| 1,934,520.56
|
| 4. Capital expenditure
| 638,853
| 435,698
|
| 5. Representation
| 9,600
| 9,600
|
| 6. Projects and training
| 974,440
| 1,493,597.70
|
| Contingencies
| 179,541
| 190,670.11
|
| Total
| 9,155,000
| 9,800,000
|
"PERSONNEL COSTS: €5,502,551.39
"Proposed costs for personnel will rise by €330,428
(6.4%). The mission will budget for 94 staff, an increase of three
staff on 2014/15. Reasons for the increase include:
a. "The annual increase in staff salaries including a
€4,000 increase to the HOM's salary, as per EC staff regulations;
b. "International Contracted Staff: costs will rise from
€2,021,244 to €2,210,358.55 on account of the addition
of two staff, an increase of 10%. Additional staff will help the
mission continue and strengthen important activities in the north
(Agadez) and other regions to tackle illegal migration, organised
crime and the threat of Boko Haram;
c. "Local Staff: Headcount will rise by one to 35, with
the allocation for this subhead rising from €780,758 to €824,032.69.
The additional staff member is required to strengthen management
of mission resources.
d. "Insurances:
Expenditure for 2015/16 will be €160,178.16 compared to €93,351
for the current allocation. This increase is mainly due to a change
to what is covered under the insurance. Costs for the current
year included high risk insurance for the HoM and international
members, liability insurance and visiting experts. Under the proposed
budget, cover will also include medical insurance for local staff
(€52,080) which will also cover dependant costs. This is
the practice followed in other CSDP Missions such as EUSEC RD
Congo.
"MISSION COSTS: €233,362.33
"This
budget line covers expenditure directly related to the implementation
of the mandate, such as the costs of travel to Brussels, within
the Sahel and surrounding region, and within Niger, as well as
the costs of nine visiting experts travelling from Europe. The
new budget proposes a reduction of 27.5% compared to 2014-15.
"RUNNING COSTS: €1,934,520.56
"Expenditure
under this subhead covers vehicles, IT & communications, office
accommodation (rent and services), security services, medical
services, administrative costs and visibility (website maintenance,
media subscriptions, video production, promotional material, press
conferences). Proposed expenditure represents an increase of €76,197.56
(4.1%), due to:
a. "An increase in office and accommodation
costs. The HQ has been enlarged to include new offices and parking
space, which will require additional spending on maintenance and
utilities. In addition, more accommodation will be needed for
the uplift in staff connected with the planned increase in EUCAP's
activity on migration. Furthermore, a 10% increase in building
rent has been budgeted to cover additional costs resulting from
increases in the local rental market;
b. "An increase in administrative costs.
This is attributable to the inclusion of welfare costs under this
subhead, which had previously appeared in a different part of
the budget. Overall, welfare expenditure will reduce from €35,
945 to €23,304.48.
"CAPITAL EXPENDITURE: €435,698
"This
covers capital expenditure on vehicles, IT and communications
equipment, buildings, medical, security and miscellaneous equipment.
The proposed expenditure represents a reduction of 31.8%
on the current subhead allocation. Overall, costs have decreased
by €203,155. Now that the mission is firmly established,
there is less need for costly capital expenditure. However, the
mission has budgeted for a certain amount of IT equipment, security
equipment and medical kits.
"REPRESENTATION COSTS: €9,600
"No change.
Representation costs remain the same as in 2014-15.
"PROJECT & TRAINING COSTS: €1,493,597.70
"This
covers the continuation and expansion of core mission activities
to strengthen capacities of Nigerien security actors and combat
organised crime. This work is central to the delivery of the Mission's
mandate. The 2015-16 budget proposes an increase of €519,157
(53%) on the allocation for 2014-15, due to increased project
and training activity as recommended by Member States. Expenditure
of €770,364 on projects represents an increase of €269,267;
while the resources deployed to training activity will rise from
€473,373 to €772,963. Thirteen projects are being delivered
by the Mission under the current mandate. A number of these are
linked to training programmes also being provided by the Mission:
a. "Projects include: strengthening
coordination capacities of the Niger Defence and Security forces
(FDS); strengthening operational bodies of the gendarmerie - with
a possible solution being creation of an operational centre (requiring
construction of pre-fab structures) in Zinder; delivery of training
to reinforce criminal investigation techniques and operational
capacity of the interior security forces (FSI - this requires
additional IT); strengthening work to detect false documentation;
equipping the National Guard and Gendarmerie with ICT equipment
to combat terrorism; improving maintenance capacities of the FSI,
including the provision of tools for FSI mechanics; development
of a concept for mobile servicing facilities to help the FDSN
improve support for vehicles in the Sahel; reinforcing the capacities
of the Nigerien authorities for coordination with partners. EUCAP
will also support the creation of a National Secretariat for coordination.
b. "Training activity over the budget
period will amount to 327 days of training for 955 trainees in
Niamey, and 167 days of training for 1,130 trainees in the regions,
over the course of the budget period. The additional training-related
costs reflect expenditure on per diems, travel and administrative
support that will be incurred conducting ten training trips to
Agadez, two to Tahoua, five to Zinder/Diffa and one to Maradi.
"CONTINGENCIES: €190,670.11
"The Contingencies budget has increased by 6.2%,
which almost tracks the rise in the overall budget (7%). This
budget line covers unforeseen costs such as severance pay, and
can only be used with prior written approval of the Commission.
The contingency for 2014-15 remained unused."
489 See EEAS factsheet on EUCAP Sahel Niger for full
information. Back
490 See (36874), -; (36938), -: Council Decisions to establish and
launch on a European Union military operation in the Southern
Central Mediterranean (EUNAVFOR Med). Back
491 See (35390), -: Forty-sixth Report HC 83-xli (2013-14), chapter
13 (9 April 2014). Back
492 The overall authorized strength is 80 personnel (52 international
staff and 28 local staff). Back
493 See (36171), -, Sixth Report HC 219-vi (2014-15), chapter 11 (9
July 2014). Back
494 Further details of the projects are set out in the Minister's
budget analysis at the Annex to this chapter of our Report. Back
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