I thank the Chairman and members of the committee. I welcome the opportunity to brief the joint committee on discussions at the Foreign Affairs Council for the second quarter of 2014. It has been a busy period since I attended the committee meeting at the beginning of March, not least in light of ongoing developments in Ukraine and recent developments in Iraq.
I propose to address the key issues by geographic region as follows: the eastern neighbourhood, the southern neighbourhood, Africa, and Asia, before touching briefly on one thematic issue, human rights. I look forward to discussing the details with members in due course. I will respond to the question on my visit to the United States after my main contribution.
The situation in Ukraine has been the subject of detailed discussion at the Foreign Affairs Council in the period under review. The crisis has been discussed at every Council for the past four months. The EU is resolved to do all it can to help facilitate an inclusive and negotiated settlement and has been actively engaged in efforts to promote dialogue and peace in Ukraine since the outset of the crisis.
The framework of the EU’s response to the crisis was decided at the informal meeting of EU Heads of State and Government on 6 March, where a calibrated three-stage roadmap was adopted in relation to targeted measures against the Russian Federation in the absence of a de-escalation of the situation. The Heads of State and Government endorsed, as a first phase, the suspension of talks on visa matters and on a new agreement on trade, as had been agreed at the extraordinary Foreign Affairs Council on 3 March. The Council on 17 March implemented the second phase of measures envisaged by the roadmap, namely, travel restrictions and an asset freeze against 21 Russian and Ukrainian officials involved in undermining Ukraine’s sovereignty and territorial integrity.
The March Foreign Affairs Council also discussed the so-called referendum that had been held in Crimea the previous day, which resulted in the territory’s formal annexation by the Russian Federation on 18 March. In our conclusions, EU foreign ministers rejected the poll as illegal and a clear violation of Ukraine's sovereignty and territorial integrity.
At the May Council, in light of the deteriorating security situation in Eastern Ukraine following the annexation of Crimea, Foreign Ministers agreed to the imposition of sanctions against a further 13 named individuals, bringing to 61 the total number of listed individuals subject to assets freezes and visa bans. Moreover, in a broadening of the EU’s criteria, we imposed sanctions on two entities, that is, companies based in Crimea which are deemed to have benefited from the illegal annexation. Following on from our discussion on Monday, the Council decided to prohibit the import into the European Union of goods originating from Crimea or Sevastopol with the exception of those having been granted a certificate of origin by the Government of Ukraine.
The Council has agreed to a number of concrete measures to build confidence in Ukraine and recognise its European choice as endorsed by the Ukrainian people in the presidential elections last month. In March, the Council supported the signing of the political chapters of the EU-Ukraine Association Agreement, which were subsequently signed at the European Council later that week. At the Council on Monday, my EU colleagues and I welcomed the forthcoming signature of the remaining provisions of the association agreement, including its deep and comprehensive free trade area, at the European Council later this week. On Monday, we also agreed to establish a common security and defence policy mission to Ukraine to lend assistance to the Government in the field of civilian security sector reform. In addition, we have consistently confirmed our support for the important work of the OSCE in Ukraine.
Ireland has played its full part in the OSCE’s activities in Ukraine and I would like to take this opportunity to pay tribute to the 16 Irish members of the OSCE-ODIHR observation mission that oversaw last month’s presidential elections. There are currently five Irish members of the OSCE special monitoring mission in Ukraine, which is engaged in a close assessment of the security situation on the ground.
The EU has also contributed financial support to Ukraine in order to assist in efforts to stabilise the macroeconomic situation and encourage the implementation of structural economic reforms. The March Foreign Affairs Council approved the European Commission’s proposal to offer €1.6 billion in macro-financial assistance to Ukraine, as well as temporary tariff cuts for Ukrainian goods. I am encouraged that the Commission disbursed the first tranche of these vital funds to Ukraine last month.
At Monday’s meeting, my EU colleagues and I reflected on the positive outcome of last month’s presidential elections which, despite the difficult security situation, were characterised by a high turnout and were largely in line with international commitments. In our conclusions, we welcomed President Poroshenko’s 15-point peace plan which was announced last Friday. Despite the significant challenges that face him and his Government, we remain hopeful that President Poroshenko’s strong mandate will help advance Ukraine on the path of reform and turn it into the modern and democratic country its citizens call for. The EU will continue to be actively engaged in facilitating a resolution to the crisis and supporting Ukraine’s progress towards peace and stability. For my part, I can confirm that Ireland fully supports the peace plan proposed by President Poroshenko which we hope will lead to the negotiated peaceful solution to the crisis in Ukraine that we all wish to see.
At the May FAC, Ministers held a comprehensive discussion on the European neighbourhood policy, ENP. More than a decade since its inception, the ENP continues to play a vital role in helping to build an area of stability and shared prosperity in the EU’s wider neighbourhood. The policy was revised in 2011 to take account of the dramatic developments in the countries on the southern shore of the Mediterranean. Key changes included strengthening links with civil society and a commitment by the EU to offer increased aid to partner countries prepared to embrace deeper democratic reforms.
While these elements will remain central features of the ENP, it is clear that a further review of the current policy is required in light of the crisis in Ukraine and the impact it has had on the wider region, coupled with increased instability in the southern neighbourhood. Key issues highlighted by Ministers during the FAC discussion included the need for greater flexibility in how the EU deals with individual countries under the ENP and the requirement to better tailor our approach to the differing political and economic realities faced by each of our partners. Ministers also agreed that supporting economic development and helping to address the challenges of high youth unemployment in partner countries will be crucial in building support for the ENP in the EU’s neighbourhood.
One of the key initiatives within the framework of the European neighbourhood policy has been the Eastern Partnership, EaP, a major priority for the EU since its launch in 2009. The purpose of the EaP is to create a zone of prosperity and stability to the east of the EU committed to the democratic values of human rights and rule of law. It is fundamentally in the EU’s security interests that the EaP succeed in these objectives.
As I have said, the crisis in Ukraine has underlined the need for a more effective ENP and EaP. Even against the background of this crisis, however, we can point to tangible progress in developing our Eastern Partnership. The signing of association agreements between the EU and Georgia, Moldova and Ukraine, expected to take place en marge of the European Council on 27 June, will mark an important symbolic moment for the EU’s relations with our eastern neighbours. It should also be noted that all six EaP countries, even those such as Belarus and Armenia which do not intend to conclude association agreements with the EU, are committed to the EaP and to closer co-operation with the EU.
While the focus in the EaP will necessarily be on the implementation of the association agreement, the EU will also consider how best to further develop its relations with all of the partner countries ahead of the next EaP summit in Riga in May 2015. This will be vital to the strengthening of our European neighbourhood policy, which in turn will be a priority task for the new Commission and High Representative when they take up office.
At the 14 April Council, I participated in a strategic discussion on Bosnia and Herzegovina where we agreed to broaden the EU agenda and engagement with the country. Member states urged Bosnia’s leaders to focus on addressing the socioeconomic issues highlighted by their citizens during the wave of public protests earlier this spring. We supported the development of a compact for growth and jobs that would engage local stakeholders in identifying concrete structural reforms to reinvigorate the economy. Ahead of the general elections due to take place in October 2014, we urged Bosnia’s leaders to reach out actively to civil society and to tackle issues such as the very high levels of unemployment in the country. Ireland remains a strong supporter of Bosnia’s EU perspective and I very much supported the EU in taking this broader and more active role.
The Balkan region, including Bosnia, was recently affected by some of the worst flooding since records began. Ireland responded by providing €50,000 to the NGO World Vision, as well as relief supplies such as tents and blankets, worth €220,000, to help victims of the flooding.
While it is not strictly an item for the Foreign Affairs Council, I would like none the less to say a few words about Albania in the context of the wider eastern neighbourhood. I welcome the agreement of the General Affairs Council yesterday to grant candidate status to Albania, subject to the endorsement of the European Council later this week. This is a positive decision that Ireland very much supported. Of course, candidate status is just the beginning of the process and much work remains for Albania before accession negotiations can begin. It is clear, for example, that there will have to be further progress in the fight against corruption and organised crime and in judicial reform.
Turning to the Middle East, attention is very much focused at present on the grave situation in Iraq, arising from the offensive launched earlier this month by ISIS, the Islamic State of Iraq and Syria or al-Sham, which has resulted in the capture of Mosul and several other major cities in northern Iraq. There can be no doubt about the seriousness of the threat posed by ISIS and its affiliated militias, not just to Iraq and its people but indeed to the wider region. I have resolutely condemned the violence and terror that ISIS has inflicted on ordinary Iraqis in pursuing its offensive. Unfortunately, we already know well from Syria the depths to which ISIS can plunge in seeking to impose its extremist views on others, including, for example, threats to execute Christians unwilling to convert in the Syrian city of Raqqa. The international community therefore needs to support the Iraqi authorities in confronting this serious challenge to the security and territorial integrity of Iraq. However, as I and many others, including EU and Arab League foreign ministers at the meeting in Athens on 11 June, have made clear, any security response also needs to be combined with strong political efforts on the part of the Iraqi Government and all its political leaders to promote national unity and reconciliation and involve all sectors of Iraq’s divided society in governing the country.
While the links with the crisis in Syria, where ISIS also poses a grave threat, are evident, the fact is that Iraq has just successfully conducted national elections at the end of April which have demonstrated the strong commitment of the Iraqi people to their democratic constitution. It is telling of the partisan manner in which the Maliki government has regrettably governed in recent years that a request by Prime Minister Maliki for the new parliament to convene in order to confer emergency powers to confront the current situation has been blithely ignored by non-government political representatives. I welcome the more recent signs of accommodation among Iraq’s political leaders which we have seen subsequently in recent days.
The EU and the UN remain fully committed to jointly assisting Iraq and its leaders in confronting the serious challenges the country faces and promoting greater inclusivity and power sharing among Iraq’s different communities. The Council this week had a useful meeting with the UN Special Representative in Iraq, the former Bulgarian Foreign Minister, Nikolai Mladenov, to discuss the crisis, including stepped up international efforts to confront the serious humanitarian situation. Committee members will be aware that I was pleased to announce an initial contribution of €200,000 from the Irish Aid budget last week to GOAL to assist the vital humanitarian operations it is undertaking in northern Iraq.
The Council on Monday also addressed the continuing crisis in Syria, where regrettably there has been very little progress of any sort to report over the past three months. Earlier this month, we observed the spectacle of Bashar al-Assad being re-elected President for a further seven-year term in an election whose legitimacy could only be questioned by any impartial observer, given the many millions of Syrians in opposition-held areas who were unable to vote. As the Council noted in the conclusions it adopted in April, any election organised outside the framework of the Geneva communiqué and principles could have no credibility whatsoever and will only undermine efforts to reach a political solution.
Efforts to promote a political settlement are currently at a standstill following Joint Special Representative Brahimi’s decision to stand down last month. The UN Secretary General, Ban Ki-moon, is currently reflecting on how best to promote a political process and will appoint a successor to Mr. Brahimi once this process of reflection is complete.
Clearly, all relevant regional stakeholders need to be engaged in the search for a political solution, as the advance of the Islamic State of Iraq and al-Sham or, more accurately, its return to Iraq has graphically underlined the broader threats which the wider region now faces. While the Geneva talks process may be suspended, the principles underlying the original Geneva communiqué providing for some form of political transition are still likely to prove relevant in the continuing search for peace in Syria.
In the meantime, the humanitarian situation arising from the crisis continues to worsen, with little progress in improving vital humanitarian access evident since the United Nations Security Council adoption of Resolution 2139 last February. Work is continuing within the council on a possible follow-up resolution which will aim at compelling greater compliance on the part of all sides in Syria, particularly the regime, in facilitating humanitarian actors and access. Such a resolution is clearly necessary given the limited compliance with Resolution 2139 to date. Syria’s neighbours, particularly Lebanon and Jordan, continue to face a serious burden in coping with the influx of Syrian refugees. The committee will be aware that the Taoiseach visited Lebanon on 16 June where, prior to visiting our UNIFIL contingent, he met Prime Minister Salam and was able to announce a further substantial contribution of €2 million from the Irish Aid budget to assist Syrian refugees and the host communities accommodating them in Lebanon. This latest contribution brings Ireland’s total humanitarian assistance to date since the inception of the Syria crisis to over €28 million, firmly putting Ireland among the front rank of contributors on a per capita basis.
The Middle East peace process is due to figure on the agenda for the July Council. Ireland has been one of several countries calling for an early substantive discussion by the Council of the Middle East peace process and the EU’s role following the suspension of the US-led peace talks at the end of April and the announcement of the formation of a Palestinian unity government earlier this month. Clearly, the priority must be to continue to work for the earliest possible resumption of substantive negotiations which address all the core issues. Ireland and the EU have been fully supportive and appreciative of the immense efforts expended by the US Secretary of State, Mr. Kerry, and the US Administration in recent months in trying to create a framework for substantive peace talks. As the conclusions adopted by the Council in May made clear, these extensive efforts must be built upon and not allowed go to waste. However, the reality at the moment is that the situation is rapidly deteriorating and there seems little likelihood of direct talks resuming in the near future.
Last week during a Topical Issue debate, the Government set out its position on the current Palestinian hunger strikes and the practice of administration detention which has given rise to this protest. I condemn the recent abduction of three young Israelis in the occupied territories and add my voice to those calling for their urgent release and return to their families. No possible good can be served by such a reprehensible act. These developments as well as the stringent security measures which Israel has taken in response to the kidnapping are contributing to heightened political tensions and posing obstacles to the formation of the unity government announced on 2 June, which I have warmly welcomed as a positive development in the overall efforts to achieve a two-state solution. Against this background, I believe it would be timely for the EU to review its overall role in respect of the Middle East peace process and consider whether it should play a more active role in confronting the obstacles which increasingly impede a negotiated two-state solution, not least Israel’s continued expansion of settlements. In particular, I hope a substantive discussion in July would allow the Council to consider whether several initiatives that the EU has previously contemplated in pursuance of its long-standing position on settlements, such as the labelling of settlement produce and the issuing of advice to businesses on the dangers of commercial interaction with the settlements, might now be progressed. If we are really serious about pursuing the two-state solution then the EU needs to actively consider how it can best use its not inconsiderable leverage to persuade Israel to desist from unrelenting expansion of settlements which ultimately can only be injurious to any prospects for peace and a viable two-state solution.
Last Monday, the Council also reviewed developments in Egypt and Libya, two countries that are continuing to experience a difficult transition to democracy. In both countries there continues to be a need for greater inclusivity and accommodation of political differences. The recent violence and instability in Libya is particularly regrettable and it is to be hoped that the parliamentary elections being held today will afford an opening for an inclusive and transparent national dialogue within Libya, which is so urgently needed.
Meanwhile in Egypt, President el-Sisi and his new Government have taken up office following the elections in May. Ireland, together with our EU partners, wishes President el-Sisi well, especially in confronting the many serious challenges that Egypt continues to face in promoting sustainable prosperity. We will continue to press strongly for greater respect for human rights and the rule of law. In this regard I join with many others in condemning the severe sentences imposed on several al-Jazeera journalists earlier this week for doing no more than their job.
The committee will also be aware of the case of Ibrahim Halawa, who is in detention in Egypt. From the beginning of this case my Department has been liaising actively with this man’s family. I raised my concerns regarding the case of Ibrahim with the EU High Representative, Catherine Ashton, as recently as Monday at the Foreign Affairs Council in Luxembourg. I raised my concerns at his continued detention without trial with the then Egyptian Foreign Minister, Nabil Fahmy, on 11 November and 23 December 2013. I followed up these telephone calls with a letter to Minister Fahmy in January expressing my continued concern at his detention. As Ibrahim’s case is still before the judicial system in Egypt, we are precluded from getting involved in the judicial process. However, I assure the committee that I continue to remain seriously concerned at his continued detention and I have directed that the Irish Embassy in Cairo and the consular assistance section in my Department continue to provide all appropriate consular assistance.
The security situation in Nigeria, including the abduction of more than 200 schoolgirls in April, was discussed by EU colleagues at the Foreign Affairs Council on 12 May. The Council adopted conclusions, supported by Ireland, strongly condemning the indiscriminate killing of civilians and the abduction of the schoolgirls, calling for their immediate and unconditional release and for those responsible to be brought to justice. With effect from 29 May the EU added Boko Haram to the lists of persons, groups and entities covered by the freezing of funds and economic resources in line with the decision by the United Nations to add Boko to its list of individuals and entities subject to targeted financial sanctions and an arms embargo. I know that the members of this committee recently invited the then Nigerian ambassador, Mr. Felix Yusufu Pwol, to update the committee on this ongoing situation. I am aware that in his statement, Ambassador Pwol highlighted the multi-track strategy the Nigerian Government is pursuing in response to the ongoing security issues. We will continue to support efforts being undertaken by the Nigerian Government, and those EU and international partners providing additional support, to recover the missing schoolgirls and counter radicalisation and terrorism within its borders.
I am deeply concerned about current developments in Thailand. My Department is monitoring the situation closely. Following months of pro-and anti-government protests, the Royal Thai Army took control of the government last month and suspended the constitution. On 23 May I called on the military leadership to restore the democratic process and the constitution, uphold international human rights standards and hold credible and inclusive elections as soon as possible. The EU adopted conclusions at the June Council expressing great concern at these developments and called on the military leadership to restore the legitimate democratic process and the constitution through credible and inclusive elections. The conclusions stated that the roadmap falls short of what is required for a return to constitutional rule. The EU also called on all parties to exercise the utmost restraint and urged military authorities to free all political detainees, to refrain from any further arrests for political reasons and to remove censorship. Official visits between the EU and Thailand have been suspended. The EU and its member states will not sign the partnership and co-operation agreement with Thailand until a democratically elected government is in place.
Ireland supports the efforts being made by the EU and wider international community to help Afghanistan to become a peaceful democratic state, based on respect for human rights and the rule of law. We are heartened by the conduct of the two rounds of the presidential election and salute the courage of the Afghan people who have come out to vote, risking their lives, in great numbers to cast their democratic ballot. We remind Afghanistan, however, that it must implement the commitments it entered into at the Tokyo conference last year to improve economic and political governance. I remain concerned about Afghan women’s rights. There is a clear risk of significant deterioration in the position of Afghan women post-2014. The gains made for Afghan women to date are fragile and we must protect them. This will be an urgent challenge for Afghanistan’s new president. While I support a national reconciliation process in Afghanistan, we must guard against the Taliban returning to previous unacceptable practices. We need to see a democratic process which fully respects the rights of all to full participation in Afghan society. I welcome the Council conclusions on Afghanistan agreed by EU Foreign Ministers on Monday.
Finally, I take this opportunity to briefly update the committee on Foreign Affairs Council related developments in the field of human rights. On 12 May 2014, the FAC adopted new EU guidelines on freedom of expression online and offline. The guidelines will be an important resource for officials and staff of EU institutions and EU member states in the work of the EU to protect and promote the right to freedom of expression. Ireland is a consistent supporter of freedom of expression and we have prioritised this through our activities at the UN Human Rights Council in Geneva and in our engagement in the development of these guidelines. Ireland was actively involved in the development and elaboration of the guidelines.
Challenges to the right to freedom of expression, including the growing threat to the safety of journalists and actions being taken to excessively restrict information flow on the Internet, is one aspect of concern. So too is the shrinking space for civil society in many countries. Improving the operating environment for civil society actors is a critical element in the protection of human rights defenders. I am pleased therefore that the FAC on 23 June adopted Council conclusions to mark the tenth anniversary of the EU guidelines on human rights defenders, reiterating its support for human rights defenders across the world.
The adoption of the EU guidelines on human rights defenders in 2004 was one of the key priorities of the Irish Presidency of the EU in the field of human rights. The guidelines have brought more coherence to the EU’s policy in this area. In line with the priority that Ireland places gives to the issues of civil society space and protecting human rights defenders, our permanent representation in Brussels hosted an event on 17 June marking the tenth anniversary of the EU guidelines. The Minister of State with responsibility for trade and development, Deputy Joe Costello, addressed the event, which was very well attended, and reaffirmed the Government’s support for the work of human rights defenders.
That concludes my overview of discussions at the most recent Council meetings. As always, I would be more than happy to address any questions you may have, and look forward to hearing the committee's perspectives on the many foreign policy challenges we face.
