I thank the joint committee for the opportunity to appear before it. I wish to provide the committee with an update on Ireland's position and role in the European Union Common Security and Defence Policy, CSDP, and on my recent attendance at the informal ministerial meeting of European Union defence Ministers at the end of August. My opening statement will update members on a number of the main defence developments at EU level since my last appearance on this topic in April 2018. Since then, a Foreign Affairs Council, FAC, with defence Ministers was held in Luxembourg in June, and an informal ministerial meeting was held in Vienna in August. The Tánaiste and Minister for Foreign Affairs and Trade, Deputy Coveney, attended the FAC while I attended the informal ministerial meeting. I will also attend the FAC defence meeting in Brussels on 19 and 20 November, where a number of the issues I am detailing this morning will be discussed and progressed further.
At the FAC, a Council decision establishing the common set of governance rules for permanent structured co-operation, PESCO, projects was adopted. The agreed set of common governance rules is sufficiently robust while providing the correct balance between legal clarity and flexibility. In particular, Ireland welcomed the general agreement to allow member states participate as observers in PESCO projects. Observer status can allow participating member states keep abreast of developments in a particular area and is an example of the inclusive nature of the PESCO initiative. The FAC also provided Ministers with an opportunity to commence meaningful discussions on the exceptional participation of third states on PESCO projects. The informal ministerial meeting in Vienna on 29 and 30 August included an exchange of views on PESCO among other EU defence initiatives. This was an important opportunity for Ministers to come together to take stock of the PESCO initiative to date and to chart the key next steps for the way forward. Discussions were open and constructive. Key areas discussed were the conditions for the exceptional participation of third states and an early draft of the council recommendation on the sequencing of the more binding commitments. The Council recommendation on PESCO commitments provides a more objective and detailed basis for assessing whether PESCO participants are meeting their commitments. I am satisfied that the greater detail does not go beyond the actual commitments agreed in the original decision. This Council recommendation was adopted by the FAC on 15 October with the Tánaiste in attendance. Ireland’s position is that, with the overall architecture now in place, it is time to focus on the delivery of outputs and outcomes from PESCO projects.
Ireland participates in two PESCO projects as part of the first tranche of PESCO projects agreed by the FAC defence Ministers in March this year: a German-led project to develop a centre of excellence for EU military training missions and a Greek-led upgrade of maritime surveillance systems. Ireland is also an observer on a further eight PESCO first round projects. We are considering the draft list of possible second tranche PESCO projects, the final list of which will be formally approved at the upcoming FAC next month in Brussels. Another key decision regarding PESCO which will require ministerial agreement will be the conditions of exceptional participation of third states in PESCO projects. At the FAC in November, we intend to support the exceptional participation of third states provided that their participation is governed by the principle of added value. As discussions progress in advance of November’s meeting, I am happy with developments on this matter.
The proposed co-ordinated annual review on defence, CARD, aims to create greater transparency by sharing member states' information on future defence policy, capability development, budgets and investment. It is expected that such transparency will support greater collaboration among member states on investment in capabilities.
Participation in CARD is open to all member states on an entirely voluntary basis, recognising that the defence policies of member states, including defence spending and capabilities, is entirely a national competence. The detailed implementation and information sharing requirements for CARD have been developed by the European Defence Agency. They are being tested through a trial run that commenced in autumn 2017 involving all member states. The report on the trial run will feature as part of the FAC on defence in November, where recommendations will be presented, lessons will be identified and the proposed way ahead discussed. It is expected that the first full CARD cycle will be launched in autumn 2019. Ireland, in tandem with most other member states, supports the voluntary nature of CARD, which also recognises that defence policy, including defence spending, is a national competence.
The third European peace facility, EPF, proposal was published by EU High Representative Mogherini, with Commission support, on 13 June this year. The proposal is for an off-budget funding mechanism that will be an instrument of the Common Foreign and Security Policy, CFSP, and CSDP. There are many complicating factors in the proposal which require cross-Government consideration. The EPF would draw together and expand existing off-budget mechanisms devoted to security and defence in a number of key areas, including the Athena mechanism and the African peace facility.
At the FAC in June, Ministers participated in an initial exchange of views on the proposal during the joint security and defence session. In broad terms, member states expressed that consideration of the proposal was at a very early stage and would require further discussions at EU and national level given its cross-departmental nature and the level of funding proposed.
At the informal ministerial meeting in Vienna in August, Ministers again held tentative discussions about the proposal. The reaction of the majority of member states has been fairly negative on the overarching changes proposed under the EPF, particularly on the amendments to the Athena mechanism and the African peace facility. There was a very clear view from member states that they wished to ensure continued member state control of such funding mechanisms and for the most part expressed satisfaction with the existing governance arrangements.
While we want to be positive, we feel it is important for the High Representative and the Commission to recognise that member states’ review of the proposal is at a very early stage. While it is expected that the EPF will be a topic of discussion at the November FAC, no Council decision or recommendation regarding the EPF will be considered for adoption. This stage in the process is some way off yet. I look forward to a transparent, inclusive and realistic discussion on the issue in due course.
On 8 June last year, the Council adopted the decision establishing the military planning and conduct capability, MPCC, within the EU military staff. The establishment of the MPCC was a very important operational decision in providing a military planning component to match the existing civilian planning component. The actions of both the civil and military planning components are co-ordinated through a joint support co-ordination cell which supports the EU comprehensive approach to crisis management. In June last year, the MPCC assumed command of EU non-executive military CSDP missions, including the EU training mission in Mali where the Defence Forces are contributors.
The Council decision establishing the MPCC included a stipulation that a review of the mechanism should be carried out after a year of operations, but not later than the end of 2018. The review process is under way and was a topic of discussion at the informal ministerial meeting in August. The informal meeting offered Ministers the chance to provide initial thoughts on both the activities of the MPCC to date and the scope of the eventual review. It is anticipated that the MPCC review will be an agenda item at the November FAC. In terms of a recent report issued by High Representative and Vice President Mogherini regarding the review, we are in agreement that the MPCC, appropriately configured and supported through a fully operational joint support co-ordination cell, has the potential to deliver more effective and responsive CSDP civil and military operations, thereby contributing in a meaningful way to the EU’s comprehensive approach.
We support the current function and scope of the MPCC. Although neither the MPCC nor the joint support co-ordination cell is yet considered to be fully operational, we, like other member states, look forward to examining fully the proposals put forward by the High Representative and Vice President. This will include consideration of options for possible further development of the MPCC on a phased basis.
As I acknowledged during my previous appearance at the committee, the issue of military mobility has gained prominence on the EU agenda given difficulties that countries have experienced in moving their troops through other EU countries for the purposes of training and exercises. At the European Council in June, which was attended by the Taoiseach, Ireland welcomed the fact that the Council conclusions adopted recognised that full respect will be given to the sovereignty of EU member states over their national territory and national decision-making processes regarding military movements.
The European Union military committee has prepared a military requirements document and this document is under review. As this is an issue that goes beyond defence, discussions between the Department of Defence and other relevant Departments on the military mobility requirements is ongoing. It is anticipated that military mobility and the related PESCO project will be discussed at the FAC meeting in November.
On 13 June 2018, the Commission put forward proposals for a regulation establishing the European Defence Fund under the 2021-2027 multi-annual financial framework. The defence fund is divided into two strands or windows: research and capability, and development and acquisition. The focus of the fund is on the development of new research and technology in the defence sector. Activities under the research and capability window and under the development and acquisition window will be linked to defence capability priorities agreed by member states. Ireland sees the fund as a means of supporting the development of EU military capabilities for CSDP operations. Ireland’s position on the proposed €13 billion to be dedicated to the European Defence Fund - €4.1 billion to the research window and €8.9 billion to the capability window - will be addressed in the context of discussions on multi-annual financial framework. Discussions are ongoing at interdepartmental level in this regard.
Council conclusions on migration adopted by the European Council in June noted that breaking the business model of smugglers in the Mediterranean required a new approach to the disembarkation of those who are saved in search and rescue operations, an approach based on shared or complementary actions among the member states. The Italian authorities have sought to progress this aspect of the June conclusions as quickly as possible. This resulted in a call for the strategic review of Operation Sophia to be brought forward for discussion, which it was. The report on the strategic review was considered at EU level. Further discussions on future disembarkation arrangements in the Mediterranean are ongoing. It was noted at the August defence ministerial meeting that the matter of disembarkation of migrants is broader than CSDP, where it was initially discussed in the context of the implications for Operation Sophia. It is recognised that political discussions and direction from justice and home affairs Ministers and Heads of State or Government are necessary to progress this issue as it will have clear importance for the future of the common European asylum system and for wider EU migration policy. At present, Operation Sophia continues to operate under its original mandate.
In anticipation of the NATO summit in July this year, the June FAC involved a working session on EU-NATO co-operation. Throughout 2018, EU-NATO co-operation remains a feature of the defence landscape within the European Union given that 22 of the 28 member states are also members of NATO. Sharing strategic interests and facing similar security challenges, NATO and the European Union co-operate on issues of common interest, especially in the areas of crisis management, new security threats and capability development. Following on from the 2016 joint declaration on EU-NATO co-operation, a second joint declaration on EU-NATO co-operation was signed in Brussels in July this year by the Presidents of the European Council and the European Commission, and the NATO Secretary General, Jens Stoltenberg. This declaration offered a key opportunity for the two organisations to take stock of achievements to date and to look forward. In June this year, the third progress report on EU-NATO co-operation was issued by the EU and NATO. It did not identify any new areas of co-operation and was positive regarding overall progress to date. Key areas of co-operation include countering hybrid threats, operational co-operation, including maritime issues, cybersecurity and defence, military mobility, women, peace and security and capacity building.
Ireland welcomes greater EU-NATO co-operation where it contributes to international peace and security and is focused on avoiding duplication of structures, systems and interoperability standards. This ensures better coherence and effectiveness on the ground in peace support and crisis management operations.
It is important to note that both the recent Joint Declaration and the 2016 Warsaw Joint Declaration confirm that EU-NATO co-operation will fully respect the decision-making autonomy of both organisations, and will not prejudice the specific character of the security and defence policy of any member state. This is a strong acknowledgement that Ireland’s policy of neutrality and non-NATO membership will in no way be affected by enhanced co-operation.
Throughout 2018, Ireland has remained fully engaged in all common security and defence policy processes. This is important given the vital role that the EU plays in support of international peace and security and the UN. Fully participating in these developments ensures that Ireland continues to have a voice and to influence the evolution of EU defence and security policy. Efforts are ongoing by EU member states, within the treaty provisions, to respond to the challenging security environment we all face. These efforts are being advanced through the implementation of the EU global strategy of foreign policy and security, the Commission’s European defence action plan, and through enhanced co-operation with international partners including the UN and NATO.
In respect of the EU’s relationship with the UN, I would like to highlight that in early September, Ireland was instrumental in the adoption of Council conclusions endorsing the priorities of the UN-EU strategic partnership on peace operations and crisis management for the period 2019-2021. In the conclusions, the Council recognised the mutually beneficial nature of the long-standing UN-EU co-operation on peacekeeping and civilian, police and military crisis management. Ireland is very closely engaged in supporting greater co-operation and dialogue between the EU and the UN. At each ministerial meeting, I take the opportunity to meet with Jean-Pierre Lacroix, the UN Under-Secretary-General for Peacekeeping Operations, to review Ireland’s engagement with the UN and reflect our positive support and commitment to EU-UN co-operation.
In conclusion, our Defence Forces and the wider defence organisation are making an invaluable contribution to international peace and security and conflict resolution. This is achieved through their ongoing and professional engagement with the UN, the EU, NATO, the Organization for Security and Co-operation in Europe, OSCE, and other international engagements within a bilateral context. I thank the committee for the opportunity presented by today’s welcome invitation. Engagement with defence issues and policy matters in this forum can add to the existing public discussion of defence issues, and can also highlight the important, dynamic work being carried out from an international perspective by the Department of Defence and the Irish Defence Forces.
