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QCEA Comments: 02 June 2003

• Peace-building and civilian intervention should be at the heart of the EU’s common foreign and security policy. In the draft articles disproportionate emphasis is given to military defence and capabilities.

• When the internal action of the EU impacts on third countries, it must be coherent with and aim towards achieving the principles and objectives of external action. Equally, there must be coherence between the different areas of external action.

• Partnership should be introduced as a fundamental principle of ALL external action.

Detailed comments and suggested amendments:

Part III, Title V – The Union’s External Action

Article III-188 – Provisions Having General Application

We welcome this Article as a positive statement of principles and objectives for external action. It is crucial that these principles and objectives are at the heart of all EU policy, including internal policy when it has an impact on third countries. There must be stronger emphasis on peace and disarmament, however.

Article 188.1: The Union’s action on the international scene shall be guided by, and designed to advance in the wider world, the principles which have inspired its own creation, development and enlargement: peace, democracy,… [as Presidium text] … respect for human dignity, equality, social justice and solidarity, [as Presidium text].

Article 188.2c: Preserve and actively support peace, prevent conflict… [as Presidium text].

Article 188.2c bis [new]: promote global disarmament;

Article 188.2d: foster global sustainable economic, environmental and social development [delete ‘of developing countries’] with the primary aim of eradicating poverty [delete ‘particularly in low-income countries];

The concept of sustainable development is universally understood to have three pillars, economic, environmental and social. It is an objective for all countries in the world, not simply the poorest.

Article 188.2e: encourage the integration of all countries into the world economy [delete ‘including through the progressive abolition of restrictions on international trade];

The abolition of restrictions on international trade is not an objective, but a means of achieving an objective. It is thus inappropriate in this context: if a better means were found it would not be helpful to have this policy instrument set in stone in this way.

Article 188.2 bis (new): The Union’s external action shall be based on the principle of partnership exercised on the fundamental principles of equality of the partners; ownership of the strategies by the countries and populations concerned; and participation in order to encourage integration of all sections in society, including civil society organizations.

In all external action the EU should work in equal partnership with the third countries, international bodies or organisations concerned. In striving to achieve the objectives listed in Article 188.2, the EU must listen to and work with its partners to find the most effective and appropriate ways to act. In particular, the participation of civil society must be encouraged as a means to a more democratic system of global governance.

Article 188.3

We welcome the expansion of this article but still see the need for a different emphasis in the second part of this and therefore propose the following wording for the second part of this article the following:

The Union shall ensure coherence between the different areas of its external action and between external action and internal action which impacts on third countries. It shall [delete ‘also’] strive to achieve the principles and objectives listed above in the development and implementation of external aspects of all Union policies.

The principle of coherence is vital to the achievement of the objectives listed in Article 188. In particular there is a need for recognition of the external impact of internal policies and thus the need to be aware of and promote the objectives of external action in all EU policies.

Article 189

This Article, which brings together policies which previously fell under different pillars of the EU system, must make it clear that there are areas of external action which are governed by the community method. The Article as it stands describes a primarily intergovernmental system, giving much more power to the European Council and the Minister for Foreign Affairs. The role of the European Parliament must be described here.

Article 189.1: With the aim of furthering the principles and objectives…[as Presidium text].

Here, and throughout Part III, Title V, the wording related to the principles and objectives of external action must be made much stronger.

Article 189.2: The previous version of this article (ex Article 2) referred to qualified majority voting. We are concerned that this has been left out in this draft, as it is important to ensure that progress can be made on such issues.

Chapter II: Common Foreign and Security Policy

A. Common Foreign Policy

Article 190.1: With the aim of furthering the principles and objectives…[as Presidium text].

B. The common peace-building, security and defence policy

Article 205 bis [new]: In order to establish a framework for joint contributions from European NGOs to the civilian peace-keeping, peace-building and humanitarian actions of the Union, a European Civil Peace Corps shall be set up. The European Parliament and the Council, in compliance with the legislative procedure, shall adopt a European law determining the rules and operations of the Corps.

The establishment of a European Civil Peace Corps would strengthen the EU’s civilian capabilities for peace-keeping and peace-building. The European Parliament adopted a recommendation on the establishment of a European Civil Peace Corps on 10/02/99, based on Report A4-0047/1999.

Article 207

Any European strategic research agency must focus on both civilian and military capabilities: the achievement of the objective of preserving peace and preventing violent conflict requires commitment to research into civilian instruments and mechanisms for non-violent conflict prevention. Research into civilian instruments must be given equal, if not greater, resources than military research, particularly as this is a sector which has not received adequate funding in the past. The overall aims must be the achievement of the general objectives of external action, taking into account, for example, the environmental impact of military equipment and technology.

Article 207.1: The European Peace-building, Defence and Strategic Research Agency shall have as its task to:

- contribute to identifying the Member States’ civilian and military capability objectives with the aim of achieving the objectives of external action set out in Article 188, and evaluating…[as Presidium text];

- promote harmonization …[as Presidium text];

- propose multilateral projects to fulfil the objectives in terms of civilian and military capabilities, with a view, in particular to conflict prevention and peace-keeping operations, …[as Presidium text];

- support peace-building and defence technology research,… [as Presidium text];

- contribute to identifying and, if necessary, implementing any useful measure for strengthening the industrial and technological base of the peace-building and defence sectors and for improving the effectiveness of civilian and military peace-building and defence related expenditure.

Chapter III: Common Commercial Policy

Article 211: The common commercial policy shall aim at furthering the principles and objectives of the Union’s external action, as set out in Article 188 of this Title. By establishing a customs union between themselves Member States aim to contribute, in the common interest, to the harmonious development of world trade [delete rest of Article].

The overall objectives of external action must be emphasised at the very beginning of this Chapter, as is the case in the Articles introducing the CFSP, Development Co-operation and Humanitarian Aid. In the current draft the absence of these principles and objectives stands out in Article 211. It is crucial that the aims of sustainable development and the eradication of poverty in particular, are integrated into the common commercial policy.

Chapter IV: Development Co-operation, Co-operation with Third Countries and Humanitarian Aid

I. Development Co-operation

Article 213: 1. Union policy in the sphere of development co-operation shall aim to further the principles and objectives of the Union’s external action as set out in [Article 1] of this Title, in particular with a view to achieving sustainable development and the eradication of poverty. The Union’s development co-operation policy and that of the Member States complement and reinforce each other.

2. The Union and the Member State shall comply with the commitments and contribute to the objectives they have approved in the context of the United Nations and other competent international organisations.

Again, the suggested wording strengthens the role of the principles and objectives. As in other Articles introducing different aspects of external action, the specific objectives of development co-operation should be set out clearly. In 213.2 it must be specified that the EU and Member States are committed not only to take account of, but actively to work towards international objectives.

III. Humanitarian Aid

Article 218.5 (European Voluntary Humanitarian Aid Corps)

We welcome the idea of creating this corps. We feel there is also a role for a European Civil Peace Corps, as suggested for inclusion in Article 205 above. Thought should be given to ways to make the work and structure of these two bodies complementary. Humanitarian aid and peace building are inter-linked areas: there is a need for coherence and consistency in the EU’s strategy.

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