Charles Flanagan (Laois-Offaly, Fine Gael) | Oireachtas source

I acknowledge the work of the Chairman as Chair of this important parliamentary committee and also the work of the members of the committee who, I know, engage very positively over a wide range of issues hingeing on our foreign policy and Ireland's role in the world. That is very much appreciated by the Government, my Department and me. In that context I very much welcome the opportunity to address the committee on the recent developments at the Foreign Affairs Council.

My statement will focus on the regular, formal Foreign Affairs Council meetings held in December, January and February, along with an extraordinary Foreign Affairs Council meeting also in January. I will also look ahead to the Council meeting later this month.

I propose to address the key issues which have been discussed at the Council as follows: Ukraine, Russia, the southern neighbourhood, counter-terrorism, climate change, Bosnia and Herzegovina, and Ebola. I will look ahead to the topics to be discussed at the March Council, namely, Africa, migration and the Eastern Partnership.

I understand members may wish me to refer to issues outside the Foreign Affairs Council agenda and I would be happy to do so on the basis that there are a number of issues of importance pertaining to the committee upon which I may be in a position to provide an update or indeed take the committee's advice and guidance.

In my closing I propose to update the committee briefly on the recent launch of the foreign policy review, a publication in which I know the committee has taken a strong interest. I thank the Chairman and committee members for their input in shaping the form of the final document. I would be happy to address any questions members might have.

Since I last appeared before the committee to discuss the business of the Foreign Affairs Council, the conflict in eastern Ukraine has taken a number of turns. The lead-up to Christmas saw a lull in fighting which raised hopes that progress could be made in the search for a sustainable political solution. However, in January, the Russian-backed rebels launched a series of offences aimed at pushing back Ukrainian forces and seizing additional areas of territory over which to exercise control. The intensification in fighting led to a dramatic increase in the number of casualties, particularly among the civilian population in eastern Ukraine.

In light of this rapidly deteriorating situation, Chancellor Merkel and President Hollande undertook a diplomatic initiative involving President Poroschenko and President Putin. Their efforts culminated in a summit meeting of the four leaders in Minsk on 12 February at which the parties to the conflict signed an agreement undertaking to fully implement the Minsk agreements of the previous September. This deal provided for a ceasefire which came into effect on 14 February and committed both sides to withdraw heavy weapons from the front line.

After a troubled start, the 14 February ceasefire appears to have taken hold. Both sides have begun withdrawing heavy weapons and prisoner exchanges have also taken place. Despite these positive developments the situation is fragile and concerns remain in the Ukrainian Government that pro-Russian rebels are using the truce to regroup for new attacks on government positions.

The European Union has responded appropriately to these developments. At the December Foreign Affairs Council, Ministers confirmed their agreement in principle to the imposition of additional sanctions on investment, services and trade with Crimea in a further tightening of the EU’s policy of non-recognition of the annexation of Crimea. These measures were endorsed by the European Council on 18 December and entered into force on 20 December.

In response to the dramatic surge in violence during January, High Representative Mogherini called an extraordinary Foreign Affairs Council on 29 January at which Ministers agreed to extend the existing list of individuals and entities subject to European Union visa bans and asset freezes to September 2015. In addition, the Council approved a proposal to work up additional listings against separatists in eastern Ukraine and their supporters in Russia which were approved at the subsequent February Council meeting, although implementation of this decision was temporarily deferred to allow space for the aforementioned diplomatic efforts that were in train at the time.

The European External Action Service and the Commission were also tasked to undertake further preparatory work on “any appropriate action" which may include further economic sanctions to ensure the rapid and comprehensive implementation of the September Minsk agreements. This work is ongoing and is expected to be ready in advance of the European Council on 19 and 20 March where European Union leaders will have a detailed discussion on EU relations with Russia and the situation in Ukraine. The question of further economic measures against Russia will be a feature of the discussion. The conclusions of the December European Council meeting delivered a clear message that, regarding Ukraine, the EU would stay the course and stood ready to take further steps if necessary and appropriate.

The discussion on additional measures is expected to be largely influenced by developments on the ground in the period leading up to the European Council meeting and will determine the further steps the European Union will take. While recent developments on the ceasefire, including weapons withdrawal and prisoner exchanges, are a positive sign, the true test of the accord reached on 12 February will be in its full implementation.

At the January Foreign Affairs Council meeting a strategic discussion was held on the EU’s overall relations with Russia. This discussion sought to look beyond the Ukraine crisis, the prism through which our relations with Russia has been almost exclusively viewed for most of the past year, and to consider areas of shared interest and potential engagement. Ministers agreed on the advantages that lay in maintaining co-operation on important global and regional foreign policy issues such as Syria, Libya, and Iran, where engagement with Russia is considered desirable and on occasion necessary if progress is to be made in tackling these major challenges. It was also agreed that options for sectoral dialogues with Russia could also be explored at technical level in a limited number of areas, such as energy.

Ministers, however, made it very clear that this reflection on our relations with Russia should not be interpreted as a return to business as usual and that any resumption of dialogue with Russia would be selective, gradual and conditional. There was also a wide acceptance that any change in the current course of our relations with Russia could only come about if Russia altered its behaviour towards Ukraine and fully implemented its commitments under the September Minsk agreements.

I wish now to turn to the southern neighbourhood. At the December Council meeting the Council was joined by the Special Representative of the United Nations Secretary General for the Syria crisis, Mr. Staffan di Mistura, who outlined his proposals on a graduated de-escalation of the conflict. Ministers gave him full support in his efforts and discussed possible EU measures to support implementation of his plan. Conclusions were also adopted which made public full EU backing for his plan.

We also reiterated the European Union’s support for a political end to the conflict based on the Geneva principles, condemned regime and terrorist atrocities and crimes against civilians, urged full compliance by Syria with the chemical weapons convention, and called for all parties to respect and implement international humanitarian law and UN Security Council resolutions 2139 and 2165. The conclusions also pledged the European Union’s continued support for humanitarian efforts for the victims of the conflict and committed the European Union to supporting Syria’s neighbours in meeting the exceptional challenges posed by the massive inflow of refugees fleeing the violence in Syria.

The February Foreign Affairs Council also took note of a proposed European Commission communication on a regional strategy for Syria and Iraq, which it is expected will be formally adopted at our next Council meeting in March.

We also discussed the political and security crisis in Yemen in light of the 22 January resignation of President Hadi, along with Prime Minister Bahah and his Cabinet. We adopted conclusions which expressed deep concern about terrorist attacks and violent incidents and urged all parties in Yemen to work towards a political framework through which the legitimate aspirations of the Yemeni people can be attained and realised.

Libya is another country paralysed by a political and security crisis, and it was discussed at the February Foreign Affairs Council meeting. We agreed conclusions which welcomed the convening of the United Nations-facilitated political dialogue and underlined our continuing support for the efforts of the United Nations Support Mission in Libya, UNSMIL. We restated our view that there is no military solution to the Libyan crisis. Only a political settlement can achieve peace and stability for Libya and its people. The situation in Libya is expected to feature again at the March Foreign Affairs Council meeting, when we will review the situation and assess the progress of the United Nations-facilitated talks.

There has been a renewed and necessary focus on counter-terrorism in the aftermath of the terrorist attacks in Paris and more recently in Copenhagen. The January Foreign Affairs Council saw Ministers reiterate the need to co-ordinate internal and external measures and to step up efforts to prevent and counter the threat from international terrorism. Internal strategies are the preserve of the Minister for Justice and Equality and her counterparts, while foreign Ministers take the lead on external measures. In that regard I have had a number of meetings with my colleague, the Minister for Justice and Equality, Deputy Frances Fitzgerald, in order to ensure that matters internally and externally are co-ordinated in an appropriate manner.

The January Foreign Affairs Council also reaffirmed the need to intensify and accelerate implementation of the EU’s counter-terrorism and foreign fighters strategy on Syria and Iraq, which was agreed on 20 October 2014. This strategy is an integral contribution to the international effort to tackle the threat emanating from ISIL. It is one element of our wider foreign and security policy approach towards both Iraq and Syria which is situated within the larger political and regional context and includes support to the moderate Syrian opposition, while working with Iraq to ensure a more inclusive system of governance and addressing the humanitarian crisis.

Discussion on these issues continued at the February Foreign Affairs Council, at which Council conclusions were agreed, including on the need to mainstream counter-terrorism into foreign policy in full compliance with international law, fundamental values and international human rights standards. Measures envisaged within this framework include enhanced co-operation with and support for capacity-building in third countries to prevent radicalisation, the promotion of a counter narrative and the strengthening of legal and security measures, as well as a recognition of the need to address underlying factors, in particular the ongoing conflicts in Europe's southern neighbourhood.

The issue of Bosnia and Herzegovina was discussed at the December Foreign Affairs Council meeting following a visit to Bosnia by High Representative Mogherini and the European Commissioner for Neighbourhood Policy and Enlargement, Johannes Hahn. During this visit, they met senior politicians and representatives of civil society in Bosnia to discuss ways of injecting new momentum into the stalled reform process in order to help Bosnia advance on its EU accession path.

The Council agreed conclusions which called on Bosnia’s leaders to make a written commitment on a reform agenda. This includes socio-economic reforms such as the 2013 compact for growth and jobs as well as reforms relating to the rule of law and good governance. This agenda also aims to address functionality issues, including the EU co-ordination mechanism, and the implementation of the 2009 Sedjic-Finci ruling of the European Court of Human Rights. Upon receipt of the written commitment, the Foreign Affairs Council will then decide on the entry into force of Bosnia’s stabilisation and association agreement with the EU. Following meaningful progress on the implementation of this reform agenda, Bosnia’s application to join the European Union would then be further considered.

In response, on 29 January, Bosnia’s tripartite presidency agreed and signed a joint declaration expressing their readiness to pursue the EU reform agenda. Bosnia’s Parliament endorsed the declaration on 23 February. High Representative Mogherini attended the session and welcomed the move as "a historical moment and a starting point" for the key issue of implementing reforms. Bosnia and Herzegovina will be discussed again by the Foreign Affairs Council in the near future to decide on the next steps, including the entry into force of Bosnia’s stabilisation and association agreement with the European Union. Ireland has long been a strong supporter of Bosnia and Herzegovina and I look forward to further reports on developments of a positive nature from High Representative Mogherini in that regard.

Ebola was discussed at the Foreign Affairs Council in December. With the support of the international community, the efforts of the three countries most affected by Ebola - Guinea, Liberia and Sierra Leone - are finally beginning to show progress as transmission rates for this terrible disease show an overall rate of decline. Ireland has played a full role in the international response to the crisis through the work on the ground of our embassy in Sierra Leone, our significant financial support and the active and positive contribution of our non-governmental organisations, NGOs. It is important, however, that we see the crisis through to the end. We have the strategies to defeat Ebola and we need to focus on and implement them until the job has been completed to the satisfaction of everyone in the region and beyond. To do so, we must ensure we maintain the high level of resources which have been built up in Guinea, Liberia and Sierra Leone. That will be particularly important for Sierra Leone where transmission rates have, regrettably, begun to rise again.

A high-level international conference on Ebola was held in Brussels on 3 March. This focused both on short-term needs and on longer-term recovery and development. Ireland was represented by my colleague, the Minister of State, Deputy Sean Sherlock. The European Union and its member states have so far committed more than €1.2 billion to the Ebola response. In 2014, Ireland provided more than €18 million, directly and through NGOs, to the most affected countries. This included €10 million through our annual development programmes in our partner countries, Sierra Leone and Liberia, which have a particular focus on strengthening their national health systems. We have provided more than €5.6 million specifically for Ebola treatment facilities and for work on contact tracing, community mobilisation and child nutrition programmes, among other activities. We will maintain this strong focus throughout 2015.

Climate change was discussed at the January Foreign Affairs Council. As The Global Island: Ireland’s Foreign Policy for a Changing World highlights, climate change is one of the biggest global challenges of this century and demands a co-ordinated response at both national and international level. We are now at an important juncture in the run-up to the conference of parties of the United Nations framework convention on climate change taking place in Paris at the end of this year. At the Foreign Affairs Council in January, I joined my fellow Ministers in adopting an EU action plan for climate diplomacy which will use the collective leverage of member states and the EU institutions to work towards an ambitious climate change agreement in Paris this December. In support of the action plan for climate diplomacy, Ireland will prioritise engagement with the least developed countries through our mission network. We will also continue to support the UN Secretary General’s Special Envoy on Climate Change, our own Mary Robinson, in her outreach to countries before the Paris negotiations. If you did not have an opportunity already, Chairman, I hope you will invite Mrs. Robinson to join the committee in its discussions on this important issue.

The March Foreign Affairs Council, at which Ireland will be represented by the Minister of State, Deputy Dara Murphy, will see a strategic discussion on EU relations with Africa, which I very much welcome. It is my hope that this discussion will go beyond the traditional narratives of security and development aid and also address the interlinked issues of peace, prosperity and partnerships. Sustainable prosperity will not be achieved without peace, and peace itself is best achieved through partnerships that achieve a shared prosperity. Ireland has already taken steps to better integrate our political, development and economic relations with Africa through the Africa Strategy, launched in 2011. The strategy recognises that the African continent is undergoing an enormous economic and social transformation with average growth rates of 5% over the past ten years.

However, poverty persists and inequality is growing, creating the conditions for conflict, criminality and terrorism. Development aid alone cannot address these problems, more and better investments both public and private are required. From all of my contacts with African Ministers and officials, one message stands out, that Africa seeks to be fully and fairly integrated into the global economy so that sustainable domestic economic growth can overcome poverty and conflict.

I also hope the Minister of State, Deputy Dara Murphy, will have the opportunity to update our colleagues on Ireland’s role, together with Kenya, as a co-facilitator of the post-2015 discussions at the United Nations, where both Europe and Africa have a critical role to play in ensuring that we adopt a transformative framework which can address sustainable and inclusive economic growth, eliminate global hunger and ensure a peaceful and dignified life for everybody on our planet.

The EU’s Eastern Partnership policy will be discussed at the forthcoming Foreign Affairs Council and European Council in preparation for the Eastern Partnership Summit which will take place in Riga, Latvia, on 21-22 May. The summit will be an opportunity to take stock of the Eastern Partnership process, and developments since the last summit in Vilnius in 2013. It will set the path for the partnership for the next two years. In particular, it will be an opportunity to assess initial progress by Georgia, Moldova and Ukraine in the implementation of their EU association agreements, with assistance from the European Union.

Members will recall that these agreements were approved by the Dáil in January, after their consideration by the Select Committee on Foreign Affairs and Trade, and a debate in the Dáil. This paves the way for their ratification by Ireland, which will be completed before the Riga Summit in May. Once again I thank the Chairman and members of the Select Committee for their valuable contributions during our discussions on the agreements. These agreements are fundamental for the three countries concerned because they provide a long-term and comprehensive framework for their relations with the European Union. Their citizens will also benefit from the wide-ranging reforms which are embodied in these agreements. The Riga Summit should also seek to confirm that the Eastern Partnership is as relevant for those partner countries that did not conclude association agreements with the European Union.

In advancing the European Union’s partnership with these eastern neighbours, the Riga Summit should convey clearly the important message that the Eastern Partnership is not directed against any third parties nor does it seek to create new dividing lines in Europe.

The March Foreign Affairs Council is also expected to have a discussion on migration. The ongoing tragedy in the Mediterranean, where thousands of would-be migrants to Europe have lost their lives at sea in recent years and months, highlights the importance of ensuring that the European Union integrates questions of migration and displacement into its external and development policies. Much work has been done on developing a European Union approach to migration that recognises not only the reality that people are moving on an unprecedented scale today but also that migration has the potential to be a positive force for global development, in both rich and poor countries. Only last week I had the opportunity to spend a day in Geneva where the matter of international migration was very much on the agenda. I would be happy to provide the committee with a written note on my discussions in that regard at an early date.

Ireland is fully supportive of the European Union’s global approach to migration and mobility and we recognise the absolute importance of addressing the challenges of migration in a spirit of partnership between receiving and sending countries. Historically, we are a country of emigration that has only become a country of immigration in our very recent past. We are confident that our experience, particularly our experience in engaging with communities and individuals of Irish origin abroad, can help us to make a meaningful contribution to tapping the positive potential of migration.

I wish to avail of the opportunity to refer briefly to Ireland’s foreign policy which the Taoiseach and I launched in January. This review entitled, The Global Island: Ireland's Foreign Policy for a Changing World, is the culmination of a wide-ranging process of consultation conducted by my Department involving civil society and members of the public as well as other Departments and Members of the Oireachtas. I believe that it offers a progressive and forward-looking vision of Ireland’s foreign policy and Ireland's place in the wider world.

The review identifies our key goals under a number of broad themes. Through its focus on “our people”, the review takes stock of the ongoing work in pursuit of peace and reconciliation on the island of Ireland, as well as the provision of support for Irish citizens travelling, living and working abroad, our growing engagement with the Irish diaspora, and the promotion of Irish culture abroad. In addressing “our values”, the review sets out Ireland’s support for a fairer, more just, more secure and more sustainable world through our development programme, human rights policies, peacekeeping, disarmament and security policies and growing engagement with global issues such as climate change, while also considering the role of the European Union and United Nations in amplifying Ireland’s voice and extending its influence.

In relation to “our prosperity” the review considers the global economic background to the ongoing efforts in support of recovery, growth and job creation, in particular through trade, tourism, education, investment and the enhancement of Ireland’s reputation abroad. It is a good story that we need to tell and tell in a positive manner. The review also considers the fundamental importance for Ireland of our place in Europe and how the Government engages across the broad agenda of EU decision-making to safeguard and promote Ireland’s interests and to shape the European Union and its ongoing global engagement.

In addition, it considers how Ireland can use its influence and leverage the resources available to secure the maximum benefit for the Irish people from Ireland’s international engagement. It sets out the context for the Government’s international engagement, and in particular the work of my Department and of Ireland’s embassy network, 80 missions abroad, in the years ahead, all actively pursuing a positive agenda now in the years ahead.

The Secretary General of the Department, Mr. Niall Burgess, may meet with the committee in the near future, with the permission of the Chairman, to discuss the process leading to the “The Global Island” policy document. My primary concern of course is to ensure that the review is followed by concrete actions in the form of implementation in each of the five aforementioned strands. Some such actions are already under way. Last month I announced plans for a new passport card which will mark a significant enhancement for Irish citizens travelling overseas.

Last week I joined with the Taoiseach, and the Minister of State, Deputy Jimmy Deenihan, in launching the first ever comprehensive policy for engagement with our diaspora. Work on further practical measures is ongoing and I would welcome a future opportunity to brief the committee on these issues at some point in the near future.

In the meantime I take this opportunity to thank the committee for its engagement with the development of the foreign policy review and for the considerable inputs it has provided. I always welcome the committee's views, input, advice, guidance and contribution.

I am happy to address any questions Members may have and look forward to hearing their own perspectives on these issues and others which they might wish to raise.