Council of Europe

Lord Anderson of Swansea Excerpts

Thursday 18th November 2010 Lords Chamber

[Lord Anderson of Swansea]

My Lords, the Minister made a positive and welcome speech on the Council of Europe. Last year the noble Earl, my noble friend Lord Prescott and I were in Strasbourg celebrating the 60th anniversary of the Council. Over the 60 years, the Council has defended common European values, worked as a pan-European organisation and monitored member states’ compliance with obligations on human rights, democracy and the rule of law. Even though the treaty was signed in London in 1949, it was not welcomed at the beginning, when Ernest Bevin, the then Foreign Secretary, said:

“I don’t like it. When you open that Pandora’s Box, all sorts of Trojan Horses will come out of it”.

I do not believe that Trojan horses have indeed come out of it, but the statute of the Council of Europe refers, of course, to the unity of Europe but not to European Union. It has always been apart from the federalist tradition of Europe, which ultimately led to the Rome treaty and the European Union.

In 1960-61, my first job was as a foreign office adviser to the Council of Europe Assembly. At that time, there was a great deal of despondency because the Council of Europe, which was founded before the Common Market, as it then was, had been overtaken by it. I was told by our then ambassador John Peck that at the meeting of Ministers’ deputies in 1959, when they were discussing how best to celebrate the 10th anniversary, Tommy Woods, the Irish Minister’s deputy, had suggested 10 minutes’ silence. Since that time, the Council has indeed found a role but it has not been really well recognised in the member countries.

Certainly, its low profile has led to all sorts of distortions. Members of this House may have noticed an article in the Sunday Times of 7 November, headed:

“Kennedy joins EU drinking group”.

It said that Charles Kennedy, the former Liberal Democrat leader, who quit because of an alcohol problem, is to join a European Union delegation notorious for its drinking culture. Not only is that a nasty slur on a highly respected Member of Parliament, it is wholly inaccurate and very much in the Sunday Times tradition of seeing the Council of Europe as another awful European Union institution.

Over the decades since 1959, in my judgment, the council has gained a new self-confidence. During the Cold War it was a bastion of democratic values; it was a model, a bulwark, against totalitarianism. After 1989 and the year of revolutions, it was a school of democracy for countries of central and eastern Europe, the former Soviet satellites. Now it has become a place of reconciliation for other conflicts, based, of course, in Strasbourg, no better symbol of reconciliation in the post-war world. Germany joined, then Austria, then the neutral Switzerland, then the newly independent Malta and Cyprus. As has been mentioned—I think it was the noble Lord, Lord Dykes, who made this point—there is a real role for Turkey. Not only is the president of the assembly currently a Turk but, from this month, Turkey holds the presidency of the Council.

The Council was involved in mediating last week in Moldova, as I learnt this morning when I was in Paris at a meeting of the Council. It has tried to moderate the Russian/Georgian confrontation, and at least there is jaw-jaw between the Russian and Georgian delegates in Strasbourg.

Over the years UK politicians have played a sterling role. I have just had a telephone message from the noble Lord, Lord Roper, who says:

“My father in law was the first British president”

of the Assembly. As one looks through the roll call of British participants, one sees Winston Churchill, Jim Callaghan, Rab Butler, George Brown, Alec Douglas-Home, Roy Jenkins, my noble friend Lord Healey and so on, and of course the previous Secretary-General, Terry Davis, is British.

By far the greatest contribution of the Council, though, has been in the field of soft security generally and human rights in particular. It has been the conscience of Europe or, as the current Secretary-General, Thorbjørn Jagland, has said,

“the lighthouse of Europe, a house for early warning”.

It has institutionalised human rights, including minority rights, and brought 47 European countries together in defence of the rule of law, fundamental rights and democracy.

The point in relation to the European Convention of Human Rights and the European Court has already been made, that Europe’s 800 million-plus people are able to seek individual redress when states violate their basic rights. In this it is assisted by a commissioner for human rights, who will be in this Parliament next week. The problem, as the Minister pointed out, has been the tide of applications, with an enormous backlog, and the misuse by certain states. How confident is the Minister that the Interlaken agreement, with the sifting mechanism, will lead to a reduction in that backlog and allow the court to get on with its proper work?

For time reasons, I will not go through in detail the other key conventions and human rights, but they include the European Convention for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment. One achievement has been that since 1997 none of the Council of Europe’s 47 member states has enforced the death penalty. There is the European Commission against Racism and Intolerance. There are conventions on cyberspace, on medical ethics and on social rights. The monitoring activities, including those of the Venice Commission, have been important.

I shall conclude with some observations. The Minister is well thought of in the House because of his reflective view on the future of Europe. As he knows, institutions are extremely slow to change even if the context changes. I therefore question him on how he sees the developments on the European landscape.

It may be said that the European landscape is just too full of institutions, some of which may well have served their purpose. The Western European Union is coming to an end next June. How does the Minister see the possible integration of some of the work? My noble friend Lord Prescott made the point very well that the European Union is going into the field of human rights like an imperialist. Now that it has become a member of the convention, is there not an argument for aligning policies more closely? Perhaps the European Parliament should have a role with the Council of Europe in the election of judges. Perhaps the European Union should leave this field to an organisation which is of not 27 but 47 members and, therefore, rather more important in seeking to promote human rights Europe-wide.

President Medvedev floated the idea of a new security structure in Europe two years ago. At that time, in June 2008, the whole élan was overtaken by the Russian invasion of Georgia which violated the very principles that President Medvedev had enunciated. Now, perhaps, we can sit back in a more calm and reflective way and see—given that we have the OSCE, formed at a particular period of time in the Helsinki accords—whether there is still a role for national Parliaments meeting together to have some security responsibility now that the Western European Union is about to be wound up. How does the Minister see how the various European institutions can work together?

What better time to do so, when all Governments are looking at ways of cutting expenditure in the current global crisis? The Council of Europe is extraordinarily cheap and modest in its expenditure for the work that is done. The Minister will be well aware of politicians’ temptation to roam and extend their remit more widely. This is currently very much the case in the European Union. How does the Minister respond to the new Secretary-General’s initiatives announced following his appointment? The first stage—the internal governance of the Council—has almost been completed, and the process is now moving on to the more difficult and political stage.

Clearly, there is an area in which the Council of Europe adds value more than any other institution: human rights. How does the Minister see the relationship with the European Union after the Lisbon treaty? How does one prevent the overlap and duplication of work of several institutions? How do the Minister and the planners in the Foreign Office see the best form of European architecture, in both security and human rights, given the changes that are coming about?

I end on this note: the Council of Europe has played a key role as part of the institutional landscape of Europe after the Second World War. Rather like Voltaire’s God, if it did not exist we would have to invent it. Its development was blocked prior to 1989. I recall the phrase of President Gorbachev about our “common European home”. We could say at the time, “How can we possibly have a common European home when there is a wall”—the Berlin Wall—“right through the front room?”. Now the Berlin Wall has gone, we can look a little more objectively at how Europe might develop. No institution or landscape is static. All are dynamic.

I shall be interested personally in how Her Majesty’s Government and the Minister view the development and rationalisation of organisations and their prioritisation. Certainly, it is the wish of the new Secretary-General and Ministers not to clip the Council’s wings, but to recognise the sterling work it has done, particularly on human rights, and to ensure that that area is allowed to develop. It is a good time for radical thinking about our European institutions.

Tajikistan

Lord Anderson of Swansea Excerpts

Wednesday 17th November 2010 Lords Chamber

[Lord Howell of Guildford]

I thank the noble Viscount for his constructive question. I am aware of the points that he raises. He reminds your Lordships that there is a long border between Tajikistan and Afghanistan and that many Tajik people live in north Afghanistan and play a relevant, decisive and, we hope, fully helpful part in seeking to pacify that country and meet our priorities there. He makes valuable points. Also relevant are his references to the narcotics problem, some of the cross-border trade that has been going on and some of the difficulties with the Uzbek border of the country as well.

[Lord Anderson of Swansea]

My Lords, the distinguished Speaker and leader of the Tajik delegation now in the UK under Inter-Parliamentary Union auspices tells me that the English language is now on a par with Russian in Tajik schools. However, DfID does not see this as a proper tool of development and empowerment of ordinary people; it is in effect given low priority because DfID thinks of the British Council as the main supplier. To what extent will the Government help the Tajik Government in respect of English language teaching in schools and universities and in the training of teachers of the English language?

[Lord Howell of Guildford]

I am grateful to the noble Lord, who reminds us that there is an important parliamentary delegation in this country led by the respected Speaker of the Tajik Parliament. I know that the noble Lord had the opportunity to meet and converse with this delegation. He raises valid points about language training. Language training does go on; indeed, part of our defence co-operation is that we assist with language training. He is certainly correct that this is a valuable part of the support for the future and something on which we must seek to build. There are obviously priorities for DfID to look at. Indeed, DfID is looking at recurrently reviewing the whole range of its support operations, almost around the world, including those in the Caucasus and in the region that we are discussing. That does not deny for a moment, however, that language training is one of the great exports and assets that we can contribute to peace and stability in the region, which I hope will continue to be the case.

Diplomacy

Lord Anderson of Swansea Excerpts

Thursday 11th November 2010 Lords Chamber

[Lord Anderson of Swansea]

My Lords, I have just excised from my speech the phrase “punching above our weight”.

Britain's Diplomatic Service is a centre of excellence admired worldwide and the noble Lord, Lord Hannay, is an outstanding example of the service at its best. I have had close contact with the FCO since 1960, when I entered as a third secretary. Traditionally, the service has been able to take a major share of the available pool of talent and, from my experience even over recent years, I am convinced that it still attracts high-quality personnel. The question, therefore, is whether that will continue as the CSR cuts bite. What will be the effects on recruitment and morale?

There are some welcome features in the CSR, such as the new foreign currency mechanism that will increase stability, but the settlement overall will have a disproportionate and negative effect on the service, with 25 per cent in cuts over four years. By 2014, the FCO budget will be £1.3 billion, which is only just above the UK's contribution to the European External Action Service. By then, DfID will have £11.56 billion—nine times as much as the FCO. DfID officials will not easily substitute for FCO officials.

Of course, traditional diplomacy has its faults. The “déformation professionelle” results in excessive caution and a yearning for the quiet life, but officials are immensely competent and loyal to the Government of the day, even when they feel under fire from that Government. For example, it was claimed that the noble Baroness, Lady Thatcher, in the 1980s said that the Ministry of Agriculture represented farmers and the FCO represented foreigners. Echoes of this arise in the talk of a cull of faceless bureaucrats in London. Is it right that over four years there will be a reduction of 10 per cent in the number of diplomats overseas? How many compulsory redundancies are planned for? Given the number of redundancy payments, how long will it be before the savings actually begin? Will the payment of school fees for diplomats’ children continue after the redundancy of their parents?

Even within the reduced total, the traditional diplomatic role will be reduced. That is, a larger share of the reduced budget will reflect changes in our society and mobility worldwide, such as the increase in consular and visa work. Will the Minister give an assurance that personnel, building security and counterterrorism will not suffer, and that language training will not be reduced? Our hard language ability is much admired and, of course, costly. I am sceptical about the claims of a revolution based on the new emphasis on trade promotion. For many years, the path to promotion has lain through expertise in trade. Trade envoys—yes, but ambassadors from the business community—no. Apart from the reduction in salary, the job is very different.

How do we mitigate the effects? I have time to give only some headlines. On the selling of the FCO estate, much has already been done, for instance, in the Lisbon and Vienna residencies. Is there a threat even to the Paris residence? As the noble Lord, Lord Jay, will evidence, it is much used for trade promotion. More locally engaged staff can have only a limited effect because there is clearly a ceiling for their promotion. If there are more jobs in London and development of the hub concept, we may lose the value of personal contacts cultivated over time and the facilitation of networks and alliances. As for co-location and overlapping subject areas with DfID, there is some scope in the fields of governance and conflict prevention.

On greater co-operation with allies, now that there is new Franco-British co-operation in defence, why not in foreign affairs? There are potential benefits in premises and personnel, particularly in west Africa. Co-operation with the European External Action Service includes the co-location of embassies and delegations and long-term personnel secondment. It is an interesting paradox that, by these cuts, a Conservative-led Government will lead to the posts in the European External Action Service, with its budget of £8 billion, having greater weight than our own diplomatic personnel.

Clearly, the role of diplomacy is misunderstood and undervalued. If we want a still substantial global role, we will have to pay for it. Development aid cannot be effective if there are problems of governance, as we have seen in Somalia. It is odd that a Conservative-led coalition is reducing our strategic strengths and promoting a “littler England”. Is this our “east of Suez moment” in foreign affairs?

Finally, the Independent of 8 July stated that after the FCO leadership conference, which was attended by more than 200 ambassadors and high commissioners, the Prime Minister addressed business leaders at Downing Street. The newspaper said:

“Mr Cameron laughed: ‘We made them all travel economy class, wherever they came from, I'm pleased to say’. The assembled audience laughed”.

Is the aim, or at least the effect, of these cuts to reduce a first-class service to an economy-class service?

--- Later in debate ---

[The Minister of State, Foreign and Commonwealth Office (Lord Howell of Guildford)]

My Lords, like other noble Lords, I begin by warmly congratulating the noble Lord, Lord Hannay, on initiating this interesting debate. He has enormous experience from his previous profession as one of our country’s leading diplomats. I also extend warm congratulations to the noble Lord, Lord Monks, on his maiden speech. He brought to our Chamber his vast experience in matters of organised labour and unions and tactfully applied that experience to the world of diplomacy in a kind and understanding way.

I shall start my comments in the limited time available by concentrating on the people, the diplomats. I start by paying tribute to the work of all our diplomats overseas and at home and our locally engaged staff, who number about 10,000 overseas in FCO posts worldwide. A third of UK-based diplomats working overseas are in hardship posts, and this debate comes only a few days before the seventh anniversary of the Istanbul bombing on 15 November 2003 when 11 colleagues lost their lives in the service of our country. As recent events in countries such as Yemen or Iceland have shown, those working on Britain’s behalf continue to do so in the face of terrorist threats as well as of natural disasters. This creates extremely difficult conditions, as noble Lords have been good enough to recognise. The safety of all our staff is paramount, and our spending settlement, which I shall come to in some detail in a moment, will allow us to invest sufficiently in our overseas estate and in the security and safety of the staff. We continue to seek to upgrade our posts to meet modern-day threats, particularly in high security environments. We expect to complete all outstanding high- and medium-risk security projects by the end of this year, and our spending-round settlement, as I shall explain, contains adequate provision to allow us to continue this work over the next few years.

I apologise if I am putting excessive emphasis on the threat from terrorism, but it is very serious. The threat arises because terrorists are empowered with new weapons technologies, as well as emanating from other non-state groups and cells. It represents the biggest danger to the safety of our staff today. The number of posts where we assess the terrorist threat to be critical or severe has increased threefold since 2006. The nature of the terrorist threat is constantly changing and indiscriminate, as we saw in the two attacks on our staff in Yemen earlier this year. Fortunately, our security procedures worked in both cases and there were no casualties. However, it is not just Yemen, as although it is the latest place where our staff face a high threat to their personal safety, there are also acute terrorist threats posed in other locations such as Iraq, Afghanistan and Pakistan. Moreover, the threat of violent crime on top of terrorism is also serious and growing. Over recent months, several of our staff and their families have been the victims of armed robberies. Overall, our diplomatic network is operating today with much higher threats to the personal safety of its staff. It is a testament to them and their families’ resilience that staff are ready to live and work with these risks. I wanted to put that on the record right at the beginning of my remarks in closing the debate.

I turn now to our objectives, which rightly have been discussed by a number of noble Lords on both sides of the House. The Government understand that to promote and safeguard Britain’s priorities, we must have a firm picture of what we want to achieve in a very fast-changing world. We must properly resource our diplomatic effort to make this vision a reality, and have a clear understanding of our national priorities and positioning in today’s global order that goes hand in hand with our internal sense of unity and purpose inside this nation. I have no doubts about that at all.

From the outset, this Government have brought a strategic basis to our overseas relations. The National Security Council was established as a centre of decision making on all international and national security issues. It oversaw the development of the National Security Strategy and the Strategic Defence and Security Review which, taken together, cement the position of the Foreign and Commonwealth Office at the centre of delivering the Government’s international priorities. The FCO played a lead role in setting the context for the National Security Strategy through its work on the changing threats and opportunities that the UK faces, and ensuring that the capabilities and structures set out in the Strategic Defence and Security Review were fit for the purposes required. I can tell your Lordships that the FCO will be instrumental in taking forward the strategic defence and security goals of tackling threats at source, bringing all of the UK Government’s influence to bear in order to achieve our objectives both at home and overseas, and working more closely with our key allies and partners, both old and new. The FCO will give the lead that allows foreign policy to be supported by other government departments.

As we have heard in the debate from the noble Baroness, the high-level foreign policy priorities have a lasting and enduring continuity. As she rightly says, they are to safeguard Britain’s security, to build Britain’s prosperity and to provide—which we will do—full and effective consular support to British nationals around the world. Those are the overarching objectives, and within them I want to discuss various policy issues.

First, however, I turn to the spending settlement itself and how it fits in with those overarching and broad objectives. After a lot of pessimism in the press and elsewhere about cuts at the Foreign Office and so on, the settlement we have secured is an extremely good one. Like everyone else, of course, we have to take our share of the austerity package because of the overriding need to cope with the budget deficit that certain people left behind that we have to clear up. That is our problem and we have to grapple with it.

The noble Lord, Lord Anderson, seems to have got the wrong end of the stick on this matter. The net outcome is not a 24 per cent cut but a 10 per cent cut in real-terms spread over four years—2.5 per cent a year. It works out as a flat cash settlement which, given some of the difficulties that have to be faced, is not a dramatic change. It gets better than that: we have secured the restoration of the foreign currency protection mechanism and we will move the BBC’s World Service funding over to the BBC in 18 months’ to two years’ time, which will take 14 per cent off our budget expenditure straightaway.

[Lord Anderson of Swansea]

Will the flat cash settlement to which the Minister referred lead to a 10 per cent cut in Foreign Service personnel over the period until 2014?

[Lord Howell of Guildford]

I do not know where the noble Lord gets that figure from. I shall talk in a moment about personnel, but what he has said does not fit with what I am about to say.

What I have said means two things. First, we are reversing the previous Government’s disastrous decision to abandon the foreign exchange protection which wiped overnight 10 per cent off FCO budgets—it was an appalling decision. We now have a major boost, with the restoration of that mechanism freeing us from exchange rate gyrations. I hope that the shadow Secretary of State in the other place, who was a Treasury Minister at the time of that terrible decision, now welcomes what we have done to put it right.

Secondly, the BBC World Service move will enhance its independence—I agree with the noble Lord, Lord Hannay, about that—and it gives the BBC, at the same time, a flat-rate licence fee. The objectives will still be set by the Foreign Secretary and his approval will be required for any language service closures. The BBC has given solid guarantees that it will safeguard the World Service and I am quite sure that will be done. Your Lordships raised worries about this issue, but the position is absolutely secured.

That is the story of our comprehensive spending review outcome and it does not match some of the gloom that has been perpetrated all around. Indeed, there is still more good news to come because, in addition, our budget is being reinforced by new funding from the Treasury—I emphasise from the Treasury—which recognises the increased development work that we are now promoting in line with OECD rules. It does not come from DfID; we are not draining funds from the increased DfID budget, which is very large. It is a subvention which for us, on our scale of expenditure, is of a very pleasant kind, to match the increased development work which is undertaken in the Foreign and Commonwealth Office.

Several noble Lords raised the issue of posts, closures and postings around the country. In the coming weeks we will take strategic decisions on how to live within the settlement I have described. They will not lead to the kind of conclusion the noble Lord, Lord Anderson, has suggested. Our decisions—including on what we do, what activity we stop or scale back and whether our network of posts adequately meets the new realities—will be taken; none has been taken yet. I concede that this might mean closing some subordinate posts and consolidating in some capitals. Equally, in emerging markets or countries critical to UK security, it might mean opening new posts. We need a global diplomatic network to help bring the UK economy back to long-term health. The skills and expertise of our staff are vital to delivering active diplomacy. The settlement will allow us to invest in our staff, create a renewed focus on international policy and high-priority languages, and ensure that our diplomats are economic ambassadors for Britain, as all your Lordships wish them to be. The noble Lord, Lord Lea of Crondall, asked for total staff figures. There are approximately 4,500 UK staff working at home and abroad, and 10,000 local staff, all overseas.

I turn to the other theme which ran through your Lordships’ debate: soft power; that is, the capability required to match the hard-power resources that we have to maintain as a nation. We have provided the means to resource properly our diplomatic work. However, that was not the only part of the Question of the noble Lord, Lord Hannay. He also called on the Government to ensure that our diplomacy would be active. We will certainly be so in the security, conflict prevention and peacekeeping fields. If we accept, as I certainly do, the notion that our prosperity provides the foundation for our power, we must seize the openings available to us. This means developing much deeper links with key centres of influence such as Japan, South Korea, Malaysia, South Africa, Brazil, Turkey, the Gulf States and particularly, as the Foreign Secretary and the Prime Minister have made clear several times, China and India.

China may be the new giant market, and one must not forget that Japan is often seen as our best and most reliable friend in Asia, but perhaps the best gateway to the great new markets of the world is the network that is the modern Commonwealth, as my noble friend Lord Sheikh rightly pointed to. Today’s Commonwealth embraces at least six of the world’s fastest growing economies and markets, providing access to emerging powers where wealth is accumulating and purchasing power soaring. Stretching across continents and faiths, and covering almost 2 billion citizens, it is a soft-power network par excellence which Britain needs to serve our interests in, and give us access to, the new global landscape—obviously, that is a matter of great interest to me personally.

Deepening our links with these countries will have multiple benefits for British citizens. We accept that diplomacy is no longer just a government-to-government business. We must and will engage all sectors of society as well as multilateral and regional bodies. Links forged through trade, education—my noble friend Lord Bates pointed to scholarships—culture, sport, science and an active global diplomatic network will help not only to secure our economic future but to guarantee our future peace and stability.

Where combined EU action works best, we will use it to the full—the noble Lord, Lord Hannay, made a very good point here. We see the European External Action Service as a useful additional tool for our common purposes in key areas, lightening and assisting our nationally resourced activities. My noble friend Lady Falkner made the same point.

Both the British Council and BBC World Service—on which I have touched already—will remain fundamentally important parts of Britain’s presence in the world.

All parts of the FCO family will have to contribute to the cuts in public spending. I am quite clear that they will have to face budget restraints. Details have already been published. The British Council plays an important role in helping spread the UK's culture and values, and its charitable status and ability to raise a significant part of its budget through commercial and full-cost recovery activities give it independence from HMG’s policies. I was enormously impressed the other day in Kuala Lumpur to see how the British Council runs its programmes, including intercultural dialogue and promoting the UK's creative and knowledge economy, which supports our foreign policy objectives. The settlement that we have secured protects that fully.

In the face of great uncertainties and novel challenges, we need to deploy this nation's talents and resources with new agility and skill.

Piracy: Operation Atalanta (EUC Report)

Lord Anderson of Swansea Excerpts

Wednesday 10th November 2010 Lords Chamber

[Lord Anderson of Swansea]

My Lords, that was a typically combative and robust contribution by the noble Lord, Lord Hamilton. Like him, I have now left the committee. I have a somewhat more positive view of the report than he does, although I can see that it was rushed at the end because of the imminence of the general election.

I had the honour of visiting Northwood Headquarters on two occasions, one with the committee and another with the European Security and Defence Assembly committee. I have also on two occasions in recent years visited Somaliland on a governance mission. I was struck at Northwood by the degree of co-operation between the military and the private sector—ship owners, oil companies and so on—and, as the Government stress in their reply to the report, the unprecedented international co-operation in the region.

Atalanta is a European Union operation commanded by the UK, based in the UK and relying on a UN mandate. I hope this experience of the first CSDP naval operation will lead the Government to have a warmer attitude to the worth of the CSDP. The EU exercises both hard and soft power with an array of military and civilian instruments. It is not a threat to either the United States or NATO; indeed, the US welcomes the EU CSDP operations, while NATO provides the Berlin Plus arrangements to assist.

Overall, the committee was impressed with the operation but highlighted a number of shortcomings, some of which have been mentioned by the noble Lord, Lord Teverson: for example, maritime surveillance, including helicopters; UAVs; and tanker and medical facilities. The government reply points out that at a meeting on 10 June there were agreements “in principle” in this sector. I ask the Minister when we will see real progress and not just agreement in principle.

The evidence before the committee revealed certain matters for further exploration. First, there was a lack of available interpreters. We have a Somali diaspora in the UK of 300,000 people. Surely it would be possible to find some interpreters within this community.

Secondly, there was a lack of sufficiently robust response from the insurance industry, whose representatives seemed extraordinarily complacent. I anticipate that my noble friend Lord Sewel will have one or two words on this matter. Why not vary the premiums according to the degree of compliance by ship owners with advice and best practice?

Thirdly, there was the need to improve the quality and speed of the vessels chartered for the World Food Programme. Again there was an agreement in principle but nothing much appears to have happened.

Fourthly, perhaps the experts too readily rejected the citadel concept of fortifying a part of the ships so that the pirates have to spend more time. On 12 September, US Marines re-took the MV “Magellan Star” as the crew had hidden themselves safely in a secure room below deck.

Fifthly, as the noble Lord, Lord Teverson, has suggested, perhaps the main failure has been in dealing with pirates who have been captured.

There has been a relative worsening in the position. In 2009, there were the highest ever number of attacks by Somali pirates—over 200 attacks, with over £40 million believed to have been paid in ransoms. Currently, 19 ships and more than 400 civilian hostages are being held. As the noble Lord, Lord Teverson, suggested, it is not true that no one has been killed. Indeed, one yachtsman was killed last week because he refused to board a pirate vessel. Perhaps the Minister could indicate whether that person was, as some suggest, a British national. Certainly the South Africans say that he was not a South African national.

What has been called the “legal shambles” has been recognised by the UN Secretary-General, who at the end of August appointed Jack Lang—not only a French politician but a distinguished professor of international maritime law—as his special adviser on piracy. Lang, as is his wont, has been most active since and will report to the UN Secretary-General by the end of January. The officials to the committee and elsewhere praise, of course, the agreements reached with Kenya, Tanzania and the Seychelles, and others are being negotiated, particularly with Mauritius. The truth is that impunity is the norm and the cost benefit remains very substantially in favour of the pirates. The crews of warships routinely release the pirates after throwing their arms into the sea. Six hundred or so pirates have so far been released and will no doubt be back in the water within a week or so. Obviously, we in Europe do not wish to fill our prisons with Somalis, but there are allegations that these local agreements are in disarray. The Government reply that Kenya has announced publicly its decision to continue, but some commentators doubt that this will happen. The Seychelles did indeed sign an agreement in February but on condition that those convicted are imprisoned elsewhere. Will the Minister confirm that Mauritius, after several months of deliberation, has still not reached a decision?

Yet the needs are vast. The UN report published in July stated that 2,000 prison places are needed before the end of next year. Surely, as the UN report argues, there should be a step change—perhaps Somali courts in third countries or increasing contributions from ship owners. The US Assistant Secretary of State for African Affairs, Johnnie Carson, has offered Somaliland—which is of course effectively independent, although not recognised as such—and Puntland substantial aid if they co-operate against the pirates, and the UN has already refurbished some prisons there. One naval officer to whom I spoke suggested that the solution might be an island off the Somali coast, fortified by the UN and EU but under Somali sovereignty.

In short, we should not be carried away by the evidence of partial success. The situation has only been stabilised. We need new and intensified initiatives, and, as the noble Lord, Lord Teverson, suggested, the starting point is as Jack Lang stated on his appointment: “Piracy is a symptom”. Mr Lang also said:

“We have to attack piracy at its source—poverty, instability, the growing presence of Al-Qaeda in south Somalia”.

In replying, will the Minister say how valid the allegations are that western companies have contributed to the problem by illegal fishing, pillaging the Somalis’ fishing resources, and dumping toxic waste off the coast of Somalia, removing the livelihood of Somali fishermen? What is being done to counter this? We should also recognise the real danger of increased regional instability. I cite the bombing in Uganda and the evidence of financial irregularities in Kenya. The African Union and regional organisations such as COMESA point out the hidden cost to the countries of the region of increased insurance premiums—apparently more than £400 million for Kenya. The Wall Street Journal reported on 11 September that terrorists have moved beyond taxing pirates’ receipts to direct piracy themselves.

Surely we need to go a step further beyond the current containment, which was the theme of the recent African Union conference. This conference recognised the comparative failure of the current strategy and the dangers of increased terrorist activity. Let us be realistic about Somalia itself. The internationally recognised Government, the TFG, controls only a few blocks in Mogadishu, and are now themselves subject to splits. According to a recent Chatham House speaker, a country of 9 million people needs a stabilisation force of 100,000, not AMISOM’s 5,000 to 6,000 Ugandan and Burundi forces, which now have an excessively limited mandate.

We need to look seriously at the status of Puntland and particularly at Somaliland, the old British protectorate with its capital Hargeisa. Somaliland is a relative haven of stability in that benighted region. It held democratic elections on 26 June—88 per cent of the 1 million-plus electorate voted—and it has a free press. An article in Le Monde diplomatique on 1 October, comparing Somalia with Somaliland, stated:

“One”—

Somalia—

“is a failed state, the other”—

Somaliland—

“works”.

Somaliland, working as it does in a pretty democratic way, is one example of how Somalis, given the chance, can rule themselves in a proper way. The Somalis in Kenya are extremely enterprising, particularly in shopping malls and real estate, although sometimes one wonders where they get the money from for these particular enterprises. The international community should consider renewing the recognition of Somaliland, which was briefly independent in 1960.

Finally, as Rear Admiral Condreau, the naval force commander, has argued, the international community should consider taking action on land against pirate camps on shore. Equally, it should consider further steps to help fund the coastguard service in Somalia; this was the theme of a German conference of the DIW in July. The government reply says this has already started. The international community should also initiate a robust anti-money-laundering operation and further capacity building within Somalia, particularly Somaliland and Puntland, in prosecutors, courts and buildings.

Yes, the report shows some success, in spite of the formidable obstacle of 3,000 kilometres of coastline to be policed. It shows a limited but impressive military operation, but we should not allow ourselves to be carried away. We must recognise that, if we are to proceed beyond the current containment, we need greater resources, a greater commitment and more innovative thinking.

Argentina: Falkland Islands

Lord Anderson of Swansea Excerpts

Monday 11th October 2010 Lords Chamber

[Lord Howell of Guildford]

The noble Viscount is quite right that in 1995 Argentina withdrew from the hydrocarbons co-operation declaration and subsequently withdrew from the fisheries co-operation arrangements. We can say only that it is a pity. The benefits to Argentina would be there, were it ready to co-operate, but it has shown a determination not to do so. That is Argentina’s loss.

[Lord Anderson of Swansea]

My Lords, at the time of the Falklands invasion in 1982, the then US Administration were extremely supportive to us in terms of reconnaissance and so on. However, the current US Administration have latterly made some rather unhelpful remarks in respect of the Falklands. Have we made appropriate representations?

[Lord Howell of Guildford]

I can confirm that the US position has not changed, regardless of the allusions to which the noble Lord has referred. The US recognises the UK’s administration of the Falkland Islands. We are in regular touch with the US on this issue, as on many other issues. We expect that dialogue to continue.

Korean Peninsula

Lord Anderson of Swansea Excerpts

Wednesday 28th July 2010 Lords Chamber

[Lord Howell of Guildford]

These are both very worrying situations. The report of the executions is unconfirmed but we have sought to establish what happened. If it is confirmed, the noble Baroness will be absolutely right that it is an extremely grim example. On the question of Mr Aijalon Mahli Gomes and his early release from prison, he is currently on hunger strike. We are aware of his case and are monitoring it closely. However, the Swedish embassy in Pyongyang is the consular protecting power for US nationals in North Korea and is handling the case, although we are keeping a close watch.

[Lord Anderson of Swansea]

My Lords, what is the extent of the concern of Her Majesty’s Government about the treatment of North Korean refugees who fled over the border into China? Does this figure on the agenda of the human rights dialogue between China and ourselves and the European Union?

[Lord Howell of Guildford]

Yes, it most certainly does. I was recently in Jilin province, where a lot of refugees were coming over the border, and there is no doubt that some were put in labour camps and treated extremely badly. After allowing a lot of refugees in, the Chinese have now cracked down on them, presumably because they create some embarrassment for the Chinese Government. However, it is certainly a matter that we have raised and are worried about because there are signs of these unfortunate refugees receiving some unpleasant treatment.

Russia

Lord Anderson of Swansea Excerpts

Monday 26th July 2010 Lords Chamber

[Lord Howell of Guildford]

I cannot answer the noble Baroness on her precise question about the meeting at this moment, but I will check. On corruption, she puts her finger on one of the central problems. There is no doubt that there is a very great deal of corruption still in Russia today and some of it at alarmingly high levels. President Medvedev has highlighted this and says he wants to tackle it. We will do everything to support him but we would like to see more results in certain cases than we have seen so far. Corruption is the cancer that could undermine the whole Russian progress.

[Lord Anderson of Swansea]

My Lords, in spite of the invasion of Georgia, the Litvinenko affair and the spies in New York, is it not true that we should build on areas where there is a mutuality of interest? One, surely, is the intelligence relationship because we both face Islamist terrorism. What are the prospects of reviving an exchange that I believe has virtually dried up?

[Lord Howell of Guildford]

I hope that the prospects are getting better. They have not been good, as the noble Lord recognises. There have been real difficulties and building up the degree of mutual understanding and trust on which aspects such as joint intelligence can develop is very difficult and slow. But it is certainly an objective, and part of our view that we should have a better and stronger relationship with great Russia, which remains a major world power.

BBC World Service

Lord Anderson of Swansea Excerpts

Tuesday 13th July 2010 Lords Chamber

[Lord Howell of Guildford]

It certainly is. The noble Lord, Lord Alton, is absolutely right and I emphasise that the overall budget still allocated is substantial, has risen substantially over the years, and amounts to more than 20 per cent—possibly almost 25 per cent—of the total budget of the Foreign and Commonwealth Office. We are talking about very large sums of money backing the BBC World Service, not small sums.

[Lord Anderson of Swansea]

My Lords, the FCO is not ring-fenced like DfID and clearly always looks to the grant-in-aid bodies such as the British Council and the World Service when cuts come. Can the Minister confirm that the BBC Arabic TV service and the BBC Persian service are both at risk and explain how that coincides with the vision statement of the Foreign Secretary on 1 July this year, when he spoke of extending our “global reach and influence”?

[Lord Howell of Guildford]

My Lords, the question of what services are adjusted, reviewed and so on is for the BBC World Service. The Arabic service is under review, not, I think, for funding reasons but because impact and competition have been the problem. The Farsi service continues to be well funded, as my right honourable friend the Prime Minister said the other day in the other place.

Foreign Policy

Lord Anderson of Swansea Excerpts

Thursday 1st July 2010 Lords Chamber

[Lord Anderson of Swansea]

That was a well-judged appeal of a departed mandarin.

It is my pleasure to congratulate the noble Lord, Lord Maples, on his maiden speech. We have worked together in another place, and I learnt then from his wisdom and maturity. It is also a pleasure to congratulate the noble and learned Lord, Lord Howe. As always, he has impeccable timing, given the Foreign Secretary’s speech this morning, such that I wonder whether there was a degree of collusion. However, having had a very quick look at that speech, I just wonder whether I should move a postponement Motion, because it would help all of us if we had a moment to sit back and reflect on what he said. It was a very good speech and we should look very carefully at what was said. We all agree that a starting point is the interests of this country as broadly defined, and promoting them as best we can using the assets that we have accumulated over the years, a point which the noble Lord, Lord Kerr, made very well.

Our interests do not change from one Government to another. Although any new Government will seek, as new boys on the block, to show what they are doing newly, the fact of continuity from one Administration to another is too often neglected, because so many of the problems are unchanged. New problems always intervene—the contingent and the unforeseen.

Let us consider some of the key areas. In Afghanistan, although there is now the suggestion of withdrawal by 2015, the speech of the Defence Secretary yesterday suggests that there is broad agreement between both Governments and our allies. Similarly, on key issues such as the Middle East, about which the noble Lord, Lord Hylton, spoke, and Iran, we work on the same lines. The problems are the same, and I suspect that our response will be the same. The previous Government fully agreed with the statement of the European Council on 8 December, and I suspect that there will be continuity on the flotilla issue, too. Significantly, in respect both of the Middle East problem, the Palestine problem, and Iran, much of the Government’s theme thus far has been unilateralist, as if what is important is what only we do. It is in working with our allies where we can make a serious impact. Our key alliance in that respect is the European Union.

We had one glorious unilateralist intervention in 1982, but could we now repeat that Falklands intervention? Where are the ships? The intelligence help that we had at the time from the US may well not be replicated, if we consider what Hillary Clinton is now saying about the Falklands. Let us beware of a unilateralist approach, or even a bilateral approach. Rightly, in respect of the European Union, the Government are stressing our relationship with France, but that should not be done as if we want to sideline our relationship with the European Union as a whole.

How well has the Conservative-Liberal Democrat Government responded to the concept of knowing ourselves, our history, our assets and the changing external world? The starting point is perhaps not the speech made today but the speech made by the Foreign Secretary last July to the IISS. That was a very good speech. The analysis was very clear. The only marring element, in my judgment, was that it was extremely negative about the European Union—that line of policy which dare not speak its name. The fact is that there is day-to-day consultation with our European partners at all levels, which is a major moulding factor on our policy formulation, and in key areas, such as the Balkans, the common security and defence policy, post-Lisbon, is so important. That is very much encouraged by the United States. Whether one thinks of what we are doing as Europeans in Africa, in Operation ATALANTA or in the western Balkans, the US is very happy that we Europeans take the lead. We should not fail to recognise that.

Turning to this morning's speech, we are to have a more energetic and agile policy. The emphasis was certainly on the BRICs, but I felt rather like Monsieur Jourdain—that we have been doing this all the time. Everyone agrees that we need to get closer to Russia, but sometimes perhaps we have to hold our nose a little. We have had to put some of their excesses, such as Litvinenko, behind us. India? Yes. However, there was a wise article by Jo Johnson MP in the Financial Times earlier this week on India. We should recognise that our US relationship is very important, but perhaps not so “special”.

Finally, one of our most important assets is the Foreign and Commonwealth Office. Yesterday, we had an announcement of several programme cuts. I fear that there will be further major cutbacks in the autumn Statement, including the closure of embassies. DfID is ring-fenced, and the Government should look carefully at its budget and the extent to which some of the activities of the FCO, such as in the field of governance and human rights, might properly be moved to the DfID budget, because of the enormous pressures on the FCO budget.

On the vision thing, we must recognise the temptation for all new Governments to add “a new dimension” to foreign policy. I recall Robin Cook in 1997 talking about “a moral dimension” and economic ambassadors drawn from the business sector. Again, the brand new Foreign Secretary is talking about new approaches, a new vision, and new agility. Time, and practice, will tell.

Sudan: Human Rights

Lord Anderson of Swansea Excerpts

Thursday 10th June 2010 Lords Chamber

[Lord Howell of Guildford]

My Lords, I can only endorse the grim catalogue that my noble friend outlines. It is absolutely so. We will continue to use all pressures we can and to urge the Government of the Sudan back to a better path in their human rights performance. The outlook is not good and there are obviously many major concerns ahead in dealing not only—as we all know—with the continuing horrors of Darfur, but with the potential instabilities arising from the forthcoming referendum in the south. We continue to want the comprehensive peace agreement to work; that must be our main focus.

[Lord Anderson of Swansea]

My Lords, Concordis, the Christian reconciliation organisation of which I am a patron, has just run two workshops in Upper Nile and Unity provinces. It tells me that there is a marked lack of international organisation presence on the ground and a real danger that there will be conflict arising from boundary demarcation disputes since the CPA is mapping the area from the air without discussing with local communities their views on the border. Will the Minister look into this? To what extent is he happy with the lack of engagement by the international community in the process leading up to the referendum?

[Lord Howell of Guildford]

The noble Lord makes a very good point, which I will certainly feed into our thinking. As to international involvement in helping with the process leading up to the referendum and thereafter in managing its results, much more clearly is needed. We are doing our bit. We are increasing our staff in Juba, for instance. Our eye is very much on the ball about this, but we want others to work as well. We want to encourage UNMIS to get more involved and we have several other proposals for increasing our input. No one should for a moment assume that there will not be a very difficult situation, whichever way the referendum goes. Of course, there are wide forecasts that it will go in favour of some kind of autonomy.