European Union (Definition of Treaties) (Second Agreement amending the Cotonou Agreement) Order 2011

Lord Chidgey Excerpts

Monday 17th October 2011 Grand Committee

[Baroness Northover]

My Lords, despite significant progress in recent years, considerable challenges remain in the efforts to eradicate global poverty. The European Union—which represents the world’s largest provider of official development assistance, the largest single market and the main trading partner for most developing countries—can potentially make a huge contribution.

The Cotonou agreement is the guiding framework for the EU’s engagement with some 79 African, Caribbean and Pacific—ACP—states. Signed in 2000, it has evolved to reflect the changing relationships between the EU and ACP countries, while retaining its overall objective of poverty eradication, sustainable development and the integration of ACP states into the world economy. Cotonou provides the framework for programming the European Development Fund and channelling money to some of the poorest countries in the world—importantly including countries where UK bilateral programmes are not present and where DfID does not have a presence on the ground.

The Government’s review of multilateral aid judged the EDF to be among the most effective, flexible and poverty-focused of all our multilateral aid instruments. It is closely aligned to UK priorities and provides significant assistance to Commonwealth countries and several of the UK’s overseas territories.

Negotiations on the second revision to the Cotonou agreement were completed in June 2010 in Burkina Faso. All parties have signed the agreement and the changes are being implemented under transitional arrangements until ratification procedures are complete. The revisions aim to improve the implementation of the agreement and to ensure that it reflects changes in the international environment. The revisions fall into three categories—political, trade and development—and I shall highlight several of the important changes.

On political relations, the revised text provides for greater coherence between regional initiatives, such as the Africa-EU strategy and Cotonou. The role of ACP Parliaments and non-state actors has gained enhanced recognition and the African Union is confirmed as a key interlocutor in peace and stability matters. The importance of tackling changing security threats, ranging from piracy to exogenous shocks, is stressed. The provisions concerning political dialogue have been updated with new language on non-discrimination and the inclusion of regional and continental integration, and global and sectoral policies impacting development objectives among the issues that can be discussed. Improved exchange of information between the ACP secretariat and the EU in Article 96 processes, concerned with remedying breaches of Cotonou’s essential elements, are now envisaged.

There are important new references to key global challenges such as climate change, HIV/AIDS, and recognition of the 2008 food crisis through stronger provisions on food security and agriculture. The key role played by fisheries and aquaculture in ACP countries is included, reflecting a desire to enhance coherence between fisheries policies and development.

Cotonou’s trade provisions have been updated to reflect the introduction of economic partnership agreements supporting deeper trade relations between the ACP and the EU, and bringing these into line with the rules of the World Trade Organisation. Language on regional co-operation and integration has been strengthened in recognition of the increased regional differentiation among ACP states.

Changes aimed at improving the programming and implementation of EDF assistance have been included with, for example, the creation of a role for ACP national Parliaments and the introduction of increased flexibility in responding to unforeseen needs and crises.

Her Majesty’s Government fully support all these changes. We firmly believe that they will help to enhance and strengthen the long-standing partnership between the EU and ACP states. I commend the order to the Committee.

[Lord Chidgey]

My Lords, there is no doubt that the Cotonou agreement is a valuable instrument, aimed at preserving the relevance and character of the partnership between the ACP and EU states. As the Minister has mentioned, the order adapts the agreement to reflect the major changes in international and ACP-EU relationships by further clarifying the political dimension and creating space for a more productive political dialogue and clearer, more effective action. Here, I refer particularly to Article 8.7. The revision seeks to strengthen economic co-operation, regional integration and trade. Particularly important is the move towards extending humanitarian and emergency assistance, and providing new thinking on aid programming and management. This assistance and support is vitally important to many ACP states.

Equally important are the provisions that point to the interdependence between development, poverty reduction and peace and security. We should acknowledge that, increasingly, security threats—both man-made and from natural disasters—must be addressed in a co-ordinated manner, engaging not only the European Union but other regional organisations, including the African Union. With the AU acknowledged, as it is in the order, as a key interlocutor in matters related to peace and security, we can expect increased consistency and convergence of the Cotonou agreement with the strategic Africa-EU partnership. We should look forward to that.

The need for regional co-operation and integration has been recognised in amendments set out in the revised agreement to Articles 11, 23, 23a, 28, 29 and 30. Regional co-operation and integration are key to combating the threats of climate change and food security, and to promoting advancement and sustainability in agriculture and fisheries. I am glad to see that the Government welcome that.

The ACP states face major challenges if they are to meet the millennium development goals, and deal with food security, HIV/AIDS and sustainable agriculture and fisheries. The importance of each of these areas for effective development, growth and poverty reduction is underlined in these amendments, together with the joint approaches over which to co-operate.

The proposed revisions also recognise the impact of the fragility of and lack of security in some states, and the negative effect of that on development. A comprehensive approach, which combines diplomacy, security and development co-operation, encompassing political, developmental, human rights and security dimensions, is enshrined in this second revision of the Cotonou agreement, which can only be welcomed. Therefore, we welcome the revision and the attention that it gives to political dialogue in Article 8 and to climate change, human rights, gender, migration, discrimination and the resolution of violent conflicts. We particularly welcome the emphasis on good governance.

However, the order raises several comments and questions that I should like to put to the Minister. Article 8 refers to dialogue on issues such as “discrimination of any kind”. I understand that this formula was intended to embrace sexual orientation. How will this be pursued? Article 8 rightly emphasises the need for civil society organisations and national Parliaments to be associated with the dialogue. What efforts are being made to bolster the capacity of civil society organisations so that they can make a significant contribution?

The new Article 32a recognises climate change as a serious global and environmental challenge. How will co-operation in that area be taken forward? Are any further initiatives planned?

Article 33 recognises the importance of domestic revenue management and international tax co-operation. Maximising domestic revenue plays an important role in ensuring financial stability and reducing dependence on aid. What steps is DfID taking to support these efforts?

Article 34 refers to the need for ACP countries to participate actively in international trade negotiations. How can we best encourage the ACP countries to push for a successful conclusion to the Doha round?

Finally, Article 36 includes reference to the economic partnership agreements being negotiated between the EU and ACP countries. How will the Government assess their progress and the possible benefits?

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[Baroness Northover]

I know that he is going, and am extremely pleased. There will be other parliamentarians present, and I understand that the Secretary of State for International Development will be there.

[Lord Chidgey]

Could the Minister clarify an issue regarding Busan? I am delighted that noble Lords are all pleased that I am going to the farthest part of the world.

One of the problems we have faced in attempts to improve aid effectiveness by better scrutiny and better involvement and engagement of parliamentarians in the process of holding their Executives to account, is that while the parliamentarians from the recipient countries are getting quite a lot of help from the OECD, to get as many of them as possible to attend Busan, there is very little support for parliamentarians from the donor countries. I suggest to the Minister—and she may agree—that scrutiny and aid effectiveness is a two-way thing. Not just the recipients but also the donor countries should have a say in how well taxpayers’ money is being used to provide aid to developing countries.

[Baroness Northover]

My noble friend Lord Chidgey knows that very well from his experience serving on various boards of AWEPA, which tries to link European parliamentarians with those in Africa. From my own experience it does a very good job. I am glad that my noble friend is going, though not because he will therefore be unable to put questions to me.

I hope that I have covered most issues. I believe my noble friend Lord Teverson wanted some answers on fisheries. Article 23 and new Article 23a recognise the importance of fisheries and agriculture, as I mentioned in my introduction to ACP countries. Depletion of stock is clearly a key issue, and we are hoping that some of these issues will be addressed, presumably at the Busan meeting on aid effectiveness. No, I am told that that is not right. I am afraid that I cannot quite make out what it is that came from the sky, but I should like to write, if necessary, to the noble Lord to clarify where Cotonou stands on this.

I hope that I have covered most issues that noble Lords have raised—and if I have not I will write to them. I conclude by assuring noble Lords that the Government believe that Europe has a significant role to play in the international community’s efforts to eradicate global poverty. The updated Cotonou agreement continues to provide a valuable framework for the EU’s relations with ACP states.