Explanatory Memorandum to COM(2014)717 - 2013 Annual Report on the Instrument for Stability - Main contents
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This page contains a limited version of this dossier in the EU Monitor.
| dossier | COM(2014)717 - 2013 Annual Report on the Instrument for Stability. |
|---|---|
| source | COM(2014)717  |
| date | 02-12-2014 |
REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS
2013 Annual Report on the Instrument for Stability
Table of Contents
1. Introduction 3
2. Structure of the Instrument for Stability (IfS) 3
3. Implementation of the Instrument for Stability 3
4. Overview of the IfS for the period 2007-2013 4
5. State of play of the IfS in 2013 5
6. Responses to situations of crisis or emerging crisis (IfS Article 3) 6
6.1. How the IfS has responded to crises in 2013 6
6.2. Who was involved in IfS crisis response actions? 7
7. Assistance in the context of stable conditions for cooperation (IfS Article 4) 9
7.1. Threats to security and safety (IfS Article 4.1) 9
7.2. Risk mitigation linked to Chemical, Biological, Radiological and Nuclear (CBRN) materials (IfS Article 4.2) 11
7.3. Pre- and post- crisis capacity-building (IfS Article 4.3) 13
8. Conclusion 16
1. Introduction
This seventh Annual Report on the Instrument for Stability (IfS), the final such report under the existing legal basis,1 is submitted to the European Parliament, the Council, the Economic and Social Committee and the Committee of the Regions, in compliance with the reporting requirement set out in Article 23 of the Regulation establishing an Instrument for Stability.2
The Instrument for Stability has been an important tool placed under the authority of the High Representative/Vice President and Commissioner responsible for Development, enabling them to target resources in support of comprehensive EU approaches aimed at preventing, mitigating and dealing with the aftermath of crises and longer-term security threats around the world. The report gives an overview of how the IfS was mobilised to this effect in 2013.
This report is complemented by three Commission Staff Working Documents which provide comprehensive and detailed global implementation updates on i) urgent IfS crisis response measures that were launched and/or ongoing in 2013, under Article 3 of the Regulation (Staff Working Document Parts 1 and 2); and ii) longer-term programmable IfS actions under Articles 4.1, 4.2 and 4.3 of the Regulation.
2. Structure of the Instrument for Stability (IfS)
Articles 3 and 4 of the IfS Regulation set out the types of activities for which this instrument could be mobilised.
Article 3 foresees ‘assistance in response to crisis or emerging crisis’.
Article 4 of the IfS Regulation foresees a programmable component of the Instrument which encompasses longer-term IfS programmes addressing three focal areas:
- Security and safety threats in a trans-regional context (Article 4.1);
Contents
- Risk mitigation linked to Chemical, Biological, Radiological and Nuclear (CBRN) materials (Article 4.2); and
- Pre- and post-crisis capacity building (Article 4.3).3
3. Implementation of the Instrument for Stability
The Commission's Service for Foreign Policy Instruments (FPI) works in very close collaboration with the European External Action Service (EEAS), a functionally autonomous body of the European Union.4 Both services report to High Representative/Vice President Ashton, with the FPI coming under her responsibilities as Vice President of the Commission. Work under Articles 4.1 and 4.2 is carried out under the responsibility of the Commissioner for Development Cooperation.
The EEAS provided the political steer for Article 3 of the Instrument for Stability and worked jointly on the preparation of measures with the FPI, which was responsible for the implementation of agreed actions. The EEAS also provided the strategic programming for Article 4 through the Strategy Papers and Multi-annual Indicative Programmes. The corresponding Annual Action Programmes (AAP) are defined and executed by DG DEVCO (Directorate General for Development and Cooperation) for Art. 4.1 & 4.2 and FPI for Art. 4.3.
4. Overview of the IfS for the period 2007-2013
After seven years in existence, the IfS has provided assistance towards addressing the full cycle of conflict and crisis prevention, response and recovery around the world, addressing security threats at national, regional and transregional levels and building capacities to prevent conflict and respond to crises.
Figure 1: IfS funding for activities under Articles 3, 4.1, 4.2 and 4.3 (EUR 1.57 billion overall for 2007-2013 (as per funding allocations)
Over the period 2007-2013, the short-term crisis response component of the IfS (Article 3) has made available EUR 1.08 billion for some 288 actions responding to crises spanning over 70 countries or regions worldwide. Figure 2 shows the geographic coverage for this period.
Figure 2: Geographic coverage of IfS crisis responses, 2007 to 2013 (as per funding allocations)
Over the same period, some EUR 502.45 million was made available for the long-term, programmable element of the IfS, covering actions spanning Art. 4.1, 4.2 and 4.3. Figure 1 illustrates how funding was distributed amongst crisis response measures (Art.
3) and the longer-term programmes (Art.
4) in this period.
5. State of play of the IfS in 2013
Of the EUR 309.3 million budget available and fully committed for the IfS in 2013,5 the breakdown of allocations was:
- EUR 210.7 million for crisis or emerging crisis situations (Art 3);
- EUR 30.3 million for responses to trans-regional threats (Art 4.1);
- EUR 24 million for pre- and post- crisis capacity building (Art 4.3).
Through regular notes presented to the Political and Security Committee, the Council was kept informed on the planning of new Art. 3 crisis response measures and also updated on the implementation of ongoing measures. The Working Group on Conflict, Security and Development of the Foreign Affairs Committee of the European Parliament, which was established in the framework of the democratic scrutiny of the IfS, convened 6 political level trilogues with representatives from the Commission and the EEAS and some 15 technical meetings over the course of the year.
In terms of geographic distribution, Figure 3 reflects the significant on-going IfS support across the Middle East and North and Sub-Saharan Africa, given the protracted crises in the regions.
Figure 3: Geographic coverage of new IfS Crisis Responses, 2013 (as per funding allocations)
Specific examples of IfS projects in 2013 are given in the two sections that follow.
6. Responses to situations of crisis or emerging crisis (IfS Article 3)
6.1. How the IfS has responded to crises in 2013
In 2013, the IfS committed EUR 216.6 million6 through some 45 short-term crisis response measures. In the Middle East and North Africa region (MENA) support continued in response to the protracted crises in Syria and the spillover affects felt by neighbouring countries. Support across sub-Saharan Africa was also evident, reflective of EU responses to volatile political situations and security threats across the region. And in South-East Asia, support continued towards the establishment of peace processes and the rule of law.
Full details of all IfS measures that were under implementation in 2013 are set out in the Commission Staff Working Document which accompanies this Annual Report. Illustrative of activities in 2013, the following actions demonstrate the wide scope and the many different types of crises the IfS was called upon to respond to in various locations around the world:
Syria: The protracted crisis in Syria has seen ongoing IfS support provided both inside Syria and in neighbouring countries. In Turkey, Iraq, but mainly Jordan and Lebanon, the IfS was instrumental in supporting the authorities in their reception and hosting of the ever-growing numbers of Syrian refugees. Refugees were also directly assisted, for example through the provision of cash rental subsidies and improvement of living conditions, including in the governance structures of the camps, the provision of alternative education and in the sphere of psycho-social support. In Lebanon, the IfS is providing significant support to the local healthcare sector, which is under huge strain given the additional demands placed by the presence of large numbers of refugees.
Within Syria itself, access and other conditions for providing non-humanitarian support are clearly more challenging. Nevertheless, the IfS has still been able to provide some direct assistance in the form of primary healthcare, increased food security and basic education.
Mali: The IfS was one of the first instruments the EU was able to deploy as part of the wider EU response effort to the crisis in Mali in early 2013. A EUR 20 million IfS package of assistance provided support mainly in the areas of security and justice, assistance for re-establishing the presence of the Malian State in the north of the country and towards the first stages of the electoral process. This assistance was complementary to support provided by other EU instruments, in particular the IfS long-term Counter-Terrorism Sahel project, the two CSDP missions - EU Training Mission (EUTM) for the Malian military and EUCAP Sahel, as well as EU support to the AFISMA mission through the African Peace Facility of the EDF.
Niger: During 2013, security threats in Niger increased due to the rebellion and military conflict in northern Mali. The return in recent years of an estimated 250,000 economic migrants from Libya to Niger alone, including ex-combatants and mercenaries, has further exacerbated the situation. Building on existing IfS support towards security and stabilisation in the northern regions of Niger and Mali, follow-on support was agreed to assist in the areas of municipal policing, income generating activities and support to peace and reconciliation initiatives launched by regional and national authorities. These measures contribute to attaining the objectives of the EU Sahel Strategy, complement EU development assistance and humanitarian aid and create synergies with the CSDP EUCAP Sahel mission in Niger
Central African Republic (CAR): After the coup d’état of March 2013, the range of IfS activities in CAR was broadened to reflect the new situation on the ground. This was done with: support packages to civilian security forces, which could also pave the way towards comprehensive efforts on security sector reform later on; support to media to allow for objective and conflict sensitive information availability in Bangui and the provinces; the deployment of human rights’ observation missions; and the fostering of inter-community dialogue through civil society efforts.
Côte d’Ivoire: Following the appointment of a national authority to implement the government’s 2012 policy on disarmament, demobilisation and reintegration (DDR), the EU provided assistance through IfS measures that included: capacity-building and technical assistance, including the orientation and preparation of demobilised ex-combatants who were to be reintegrated; support to the economic and social reinsertion of approximately 5,000 previously de-militarised and de-mobilised ex-combatants and parallel assistance to host communities in order to create an environment favourable to such reintegration; and the close, regular monitoring of the DDR programme to ensure that this participative approach caters to the needs of host communities as well as those of ex-combatants.
Burma/Myanmar: In addition to earlier and still ongoing support to the peace process, including towards the creation of the Myanmar Peace Centre (MPC) in 2012, approaches from both the Office of the President and Daw Aung San Suu Kyi, and in line with the Foreign Affairs Council Conclusions of April 2013, the EU initiated assistance to the capacity building of the Myanmar Police Force in order to improve police respect for human rights as well as their accountability and professionalism in the areas of crowd management and community policing.
6.2. Who was involved in IfS crisis response actions?
Measures were prepared in close cooperation among the EU institutions and with EU Member States;as well as a variety of partners: civil society; public administrations; third countries and others. EU Delegations play a key role, providing early warning and developing initial concepts and options for responses. In 2013, the majority of new measures continued to be ‘sub-delegated’7for local implementation to EU Delegations, whose understanding of local needs and requirements is essential to the success of the activities. This enables contracts to be negotiated with implementing bodies in a timely fashion and the implementation of these often sensitive projects to be monitored at close proximity. As a result, EU Delegations were responsible for 62% of commitments and 80% of payments under the IfS in 2013.
Figures 4a and 4b, below, illustrate the range of IfS implementing partners for Art. 3 crisis response measures from 2007 to 2013. Implementing partner options can often be dictated in terms of those organisations or actors with expertise and strong in-country presence that enables them to react quickly, using their solid local networks, in the volatile environments where IfS crisis response actions operate. The UN family remained a significant implementing partner, as were non-governmental organisations and 2013 saw an increase in co-operation with Member States’ agencies.
Figure 4a: IfS Crisis Response implementing partners, 2007 to 2013 (as per funding allocations)
Figure 4b: IfS Crisis Response implementing partners, 2013 (as per funding allocations)
7. Assistance in the context of stable conditions for cooperation (IfS Article 4)
The Commission ensures the preparation of annual programming and the management of assistance under Article 4 in the context of stable conditions for cooperation. The 2013 IfS Annual Action Programmes (AAPs) were adopted as follows: Articles 4.1 and 4.2 in July 20138 and Article 4.3 in March 2013. A detailed implementation update on activities under each of the Articles is provided in the Commission Staff Working Document II accompanying this Annual Report.
7.1. Threats to security and safety (IfS Article 4.1)
The programmes devised in the context of trans-regional threats focus on capacity building, in close consultation with beneficiary countries. Typically, security capacities are strengthened at the national and regional levels, with a view to enable effective global and trans-regional cooperation.
In 2013, EUR 74 million was committed, with a total of around EUR 44 million in payments made. By the end of 2013, and through the ESF,9 more than 100 experts were recruited from specialist public or semi-public organisations in the EU Member States, joining forces to make their specific knowledge and expertise available and providing technical inputs to the identification and detailed planning of IfS actions. This included the 2013 Annual Action Programme (AAP), as well as paving the way for a fully-fledged implementation of actions decided in previous AAPs. The following section provides highlights of the areas covered:
- The Cocaine Route Programme (EUR 35 million since 2009) covers 38 countries in Africa (essentially West Africa), Latin America and the Caribbean and supports partner countries' capacities to fight organised crime and drug trafficking along the entire route, focusing on the interception of the illicit flows of drugs, the fight against money laundering and information sharing. Two new contracts were signed to extend the geographical scope of the AIRCOP project to new countries in Africa and Latin America over the next three years and to support the roll-out of the West Africa Police Information System (WAPIS) to its first five pilot countries.
- Support to the fight against organised crime on the heroin route continued, with work across 15 countries in Asia, Central Asia, the Caucasus, the Black Sea and Western Balkans under the Heroin Route Programme's umbrella which has two phases that are currently running in parallel: a project comprised of four components with the main bulk of its activities focusing on Afghanistan and Pakistan; the second consists of three stand-alone projects. During 2013, two new interventions commenced under the banner of the programme's second phase: one project with an objective to strengthen co-operation between law enforcement agencies at an operational level, particularly in Central Asia, and another tackling the issue of human trafficking in countries along the heroin route, with activities focusing on enhancing the capacities of Azerbaijan, Bosnia and Herzegovina, Republic of Moldova and Turkey in data/intelligence gathering, analysis and systematic information sharing.
- The EUR 22 million Critical Maritime Routes programme covers 25 coastal countries of the Wider Indian Ocean (including South East Asia) and the Gulf of Guinea. It enhances the information sharing capacities and maritime law enforcement functions of these states so as to help achieve safer maritime traffic by focusing on the fight against piracy and armed robbery at sea, and other aspects of maritime security.
- Support to projects fighting terrorism at national and regional levels continued in 2013 in line with the EU Counter-Terrorism Strategy. In Mali, implementation of the project “Contre Terrorism Sahel”, which benefits Niger, Mali and Mauritania, began in earnest with training on terrorist attack responses, investigative techniques, intelligence gathering and use, as well as counter terrorism legal proceedings. A new project which will contribute to counter terrorism financing in the Horn of Africa and Yemen was designed for implementation to start in early 2014, while a contract was also awarded for a new project on Countering Violent Extremism in the Horn of Africa. Collaboration with Pakistan was bolstered with new support on Countering Violent Extremism which will come on stream in 2014 to complement existing support to the Punjab criminal justice system. In South-East Asia, the IfS was engaged in a joint EU-UNODC (United Nations Office on Drugs and Crime) anti-terrorism initiative. The IfS also provided support to the Malta-based Institute of Justice and the Rule of Law through a mapping assignment to inform their future counter terrorism related work. In collaboration with the Office of the National Security Adviser in Nigeria, a study on the Boko Haram was prepared. Finally, Commission training on preparing projects on Countering Violent Extremism of EU and Member State staff in Delegations and embassies was designed, with the first session held in Nairobi in December 2013 and further training to be conducted in Africa and Asia in 2014.
- A new cybercrime intervention commenced implementation in late 2013, in collaboration with the Council of Europe. The Global Action against Cybercrime (GLACY) aims at promoting accession to the Budapest Convention on Cybercrime and enabling criminal justice authorities to engage in international cooperation on cybercrime and electronic evidence on the basis of this treaty.
- A cyber-security pilot project was formulated, foreseen to start at the beginning of 2014, with an objective to build the resilience of IT critical infrastructure and foster the harmonisation and development of national legislation in accordance with international standards in selected countries.
- With an objective to enable national judicial, control and law enforcement authorities to efficiently respond to the production of, and trafficking in falsified medicines, a new intervention to address threats posed to public health was designed and contracted, with implementation foreseen to start in 2014. Providing the necessary legal framework and capacities to conduct these operations effectively at the applicable national and sub/trans-regional level, the geographical focus of the project will be Ghana, Senegal, Jordan, Morocco and Cameroon due to the political commitment they show in addressing challenges posed by falsified medicines.
- In order to fight illicit accumulation and trafficking in small arms and light weapons (SALW) and addressing their destabilising effects, several milestones were met by an initiative implemented by UNODC (United Nations Office on Drugs and Crime), which promotes the ratification and implementation of the UN Convention against Transnational Organized Crime and its Firearms Protocol. Similarly, the iARMS project implemented by INTERPOL entered its second phase (2012-2013) after a successful completion of the first stage (2011-2012). In Africa, the first phase of support to the Regional Centre for Small Arms (Nairobi, Kenya) came to an end in June 2013, marking thereafter the start of its second phase which will have a 3-year duration. In Central America, the second phase of support to the Central American Small and Light Weapons Control Programme (CASAC) entered its second year of implementation by the Security Commission of the Central American Integration System (SICA).
7.2. Risk mitigation linked to Chemical, Biological, Radiological and Nuclear (CBRN) materials (IfS Article 4.2)
The CBRN programme covers risks related to accidental, natural or malevolent CBRN related issues and aims at improving the safety and security culture by spreading best practices and raising the general level of security and safety awareness. Prior to 2010, different domains were covered separately.10 The CBRN programme has a regional strategy and only exceptionally covers bilateral projects in one single country (exceptions are Afghanistan and Pakistan for chemicals, biosafety and biosecurity).
CBRN ‘Centres of Excellence’ (CoE) are gradually providing a single and integrated platform for actions in all of the domains of border monitoring/illicit trafficking, export control, bio safety, bio security, etc, including civil protection measures (emergency planning, crisis preparedness and response). The initiative is implemented in close cooperation with the EEAS and the help of the UN Interregional Crime and Justice Research Institute (UNICRI). The Joint Research Centre of the European Commission assures the technical support of the initiative. These CoEs seek to enhance CBRN risk mitigation policies by developing tailored assistance packages. They will constitute a major tool for capacity building and developing coherent regional policies and for strengthening the cooperation of national and regional capabilities in this domain. In 2012, the EU established a CoE in South-East Asia (Philippines), South East Europe/Southern Caucasus/Ukraine (Georgia), North Africa (Algeria), the 'Atlantic Façade' (Morocco), the Middle East (Jordan) and Eastern and Central Africa (Kenya). Five local CoE Regional Secretariats are operative in 2013 and four have been officially inaugurated. Furthermore, contacts have been established with Central Asia and the Gulf Cooperation Council countries. In 2013, the Commission started to set up with the partner countries of the CoE initiative a needs and threat assessment exercise to identify the major CBRN needs of the countries. These assessments will be followed by the establishment of National CBRN Action Plans to help to set the priority actions of the concerned countries. The future project definition in the CoE regions will be based on these priorities.
Major CBRN-CoE projects launched include: in the Middle East, the CoE in Amman has prepared a project on the training of civilian first intervention personnel for CBRN disasters (HAZMAT). The CoE of the African Atlantic Façade (AAF) in Rabat has launched a project on biological and chemical dangerous wastes. It involves seven partner countries from AAF and Tunisia. A second project shared between the CoE of Rabat and Nairobi will help the partner countries to build up and strengthen legislation and develop efficient enforcement measures to fulfil international obligations. Nine countries participate to this project and another nine countries have already expressed interest in participating in a similar project.
Other supported areas include several domains of activities in coordination with the CoE network.
- Outreach of export control of dual-use goods activities, which resulted in successful programmes with more than 23 states around the world, has been extended. Cooperation with the US EXBS11 Export Control programme has been reinforced. A common international export control outreach dialogue took place in Brussels in June 2013. It has been decided to establish a common Working Group to reinforce the coordination between the US and EU so as to avoid any duplication in the implementation of export control activities. Based on current developments, an extension and a reinforcement of the activities in the Middle East/Central Asia were realised in the second half of 2013. A new approach to the export control activities has been defined to assure better impact on the field operators in charge of the control activities.
- Support for retraining and alternative employment of former weapon scientists and engineers with origin in countries of the former Soviet Union has continued through the dedicated Science and Technology Centre (STCU) based on a reinforced partnership between the Parties and a co-funding of activities scheme and the International Science and Technology Centre (ISTC) is undergoing a reform process i.e. the objectives are updated and the geographical scope is broadened. The Commission and the EEAS received a mandate from the Council to negotiate a revised ISTC agreement. The Centre will be transferred to Astana, Kazakhstan. In 2013, the ISTC inaugurated an EU project- sponsored Regional Biosafety and Biosecurity Centre in Dushanbe and started the training of Tajik and Afghan experts for redirecting their activities towards peaceful use. Other scientist redirection activities also took place in 2013 in Iraq. 98 radiological and nuclear specialists received training to redirect their activities towards decommissioning of nuclear installations.
- The fight against illicit trafficking of CBRN materials and deceptive financial practices is on-going, with actions in Central Asia and South East Asia and North Africa. A second contract has been signed with the International Atomic Energy Agency (IAEA) to contribute to a new Nuclear Material Laboratory to be used by IAEA Safeguards Analytical Services in Seibersdorf, Austria. In addition Thailand, Cambodia, Laos, Philippines, and the DRC received support for detection of radiological and nuclear material.
- A Biosafety and Biosecurity strategy for the EU neighbourhood has been started in the EU Neighbourhood South and East through the implementation of the outcome of the EpiSouth project (17 non-EU partner countries and 10 Member States). The EpiSouth network, primarily limited to the Mediterranean basin, has been further extended to include Armenia, Georgia, Moldova and Ukraine. This strategy, through the exploitation of the EpiSouth network of countries, has generated four major projects all launched at the end of 2013. The first and largest is the “MediPIET” project that continues the training of intervention epidemiologists contributing to the overall objective of enhancing health and biosecurity in the neighbourhood. Its objective is capacity building for the prevention and control of natural or man-made health threats posed by communicable diseases. The second biological project, under the leadership of the World Health Organisation (WHO), is investigating emerging bacteriological diseases and aims to reinforce public health for emerging bacteria pathogens (anthrax, Tularemia, plague, tuberculosis, etc.) and antimicrobial surveillance networks for possible outbreaks. A third, parallel project, “Medilabsecure”, under the leadership of the Pasteur Institute, follows the risks linked to emerging and re-emerging viruses affecting humans and animals and creates a network of entomologists. A fourth project, led by the WHO, aims at increasing health security globally by assisting countries in enhancing and strengthening capacities for prevention, detection, control and response to public health events related to activities at sea, air and land point of entry, of international travel and transport. The approach is multi sectorial and aims at minimizing the risks associated with natural or deliberate release of pathogens.
- In 2013, the elimination and destruction of the chemical stockpiles of Syria has been supported financially by the CBRN initiative of the IfS programme. After modification of the AAP 2013 programme, the EU allocated EUR 12 million to the Organisation for the Prohibition of Chemical Weapons (OPCW) for the neutralisation and incineration of the Syrian chemicals in cooperation with the international community.
7.3. Pre- and post- crisis capacity-building (IfS Article 4.3)
From 2007 to 2013 €103 million were allocated to support some 140 projects building and strengthening the pre- and post-crisis capacities of the EU and its partners at national, regional and global level. Figure 5 below reflects the main thematic areas of support from 2007 to 2013, while figure 6 illustrates the range of implementing partners.
Figure 5: Thematic areas of capacity building support 2007-2013 (as per IfS Art. 4.3 funding allocations)
Figure 6: Implementing partners 2007-2013 for Art. 4.3 capacity building (as per funding allocations)
€24 million were allocated under the 2013 AAP and the following provides an overview of the main achievements and impacts related to on-going projects that were ongoing in 2013.
Conflict prevention, peacebuilding and fragility: Through the Civil Society Dialogue Network (CSDN), a viable forum for dialogue on peace-building issues has been established between the EU and civil society actors, providing the latter with an opportunity to input to the EU’s policy making processes. 2013 marked this platform’s third year, with a resulting 40 dialogue meetings held by the end of 2013, contributing to enhancing the long-term capacities of civil society in third countries, as well as their European partners, to be better prepared for crisis prevention.
Mediation, dialogue and reconciliation: Due to the IfS support to the Mediation Support Unit of the UN Department of Political Affairs, critical assistance was provided in high profile crisis situations in CAR, Mali and Somalia. Participation of women in peace processes was enhanced by training six women identified as candidates for potential appointments to mediator positions by the UN Secretary-General, and by developing a 'High-level Seminar on Gender and Inclusive Mediation Processes'. In cooperation with UNDP, the IfS also contributed to establishing capacities and sustainable national mechanisms for internal mediation and conflict management in nine pilot countries.12
A versatile new IfS facility, 'the European Resources for Mediation Support' (ERMES), was designed to facilitate flexible and rapid provision of technical mediation assistance to third parties engaged in inclusive peace processes at international, regional and/or local levels, creating enabling conditions for women, youth and other vulnerable groups to express their voices in conflict theatres.
Women, Peace and Security (WPS) and children: The IfS continued to support the implementation of UNSCR 1325 through a joint project with UN Women on enhancing Women’s Participation in Peacebuilding and Post-conflict Planning in Kosovo13, Liberia, and Timor-Leste. In Kosovo, hundreds of men, women and youth attended reconciliation dialogues, producing concrete recommendations on issues such as the Gender Equality Law, women's employment and girls education. Agreements have also been made with major media outlets in Kosovo to feature WPS issues in their programming. In addition, WPS was targeted as a priority for local calls for proposals in 17 countries and 3 regions,14 covering a broad range of gender issues.
Early Warning and situational awareness: IfS support has allowed the Timor-Leste CSO Belun to roll-out and scale-up an Early Warning, Early Response system (EWER), evaluated as one of the best examples in the field of EWER systems, successfully contributing to reducing the overall local conflict potential and tensions. Support through Saferworld and ICG allowed to strengthen in-country and regional actors' capacity to analyse conflict risks across 32 theatres of potential conflict and to provide high-quality conflict analysis to policy makers and civil society with recommendations for early response measures.
Regional and sub-regional organisations' early-warning and post-disaster recovery capabilities were strengthened, including by enhancing the crisis response capacities of the League of Arab States, developing the media monitoring capacity of the Secretariat of the Organization of American States (OAS) and continuing support to the African Union’s Continental Early Warning System. IfS supported the enhancement of ASEAN’s and its Member States’ capacities to respond to emergency situations. In this context, a first training for future staff of the Myanmar National Crisis Centre took place in November 2013, coinciding with a visit to this centre by HR/VP Ashton.
Civilian capacity for crisis management: After the first phase ended successfully in 2012, the ENTRi programme (Europe's New Training Initiative for Civilian Crisis Management) was re-launched in April 2013. During the course of the year nine customised trainings (on average one per month) strengthened the capabilities of 210 personnel (both EU and non-EU nationals) deployed or about to be deployed to international civilian crisis management missions of the EU, UN, AU and OSCE. Courses included both pre-deployment trainings for international missions in Libya, Georgia and Kosovo as well as specialization courses covering topics such as Human Rights, Rule of Law, Mediation and Mentoring. In addition, interoperability and harmonised training approaches between the 13 European consortium members of ENTRi were fostered and a practical handbook for civilians deploying to international crisis missions ("In Control"), was published in September 2013.
Under the European Police Services Training programme (EUPST), three main training sessions were conducted in 2013, respectively by the Spanish Guardia Civil, the French National Gendarmerie and the Italian Carabinieri, building the capacity of 1019 police officers from 42 countries, including 19 African countries, to participate in international police missions.
Natural resources and climate change: The 'EU-UN Partnership on Land, Natural Resources and Conflict Prevention' continued to strengthen the capacity of local CSOs in the African Great Lakes region to understand conflict dynamics and develop conflict-sensitive solutions to contentious issues related to the management of natural resources. Through the Environment and Security Initiative (ENVSEC)'s project on 'Climate Change and Security in Eastern Europe, Central Asia and the Southern Caucasus', a strategic framework for the adaptation to climate change of the Dniester river-basin was developed.
Early recovery, PCNA/PDNA: A post-conflict needs assessment (PCNA) and post-disaster needs assessment (PDNA) training session, ‘Strengthening Cooperation in Fragile and Conflict Affected Countries’ was held in September, attended by Headquarter staff and field level staff from the EU and UN.
Disarmament Demobilization and Reintegration & Security Sector Reform: AU capacities for Security Sector Reform (SSR) was strengthened through a joint EU–UN project, implemented by UNOPS. Three SSR Operational Guidance Notes were discussed at a workshop in Addis Ababa in November, bringing together representatives of the Regional Economic Communities and civil society.
At the end of the seven year programming cycle of the IfS Regulation an external evaluation was commissioned to assess the impact of project results of the IfS Article 4.3 Crisis Preparedness component over the period 2007-13. The evaluation concluded that the IfS Crisis Preparedness component is an indispensable element of the comprehensive EU peace, security and development architecture and should be fully embedded into this structure. It found that the component allows the EU to address conflict issues in the broadest sense and that individual projects have built or strengthened the capacity of organisations to contribute to peace-building efforts and strengthen the concept of a community of practitioners. Despite a limited budget, actions supported contributed to fulfilling EU commitments related to women, peace and security and mediation and dialogue. Investment in civil society at grassroots level across 26 conflict affected countries/regions, has been instrumental in making some 80 projects relevant to the country contexts and ensuring that they meet the priorities and needs, not just at country level but also locally. The IfS Crisis Preparedness component has been used to great effect in creating strategic partnerships, particularly at the multilateral level with UN projects, having had a significant impact on EU relations with several specialised UN agencies.
8. Conclusion
IfS measures implemented in 2013, complementing other EU actions under geographic and thematic development instruments, humanitarian assistance and CSDP missions, contributed significantly to EU efforts to help prevent conflict, respond to crises and preserve peace. In this respect, the wide range of interventions implemented under the Instrument for Stability enabled significant and visible EU responses with respect to many global crisis situations.
Given the continuing political instability and increasing number of natural disasters in many parts of the world, it is imperative to continue working towards the more efficient and effective deployment of the available EU instruments. In this context, the EU needs to ensure IfS actions are deployed as part of the full cycle of crisis prevention, crisis response and peace building measures. The IfS provided the EU with a unique response ability, in many cases acting as an entry point and a catalyst to enable a broad range of EU responses that combine to form the EU’s strategic and comprehensive approach to conflict prevention and crisis response. As cited in the Joint Communication on the EU’s Comprehensive Approach, ‘long term engagement in peace and state building and long-term sustainable development are essential to address the underlying causes of conflict and to build peaceful, resilient societies. The overall objectives of sustainable peace and development must be at the core of the EU's response from the outset – the EU must also have a long-term vision for its short-term engagements and actions’.15
In 2014, the IfS will make way for the new Instrument contributing to Stability and Peace (IcSP). The consultations on the new IcSP have reaffirmed the need for the EU to maintain and expand its capacity to provide a swift and targeted response to crisis situations elsewhere in the world as well as to global and trans-regional threats and emerging threats (fight against organised crime; protection of critical infrastructure; countering terrorism; CBRN risk mitigation). The new IcSP will also re-emphasise the focus on conflict prevention, peace-building and crisis preparedness, recognising that an early response by the EU can often be an effective means to avoid that tensions escalate into a crisis.
1The IfS applied from 1 January 2007 until 31 December 2013. The new Instrument contributing to Stability and Peace (IcSP) (Regulation (EU) No 230/2014 of the European Parliament and of the Council of 11 March 2014, establishing an instrument contributing to stability and peace), for which future annual reports will be submitted to the European Parliament and the Council, as stipulated under Title IV, Article 13 of the Common Implementing Rules (CIR) for the implementation of the Union’s instruments for financing external action, applies from 1 January 2014 until 31 December 2020.
2Regulation (EC) N°1717/2006 of the European Parliament and the Council of 15 November 2006; OJ L 327/1 24.11.2006.
3Also known as the IfS ‘Peace-building Partnership’ (PbP).
4Pursuant to Council Decision of 26 July 2010 establishing the organisation and functioning of the European External Action Service (2010/427/EU), OJ L201
5Refer to ‘Instrument for Stability: Overview 2013 commitments and payments’ in the Commission Staff Working Document accompanying this report
6This figure includes funds of EUR 6 million that were carried over from 2012 or recovered from 2013.
7Legal and financial responsibility for the use of EU funds, including power to sign and amend contracts as appropriate is transferred from the European Commission headquarters in Brussels to the EU Delegation concerned.
8Revised version of the AAP approved on 23 December 2013
9Expert Support Facility Framework Contract, drawing on specialists from public or semi-public organisations from the EU. Since 2008, experts from about 60 organisations in 17 Member States have carried out over 100 missions.
10For example, export control of dual-use goods, illicit trafficking, redirection of former weapons scientists, safety and security culture.
11Export Control and Related Border Security Assistance
12Bolivia, Chad, Ghana, Guyana, Maldives, Mauritania, Nepal, Togo and Yemen.
13This designation is without prejudice to positions on status, and is in line with UNSCR 1244 and the ICJ Opinion on the Kosovo Declaration of Independence.
14Afghanistan, Bolivia, Bosnia and Herzegovina, Brazil, Chad, DRC , El Salvador, Guinea Bissau, India, Kyrgyzstan, Liberia, Nepal, Nicaragua, Peru, Senegal, Solomon Islands, Yemen, Central America Region, South Asia, Southern region of Central Africa.
15Joint Communication to the European Parliament and the Council: The EU's comprehensive approach to external conflict and crises: Brussels, 11.12.2013, JOIN(2013) 30 final.
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