Federal Ministry for Foreign Affairs Minoritenplatz 8 A-1014 Vienna Austria
Tel : During office hours on work days between 9 a.m. and 5 p.m.: 0 50 11 50-0 / int.: +43 50 11 50-0 For general information: 0 802 426 22 (free of charge; cannot be dialled from outside Austria) Fax: 0 50 11 59-0 / int.: +43 50 11 59-0 E-Mail: [email protected] Telegrams: AUSSENAMT WIEN Internet: http://www.bmaa.gv.at
Service: In cases of emergency abroad, the Service is available around the clock. Tel: 0 50 11 50-4411 / int.: +43 50 11 50-4411 or: (01) 90 115-4411 / int.: (+43-1) 90 115-4411 Fax: 0 50 11 59-4411 / int.: +43 50 11 59-4411 or: (01) 904 20 16-4411 / int.: (+43-1) 904 20 16-4411 E-Mail: [email protected]
The possibilities for assistance to Austrians abroad are listed in detail on the homepage of the Federal Ministry for Foreign Affairs www.bmaa.gv.at under the item “Service”.
Austrian Foreign Policy Yearbook 2004
Report by the Federal Minister for Foreign Affairs
Proprietor and Publisher: Federal Ministry for Foreign Affairs A-1014 Vienna, Minoritenplatz 8 Austria
Edited and coordinated by: Thomas Schlesinger and Elisabeth Reich
English translation coordinated by: Sabine Hübler
The German original is available at www.bmaa.gv.at (Außenpolitik), or in printed form in the Documentation and Dissemination of Information, Library Department, Federal Ministry for Foreign Affairs.
V
PREFACE
The year 2004 was definitely a year of historic importance for both Austria and the European Union alike: on 1 May ten new Member States joined the Union. With this round of enlargement, the largest ever in the history of the European Union, decades of division on our continent were finally overcome. This reunification represented an important step towards a new, modern, future-oriented Europe. Austria paid tribute to the enlargement of the European Union by organising numerous celebratory events and, it was impressive to see how Austrians celebrated on 1 May along the line of the former Iron Curtain, welcoming the new citizens of the Union.
For Austria, this recent round of enlargement entailed a shift from the periphery of the Union to the geographical centre of a modified European Union. Old, long-standing neighbours have become new partners; partners with whom we are further developing the European peace project and maintaining close ties. Pro-active neighbourhood policy is one of the priorities of Austrian foreign policy. Neighbourhood policy is not an exact science but rather an art. In the new Europe and in a fundamentally changed world good neighbourliness calls for specific qualities and offers new opportunities. Austria, like hardly any other country in Europe, is experiencing this in practice – in our citizens’ everyday lives, in business and in politics. The target I have set myself in this connection is to ensure that Austrian foreign policy is understood as a genuine offer of partnership. Austria is thus constantly striving to further intensify the already close cooperation with her neighbours. The Regional Partnership Austria has established with the Czech Republic, Hungary, Poland, Slovakia and Slovenia plays an important role in this context and has proved its worth in practice. We jointly identify issues we intend to implement in the European Union and elaborate proposals for improving the coordination of national and European efforts in the event of crises. And together we intend to further intensify our cooperation in combating organised crime.
However, the process of European integration was not completed with the recent round of enlargement. Bulgaria and Romania concluded their accession negotiations on 14 December and are scheduled to join in 2007.
Croatia has made substantial political and economic progress in the last few years and is thus acting as a role model for the countries of South East Europe. Austria therefore strongly advocates this country’s accession to the European Union. The stabilisation of South East Europe, and especially the Western Balkans, is another priority addressed by Austrian foreign policy. I
III therefore support the rapprochement of these states to the European Union. The future and the hope of all the countries of the Western Balkans lie in the European Union, and all of them will become members one day.
This is where the European peace project will have to stand its next big practical test following Europe’s reunification this May. The fact of the matter is that for Croatia, Serbia and Montenegro, Kosovo, Bosnia and Herzegovina, Macedonia and Albania there is no reasonable alternative to the road towards Europe, and this European perspective has clearly become the most important driver for all future-oriented forces in the societies of this region.
Turkey is an important partner for Europe in political, economic and strategic terms. We thus attach great importance to a close and dynamic partnership.
The Treaty establishing a Constitution for Europe represented another milestone of European policy in 2004. Together with representatives of all the EU Member States, Federal Chancellor Schüssel and I signed the Constitutional Treaty in Rome on 29 October. In my view, it is remarkable that 25 countries succeeded in agreeing on a common constitutional text applicable to 456 million citizens. This fact alone represents a huge success because the target they had set themselves was a very ambitious one, namely to ensure that the institutional balance between large and small Member States continues to be guaranteed. In the future, EU citizens will have the right to bring any violation of their fundamental rights before the European Court of Justice and the national parliaments will have wider competences. The European Union’s Common Foreign Policy will henceforth be headed by a Union Minister for Foreign Affairs who simultaneously holds the office of Vice-President of the European Commission. This will bring the European Union another step closer to its goal of a common foreign policy.
With respect to the European Security and Defence Policy, I would particularly like to highlight the takeover of the NATO SFOR operation in Bosnia and Herzegovina by the EU EUFOR-ALTHEA peacekeeping forces. Austria, too, has dispatched a Federal Army contingent to participate in this peacekeeping mission. These Austrian soldiers are thus making an important contribution to the stabilisation of Bosnia and Herzegovina and are playing their part in a concrete and visible Austrian foreign policy.
But foreign policy also involves managing crises abroad. On 26 December a gigantic flood wave caused enormous destruction in South-East Asia and
IV East Africa and also brought much suffering and distress to many Austrians. I was touched by our compatriots’ all-round willingness to help the tsunami victims. With their donations and their untiring efforts in the region the Austrian people once again gave a show of solidarity which reached far beyond our national borders. In the immediate aftermath of the tsunami disaster the Austrian Federal Government made available substantial funds for the implementation of humanitarian emergency relief measures and is also supporting a large-scale reconstruction programme for the affected region together with the federal provinces, cities and municipalities. I would like to take this opportunity to thank the numerous relief organisations, associations and individuals who are contributing so much effort and dedication to the reconstruction work. They are true ambassadors of humanity.
In view of the unprecedented global dimension of the natural disaster and the large number of affected Europeans, we have been working intensively at both the national and the EU level to elaborate ways and means of enabling us to react even more efficiently and to assist more swiftly in the future. One of the core tasks of the Foreign Service and a focus of my personal attention is to support our citizens when they stay abroad.
Over the years the Vienna-based UN headquarters has developed into a veritable “security centre” with respect to the work of the United Nations: nuclear safety, disarmament and the fight against drugs and crime are the focus of the work performed by the Vienna-based units. Vienna hosts precisely those organisations, institutions and agencies which deal with the topical issues that affect citizens’ day-to-day security and safety: the United Nations Office on Drugs and Crime (UNODC), the International Money Laundering Network (IMoLIN), the International Atomic Energy Agency and the Preparatory Commission for the Comprehensive Nuclear Test-Ban Treaty Organization (CTBTO PrepCom).
Austria's candidature for a non-permanent seat on the Security Council for the period 2009–2010 emphasises our country’s commitment to and appreciation of the United Nations. The year 2004 was dominated by the organisation’s internal reform, which is aimed at strengthening the United Nations and enabling it to effectively counter the global security threats of the 21 st century. In view of the dynamic development of the European Union's Common Foreign and Security Policy, we support the creation of an EU seat on the United Nations’ Security Council in the medium term. An important element of this reform process launched by the UN is the promotion of human rights and the fight against poverty, hunger and disease. Austrian foreign policy attaches the utmost importance to the
V strengthening of human rights, particularly the rights of women and children, the protection of minorities, the global enforcement of the ban on torture and the fight against racism, xenophobia and anti-Semitism.
Austria chaired the Nairobi Summit on a Mine-Free World, the First Review Conference on the Implementation of the Convention on the Prohibition of the Use, Stockpiling, Production and Transfer of Anti- Personnel Mines and on Their Destruction, which was held from 29 November to 3 December. Even though considerable success has been achieved since the entering into force of the Ottawa Convention five years ago, every year thousands of people still fall victim to landmines. I believe that the Nairobi Action Plan for the period 2004 to 2009, adopted at this summit, will prepare the ground for a solution to the mine problem. Austria has assumed an active role in combating anti-personnel mines and supports mine clearance projects and programmes for mine victims.
The Austrian Development Cooperation programme is a constituent element of Austrian foreign policy and EU development policy. In 2004 the Austrian Development Cooperation underwent a process of re- organisation. The Austrian Development Agency, which is responsible for implementing the projects and programmes launched by the Austrian Development Cooperation and Cooperation with Eastern Europe, took up its activities on 1 January. Thus a professional agency was established which is tasked with the targeted implementation of the projects and programmes in our partner countries.
The Federal Ministry for Foreign Affairs has committed itself to pursuing a pro-active, constructive and modern international cultural policy. Cultural cooperation with our neighbours in Eastern and South East Europe is being further strengthened and the many Österreich Institute and Österreich- Bibliotheken in these regions are playing an important role in promoting this goal.
I would also like to highlight the cultural activities Austria launched outside Europe in 2004, which included, for instance, the establishment of a Cultural Forum in Beijing. Furthermore, I am particularly happy to note that the recently established Austrian Cultural Forum in New York is rapidly becoming one of the architectural landmarks of the city.
In 2004, the Federal Ministry for Foreign Affairs also made preparations for its move to the former seat of the Government of the Province of Lower Austria. By merging its offices, which were formerly based in six different locations around the city, in one building which is equipped with the latest
VI telecommunications facilities, the Foreign Ministry is best prepared to meet the challenges to be fulfilled by a modern service organisation.
In a modern world, we are responsible for making foreign policy more visible to each individual citizen. It is a fact that credibility grows when everybody realises that big ideas are consistently and meticulously implemented on a small scale, too, and that they actually entail very real and tangible added value for each and every one of us. Only when we succeed in making both the general idea and the detailed implementation transparent so that the public can understand what we are doing, why we are doing it and how we are doing it will our citizens give us the necessary support for our foreign, European and development policies.
My very special thanks go to my predecessor in office and incumbent EU Commissioner for External Relations and Neighbourhood Policy, Dr. Benita Ferrero-Waldner, for her dedicated work on behalf of Austria.
Last but not least, the Foreign Policy Yearbook would be incomplete without a mention of the excellent work accomplished by the staff of the Foreign Ministry. I would thus like to say a warm word of thanks to all my colleagues at headquarters and in the representations abroad for their exemplary personal commitment.
Dr. Ursula Plassnik Federal Minister for Foreign Affairs
VII
VIII CONTENTS
PREFACE III
A. AUSTRIA IN THE EUROPEAN UNION 1
I. The Enlargement of the European Union 1
II. Reform of the European Union and Its Institutions 5 1. Final Stage of the Intergovernmental Conference and Signing of the EU Constitutional Treaty 5 2. Main Elements of the Treaty establishing a Constitution for Europe 6
III. The Policies of the European Union 9 1. Austria’s Role in the European Institutions 9 2. National Cooperation between Government, Parliament and Federal Provinces 12 3. Economy and Finance 13 4. Employment and Social Policy 14 5. Single Market 15 6. Transport 15 7. Environment 17 8. Energy 17 9. Education and Youth 18 10. Research 19 11. Establishment of an Area of Freedom, Security and Justice 20 12. Combating Terrorism 21
IV. The European Union’s External Relations 23 1. The Common Foreign and Security Policy (CFSP) 23 2. The European Neighbourhood Policy (ENP) 29 3. South East Europe / Western Balkans 30 4. The Eastern European States 37 5. Russia 42 6. The Middle East, North Africa and the Mediterranean 43 7. North America 51 8. Latin America and the Caribbean 58 9. Sub-Saharan Africa 64 10. Asia 71 11. Australia, New Zealand, Oceania 78
B. AUSTRIA IN OTHER EUROPEAN FORA 80
IX I. European Security Policy 80 1. The Euro-Atlantic Partnership Council (EAPC) and the Partnership for Peace (PfP) 80 2. The Western European Union (WEU) 82
II. Organization for Security and Co-operation in Europe (OSCE) 82 1. Introduction 82 2. Regional Issues and Field Activities 83 3. The OSCE Human Dimension 85 4. The OSCE Politico-Military Dimension 86 5. The Economic and Environmental Dimension of the OSCE 87 6. OSCE Reform 88 7. Institutional Issues and Headquarters 88
III. Council of Europe (CoE) 89 1. Political Developments 89 2. Relationship with other International Organisations 90 3. Human Rights 91 4. Monitoring 91 5. Assistance Programmes 92 6. Organs of the Council of Europe 93 7. The Council of Europe and Austria 94
IV. Central European Initiative (CEI) 95
V. Neighbourhood Policy 95 1. Regional Partnership 95 2. Switzerland and Liechtenstein 96 3. South Tyrol 98 4. Nuclear Safety 99 5. Alpine Convention 100 6. Cooperation in the Danube Region 101
C. THE LEGAL AND CONSULAR DIMENSION OF AUSTRIAN FOREIGN POLICY 104
I. General Legal and Consular Issues 104 1. Citizens’ Service 104 2. Assistance in Civil and Criminal Matters 105 3. New Treaties 105 4. Consular Cooperation 106
II. Tourist and Cross-Border Traffic 107 1. Visas 107 2. Border Crossing Points 108 3. Border Traffic 108
X 4. Border Treaties 108
III. Social, Labour and Health Policy 109
IV. Austrians Abroad 109 1. Organisations representing Austrians Abroad 109 2. Support for Austrian Citizens Abroad 110 3. Participation by Austrians Abroad in Elections in Austria and the European Union 111
D. THE TSUNAMI DISASTER IN SOUTH-EAST ASIA AND EAST AFRICA 112
E. AUSTRIAN DEVELOPMENT COOPERATION AND COOPERATION WITH EASTERN EUROPE (ADC) 115
I. Introduction 115 1. International Background 115 2. Additional Budget for Development Cooperation 115 3. Sustainable Development 116 4. Legal Basis 116
II. Bilateral Development Cooperation and Cooperation with Eastern Europe 117 1. Bilateral Development Cooperation 117 2. Bilateral Cooperation with Eastern Europe 121 3. Special Programmes 123 4. Themes and Sectors 124 5. Co-financing 126 6. Evaluation 126
III. Multilateral Development Cooperation 127 1. United Nations 127 2. European Union 130
IV. Humanitarian Aid and Disaster Relief and International Humanitarian Organisations 131 1. Humanitarian Aid and Disaster Relief 132 2. International Humanitarian Organisations 133
F. GLOBAL COOPERATION – THE UNITED NATIONS 136
I. Introduction 136
II. The United Nations General Assembly (UNGA) 136
XI 1. Procedural matters 136 2. Political Affairs 137 3. Economic, Development and Environmental Affairs 139 4. Human Rights 140 5. Drug Control and Crime Prevention 140 6. Social Policy 140 7. International Women’s Affairs 141 8. Refugee Issues 141 9. Peaceful Uses of Outer Space 141 10. Administrative and Budgetary Affairs 142 11. International Law 142
III. The Security Council (SC) 144 1. Introduction 144 2. Activities of the Security Council 145 3. UN Peacekeeping Operations (PKO) 151
IV. The Economic and Social Council (ECOSOC) 152 1. General 152 2. United Nations Economic Commission for Europe (UNECE) 153
V. Specialised Agencies and Organisations Affiliated with the UN 154 1. Food and Agriculture Organization of the United Nations (FAO) 154 2. International Labour Organization (ILO) 156 3. International Telecommunications Union (ITU) 157 4. International Fund for Agricultural Development (IFAD) 158 5. International Civil Aviation Organization (ICAO) 158 6. United Nations Educational, Scientific and Cultural Organisation (UNESCO) 159 7. World Health Organization (WHO) 160 8. International Atomic Energy Agency (IAEA) 161 9. World Tourism Organization (WTO/OMT) 162 10. Universal Postal Union (UPU) 163
VI. Other United Nations Institutions 164
G. GLOBAL DISARMAMENT, ARMS CONTROL AND NON- PROLIFERATION OF WEAPONS OF MASS DESTRUCTION AND THEIR MEANS OF DELIVERY 165
I. Arms Control and Disarmament in the Field of Weapons of Mass Destruction 165 1. Nuclear Weapons 165 2. Comprehensive Nuclear-Test-Ban Treaty (CTBT) 166 3. Geneva Conference on Disarmament (CD) 167
XII 4. Convention on the Prohibition of the Development, Production, Stockpiling and Use of Chemical Weapons and on Their Destruction (CWC) 167 5. Biological Weapons Convention (BWC) 168 6. Ballistic Missiles 168
II. Restriction and Control of Conventional Arms and Weapons 168 1. Anti-Personnel Mines 168 2. Excessively Injurious Arms and Weapons 169 3. Small Arms and Light Weapons (SALW) 169 4. Export Controls on Conventional Arms and Weapons 170
III. Multilateral Export Control Regimes 170
H. THE INTERNATIONAL PROTECTION OF HUMAN RIGHTS 172
I. Introduction 172
II. Human Rights in the EU 172 1. EU Human Rights Policy 172 2. Structured Human Rights Dialogue 175
III. Human Rights in the United Nations 176 1. Commission on Human Rights (CHR) 177 2. General Assembly 179 3. Commission on the Status of Women (CSW) 180
IV. Human Rights in the OSCE 180
V. Human Rights in the Council of Europe 180
VI. Human Security Network (HSN) 181
VII. Focuses 182 1. Women’s Rights 182 2. Rights of the Child 183 3. Combating Racism 184 4. Protection of Minorities 184 5. Internally Displaced Persons 185 6. Human Rights Education 186
VIII. International Humanitarian Law 186
XIII I. THE HUMANITARIAN DIMENSION IN INTERNATIONAL RELATIONS 187
I. Migration and Refugee Issues 187 1. Migration and Refugee Movements in and to Europe 187 2. Refugee and Migration Policy in Austria 187 3. International Organization for Migration (IOM) 188
II. International Drug Control 188
III. International Crime Prevention 190
IV. International Criminal Court (ICC) 192
J. MULTILATERAL ECONOMIC POLICY 194
I. World Trade Organization (WTO) 194
II. Organisation for Economic Co-operation and Development (OECD) 196 1. OECD Enlargement and Foreign Relations 196 2. International Economy and Finances 196 3. Education 197 4. Development Cooperation Focuses 198 5. Sustainability and Biotechnology 198 6. Ministerial Meetings 199 7. International Energy Agency (IEA) 199
K. GLOBAL SUSTAINABLE DEVELOPMENT 200
I. Follow-Up to the World Summit on Sustainable Development (WSSD) 200
II. United Nations Environment Programme (UNEP) 201
III. Global Environmental Protection Agreements 201 1. Convention on Biological Diversity (CBD) 201 2. Cartagena Protocol on Biosafety 201 3. International Convention for the Regulation of Whaling (ICRW) 202 4. Washington Convention on International Trade in Endangered Species (CITES) 202 5. Basle Convention 202 6. United Nations Framework Convention on Climate Change (UNFCCC) 202
XIV 7. Rotterdam Convention (PIC) 203
L. INTERNATIONAL CULTURAL POLICY 204
1. Priorities and Projects 2004 204 2. Music Projects 206 3. Literature and Theatre Projects 208 4. Fine and Visual Arts 209 5. Film 212 6. International Youth Cooperation 212 7. International Sporting Relations 213 8. Grants for Cultural Projects 213 9. Academic and Scientific Projects 214 10. Austrian Professorships and Centres for Austrian Studies 214 11. Österreich-Bibliotheken (Austria Libraries) 215 12. German as a Foreign Language 216 13. Grants and Mobility Programmes for University Studies 217 14. Multilateral Scientific and Technical Cooperation 217 15. International Cultural Policy within the Framework of the EU 218 16. Bilateral Agreements in the Fields of Culture and Science 220
M. MEDIA AND INFORMATION 222
I. Public Relations Activities of the Federal Ministry for Foreign Affairs 222
II. International Cooperation in the Media Sector 223
N. THE AUSTRIAN FOREIGN SERVICE 225
I. Introduction 225
II. Foreign Missions – Honorary Consulates 225
III. Real Estate Management 225
IV. Entry into the Foreign Service 226
V. Staff 227
VI. Budget 228
VII. Information Technology (IT) and Foreign Policy Library 229
VIII. The Organisational Structure of the Foreign Ministry 232
XV
A. Austria in the European Union
I. The Enlargement of the European Union
The year 2004 was of epoch-making significance for the European Union (EU). On 1 May, Cyprus, the Czech Republic, Estonia, Hungary, Latvia, Lithuania, Malta, Poland, Slovakia and Slovenia joined the EU. This accession of ten new Member States with a total population of around 75 million citizens constituted the fifth and largest enlargement round in the history of the EU. In addition, the accession negotiations with Bulgaria and Romania were successfully concluded, thereby paving the way for the probable accession of these countries in January 2007 or January 2008. In June, the EU decided to open accession negotiations with Croatia in 2005. In December, the European Council also fixed a date (3 October 2005) for the start of negotiations with Turkey.
Although 1 May did not mark the final conclusion of the historic process, which started with the policy decision taken by the European Council of Copenhagen in 1993 to include the Central and Eastern European countries in the European integration process and resulted in the end of the bipolar post- war order in Europe, it can rightly be called its culmination.
The ten new Member States still have to take two substantial steps towards integration. First, the application of the Schengen acquis with a view to abolishing controls on persons at the internal borders of the EU. Although the new Member States have been bound by the Schengen acquis since the date of their accession, the abolition of controls on persons at the internal borders still requires a unanimous decision by the Council. This decision will be taken once the new Member States have fulfilled all the legal, organisational, operational, practical and technical requirements for access to the Schengen Information System and effective control of the common external borders. Hence, border controls between Austria and the new Member States will not be abolished before 2007 at the earliest. Second, the introduction of the euro: unlike the United Kingdom and Denmark, the new Member States are treaty-bound to adopt the single currency. Their accession to the euro zone will be decided by the Council once the new Member States have fulfilled all the convergence criteria. In this respect, special mention should be made of the convergence criterion defined under Art. 121 TEC, which requires compliance with the standard fluctuation margins of the exchange rate mechanism of the European Monetary System (EMS II) for at least two years without any depreciation in relation to the currency of another Member State. As a result of their favourable macroeconomic data, Estonia, Lithuania and Slovenia have been members of the EMS II since 28 June.
1 For Lithuania and Slovakia the Act of Accession involves obligations concerning the shutdown of nuclear power plants. In accordance with these obligations, Lithuania shut down the first reactor of the Ignalina NPP on 31 December. The second reactor is to follow in 2009. The shutdown of the Bohunice V-1 reactors in Slovakia is scheduled for 2006 and 2008.
In June, the European Council also confirmed the timetable for the further accession process of Bulgaria and Romania: conclusion of accession negotiations in 2004, signing of the accession treaty in 2005, accession in January 2007, provided that the two countries meet the accession criteria. In this context, in March the Council adopted a financial package amounting to 15.396 billion euros for the period 2007-2009. Moreover, Bulgaria and Romania will be integrated into the EU’s agricultural and structural policies in the same way as the Member States which joined on 1 May. This means that, from the date of the accession, direct payments will be gradually introduced over a period of ten years.
On 15 June, Bulgaria was able to conclude the technical aspects of the accession negotiations. The obligation to shut down the nuclear power plant in Kosloduj was an important condition for Austria’s consent. After reactors 1 and 2 had been shut down in 2002, Bulgaria’s Act of Accession now contains the obligation to shut down blocks 3 and 4 by 31 December 2006. This obligation is supplemented by regulations concerning financial assistance from the EU for the decommissioning of nuclear installations and by other accompanying measures.
July marked the start of the drafting of the accession treaties for Bulgaria and Romania, which was still underway at the end of the year. In its progress reports presented on 6 October, the European Commission assumed that Bulgaria and Romania were already meeting the political criteria, and will fulfil the economic criteria and the criteria regarding the acquis communautaire by January 2007, so that by this time they will be ready for membership. At the last accession conference held with Romania at deputy level on 8 December, the last open chapters regarding justice, home affairs and competition policy were concluded for the time being. Austria gave its consent after further detailed specifications of the requirements in the fields of border control, illegal migration and the fight against corruption had been added to the common position on justice and home affairs. It was thus possible to formally conclude accession negotiations at ministerial level with the candidate countries Bulgaria and Romania on 14 December.
The conclusions of the European Council meeting of 16 and 17 December again give January 2007 as the accession date for Bulgaria and Romania, provided that all requirements are met by then. Otherwise, their accession may be postponed for one year until January 2008. The conclusions point out
2 that the Union will follow the accession preparations in the context of its monitoring process (explicit mention is made of the chapter on justice and home affairs with respect to Bulgaria, and the chapters on justice and home affairs, on competition policy and the environment with respect to Romania) and indicate April 2005 as the date for signing the accession treaty.
Like the other countries of the Western Balkans, Croatia was granted “potential candidate” status at the European Council meeting of June 2000. In April, the European Commission recommended the opening of accession negotiations in its opinion on the membership application “avis”. On this basis, and without imposing any further conditions, the June European Council supported the opening of such negotiations at the beginning of 2005. In October, the European Commission presented proposals for a pre-accession strategy and elements for a negotiating framework. During the preparations for the December European Council, some EU Member States voiced scepticism about fixing a specific date because of the criticism expressed by the chief prosecutor of the International Criminal Tribunal for the former Yugoslavia (ICTY) in The Hague in relation to Croatia’s cooperation with the ICTY (arrest and extradition of the fugitive General Ante Gotovina). Austria supported the full implementation of the decision taken in June and also pointed to the complexity of the Gotovina case (highly contradictory information on his possible whereabouts). Finally, the December European Council fixed a specific date for the start of the negotiations (17 March 2005), but made this date contingent on Croatia’s unrestricted and full cooperation with the ICTY.
At its meeting in Copenhagen in 2002, the European Council had agreed to decide by the end of 2004 whether Turkey was meeting the political criteria (stability of institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities) based on a report by the European Commission. If Turkey were found to be meeting the political criteria, negotiations should be started without delay. This was confirmed by the conclusions of the June European Council. On 6 October, the European Commission submitted three documents on Turkey: a comprehensive report on the progress and reforms made since 1999, a study on the possible effects of Turkey’s accession to the EU – demanded by Austria – and a recommendation to the Council concerning the opening of negotiations with Turkey.
Based on the above, on 16 and 17 December the European Council adopted conclusions on the issue of Turkey, which include the following essential aspects: like the recommendation of the European Commission of 6 October, these conclusions also establish that Turkey adequately meets the political criteria and set the date of 3 October 2005 for the start of the negotiations.
3 The section on the framework for negotiations stipulates that they will be conducted in the context of an Intergovernmental Conference and will be divided into different chapters, in line with the procedure followed for the countries that joined the EU on 1 May. A new element is the use of benchmarks for the preliminary conclusion and, if required, the opening of individual chapters referring to the harmonisation and implementation of legislation and the fulfilment of existing commitments vis-à-vis the EU. The text mentions the possibility of long transition periods, derogations, special regulations and permanent safeguard clauses forming the basis for the relevant measures in the fields of the free movement of persons and structural policy and agriculture, which can be activated at any time. In addition, the Member States will have the greatest possible say in decisions relating to the free movement of persons. The negotiations can be concluded only after the passing of a resolution on the financial period starting in 2014 and could possibly entail a number of financial reforms. The aim of the negotiations is accession to the EU, but – particularly on Austria’s initiative – the negotiations are an open-ended process whose outcome cannot be guaranteed in advance. If the candidate country is not able to meet all the obligations connected with membership, including fulfilment of all the Copenhagen criteria, it should still be embedded as firmly as possible in the European structures. In the event of a serious and persistent violation of European values, the negotiations may be suspended. The negotiations will be accompanied by a political and a civil dialogue. Turkey must remedy the deficits indicated in the progress report of the European Commission and will continue to be closely monitored by the Union. In addition, it will have to sign the Adaptation Protocol to the Ankara Agreement (i.e. its extension to the new Member States) prior to the commencement of the negotiations. The conclusions also explicitly refer to the “fourth Copenhagen criterion”, i.e. the capability of the Union to admit new Members while at the same time maintaining the momentum of European integration.
A concrete example of Austria’s active participation in the enlargement process was its commitment to twinning projects . Austria took over 15 projects totalling more than 6 million euros. A large number of twinning projects in 2004 were planned by the EU for Bulgaria and Romania: 37 projects were put out to tender for Bulgaria, and 45 projects were planned for Romania. In Turkey, Austria is currently implementing three projects. Twinning tenders in the MEDA countries – the Mediterranean countries participating in the Euro-Mediterranean Partnership – of Lebanon and Jordan were also conducted for the first time. From 1997 to 2003, Austria acquired over 120 partnerships in such tenders or more than 9 per cent of all projects, putting her in sixth place among the EU-15. In the future, Austria also plans to submit projects together with the new Member States.
4
II. Reform of the European Union and Its Institutions
1. Final Stage of the Intergovernmental Conference and Signing of the EU Constitutional Treaty
As the European Council meeting held in Brussels on 12 and 13 December 2003 failed to reach agreement on the Treaty establishing a Constitution for Europe, the Intergovernmental Conference remained suspended. After extensive consultations, on 26 March the European Council set itself the goal of concluding the Intergovernmental Conference in June. Following three meetings at foreign minister level (17 and 18 May, 24 May, and 14 and 15 June), the Irish Presidency was able to present a compromise package, which consisted of a comprehensive closed list of undisputed proposals and a relatively short open list, which still required clarification at the highest level. The latter primarily included a detailed definition of the double majority of Union citizens and Member States, the composition of the European Commission, the parameters for the composition of the European Parliament (EP), the extension of qualified majority decisions, and certain procedural regulations in the sphere of the economic and monetary policy. On 18 June, the Heads of State and Government agreed on a package solution with regard to the whole text of the Treaty establishing a Constitution for Europe.
The Constitutional Treaty was signed in Rome on 29 October. In order to become effective, it requires ratification by all Member States in accordance with their constitutional provisions. The target date set for this purpose is 1 November 2006.
The basis for Austria’s negotiating position was the Austrian Policy Position for the Intergovernmental Conference, which was adopted by the Council of Ministers on 23 September 2003 and approved by the Main Committee of the National Council on 30 September 2003. Based on this, the Federal Chancellor and the Federal Minister for Foreign Affairs were authorised to conduct the negotiations. Both the National Council (Lower House of the Austrian Parliament) and the Federal Council (Upper House of the Austrian Parliament) were regularly informed about the progress of the negotiations. On three occasions the Intergovernmental Conference featured on the agenda of the Main Committee on EU Affairs (17 March, 15 June and 11 August). On 19 May, this topic was also addressed by the Council for European Integration and Foreign Policy Affairs.
On 21 October, the Federal Government approved the wording of the preliminary draft German version of the Constitutional Treaty and obtained the authorisation of the Federal President empowering the Federal Chancellor and the Federal Minister for Foreign Affairs to sign the treaty. 5
Austria’s ratification of the Constitutional Treaty requires the prior approval of the Austrian Parliament. As was the case with all previous treaties forming part of the EU’s primary legislation, this approval will be based on a special constitutional arrangement, which stipulates that both the National Council and the Federal Council have to pass their resolutions with a two-thirds majority and the presence of at least half of the MPs. The Austrian Parliament will discuss the special constitutional arrangements and the government bill on the approval of the ratification of the Constitutional Treaty in May 2005.
2. Main Elements of the Treaty establishing a Constitution for Europe
The EU Constitutional Treaty provides a new primary-law basis for the EU. Although it formally requires a re-founding of the EU, the continuity of the whole acquis communautaire will be ensured. The Treaty involves a simplification and gradual development of the primary law of the EU and is designed to increase democratic legitimacy, transparency and efficiency. The provisions of the Treaty establishing the European Community and the Treaty on European Union will be combined into a single instrument. The three pillars will be integrated into a uniform legal framework and the EU will be accorded uniform legal personality encompassing all policy spheres. In this way, it will be able to join international organisations and to negotiate and conclude all agreements with third countries or international organisations on the basis of a uniform procedure. Together with the establishment of the office of Union Minister for Foreign Affairs, these measures will significantly contribute to promoting consistency in the EU’s global relations.
From the Austrian point of view, the inability of Member States to reach consensus on a substantial reform of the EURATOM Treaty in spite of intensive efforts is a considerable shortcoming of the Constitutional Treaty. However, Austria succeeded in keeping open the prospect of the EURATOM Treaty eventually undergoing a comprehensive reform. A joint declaration by Austria, Germany, Hungary, Ireland, and Sweden on the Final Act of the Constitutional Treaty reaffirms the goal of convening a EURATOM revision conference as soon as possible.
The major achievements of the Constitutional Treaty that were strongly supported by the Austrian representatives in the Convention include the clear distribution of competences between the Union and its Member States and the simplification of the instruments for action and decision-making mechanisms available to the Union. The strengthening of the Union’s ability to act with regard to its external relations and the establishment of an area of freedom, security and justice are complemented by new instruments for better control of compliance with the principles of subsidiarity and proportionality as a 6 means of effectively curbing tendencies towards centralist over-regulation at European level. Thus, an early-warning mechanism will be created, through which national parliaments will be able to voice their reservations with regard to a possible infringement of the subsidiarity principle by EU legislation. Another measure undertaken in this context is the introduction of the right to bring an action for infringement of the principle of subsidiarity. In this respect, Member States may choose to bring such actions at the request of their national parliaments or one of the chambers of parliament.
Increasing the democratic legitimacy of the decision-making processes in the EU is also at the centre of the extension of the European Parliament’s co- decision and participation rights and the introduction of a European Citizens Initiative, which can be compared to the Austrian popular initiative. Possibilities for democratic control will be further improved by the demand for transparency by the EU’s legislative bodies. Both the EP and the Council will be required to hold open sessions when deliberating and deciding on legislative acts. Legal protection for citizens will also be strengthened, notably by integrating the Charter of Fundamental Rights into the Constitutional Treaty, expanding the competences of the European Court of Justice and facilitating the terms for bringing individual actions.
Moreover, the Constitutional Treaty involves a number of institutional reforms that will improve the efficiency of the decision-making processes with a view to the enlargement of the EU, and will also maintain the balance between the bodies of the EU, thereby reflecting its double legitimacy as a Union of citizens and of Member States. Major institutional reforms include the establishment of the office of a Union Minister for Foreign Affairs and that of an elected President of the European Council. While Austria strongly supported the former, it was initially rather sceptical about the latter. However, by limiting the new president’s competences and maintaining the principle of equal rotation between the Member States in the presidential system of the Council of Ministers, Austria’s reservations were largely swayed.
The central concerns expressed by Austria at the Intergovernmental Conference included the safeguarding of the principles of institutional balance and the equality of the Member States in the reform of the Union’s institutions. The fact that these principles were finally satisfied can be attributed to the ongoing co-operation between the Austrian delegation and a group of 12 other – small and medium-sized – “like-minded” countries (all new Member States except Poland, plus Finland, Portugal and Greece) during the whole negotiation process.
The major elements of the compromise on institutional reform reached during the final stage of the Intergovernmental Conference are the following:
7
As of 1 November 2009, the system of double majority will be applied to qualified majority voting in the Council of Ministers. According to the Constitutional Treaty, a qualified majority is achieved if a decision is supported by 55 per cent of the Member States, including at least 15 of them, and representing at least 65 per cent of the Union’s population (a blocking minority must include at least four Member States). This formula will facilitate decision-making, without significantly reducing Austria’s potential influence on a decision.
Until 2014, i.e. for two terms of office, the European Commission (including its President and the EU Foreign Minister) will be further composed of one national of each Member State. Afterwards, the number of commissioners will be reduced to two thirds of the Member States, unless the European Council unanimously decides to change this ratio. The members of the Commission will then be selected on the basis of equal rotation. From the Austrian point of view, these terms constitute a well-balanced compromise and a substantial improvement on the Treaty of Nice and the Convention’s draft of the Constitutional Treaty.
In addition, Austria successfully supported the following issues at the Intergovernmental Conference: the clarification of Member States’ competences with regard to the provision, procurement and financing of services of general economic interest and the recognition of the role of regional and local authorities in this respect; the establishment of a horizontal social clause that requires the EU to take account of the cornerstones of the European Social Model in all its activities; the guarantee of judicial control over binding legal acts of the European Council through the ECJ; the establishment of the protection of minorities among the EU values; the consideration of the “special character of the security and defence policy of certain Member States” in the context of the Common Security and Defence Policy (CSDP), as requested in a joint letter by Austria, Finland, Sweden and Ireland; an increase in the efficiency of decision-making in relation to the coordination of social security systems and judicial cooperation in criminal matters while simultaneously ensuring that vital concerns of individual Member States are taken into consideration; the guarantee that the office of a European Public Prosecutor can be established only with the explicit consent of Austria; and the inclusion of a horizontal animal protection clause in the Constitutional Treaty.
8 III. The Policies of the European Union
1. Austria’s Role in the European Institutions
1.1. Austria’s Representatives in the EU Bodies
From 1995 to 2004, the Austrian Franz Fischler held the office of EU Commissioner for Agriculture, Rural Development and Fisheries. Since 22 November 2004, the former Minister for Foreign Affairs, Benita Ferrero- Waldner, has been the Commission Member responsible for External Relations and European Neighbourhood Policy. On 14 January 2005, Hubert Weber was elected President of the European Court of Auditors for a period of three years. The Austrians Peter Jann and Josef Azizi, were appointed judges to the European Court of Justice (ECJ) and the European Court of First Instance (ECFI), respectively. Azizi was reappointed in 2004. Since 2000, the Austrian Christine Stix-Hackl has held the office of Advocate-General at the European Court of Justice.
1.2. European Parliament (EP)
The elections to the European Parliament, in which the new Member States already participated, took place from 10 to 13 June. As a result of the enlargement, the overall number of MEPs increased from 626 to 732. The 18 Austrian MEPs currently holding office form part of the following parliamentary groups: seven are members of the Social Democratic group, six of the European Peoples’ Party and European Democrats, two of the Greens and Free European Alliance and three are independent MEPs (two members of the “Liste Hans-Peter Martin” and one member of the Austrian Freedom Party). At European level, the overall voter turnout was 45.7 per cent, while voter participation in Austria came to 42.4 per cent. On 20 July, the new EP elected Josep Borrell (SPE) of Spain as its President for a term of two and a half years.
The new Parliament attached particular importance to the confirmation of the new European Commission (in the course of its hearings, the EP successfully demanded a change in the composition of this body) and its opinions on the progress Romania and Bulgaria (resolutions of 16 December) and Turkey (resolution of 15 December) are making on the road to accession.
1.3. European Court of Justice (ECJ) and Court of First Instance (EFCI)
In 2004, 16 new preliminary ruling procedures were initiated by Austrian courts.
9 By the end of the year, 16 proceedings for alleged infringements of Community law were pending against the Republic of Austria. These infringement proceedings concern the Directive on the disposal of waste oil; the University Studies Act with regard to admission requirements for EU citizens; equal treatment of men and women regarding access to employment in underground mining; the driving ban on a section of the Inntal motorway; the mutual recognition of diplomas, certificates and other evidence of the formal qualifications of dentistry practitioners; Directive 92/50 relating to the coordination of procedures for the award of public service contracts in relation to the contract for the collection and treatment of waste awarded by the municipality of Mödling; the limitation of emissions of certain pollutants from large combustion plants; the reduction of the sulphur content of certain liquid fuels; restrictions on cross-border services in accordance with Section 18 of the Foreign Nationals Employment Act; the Directive on the conservation of wild birds and the Directive on the conservation of natural habitats and of wild fauna and flora with regard to the Lauteracher Ried conservation area in connection with the construction of the S 18 Bodensee Schnellstrasse (Lake Constance expressway); the inadequate transposition of a directive implementing the principle of equal treatment between persons irrespective of racial or ethnic origin; the minimum requirements for improving the safety and health protection of workers potentially at risk from explosive atmospheres; the protection of workers from the risks related to carcinogens; and the inadequate implementation of Directive 89/391 on the introduction of measures to encourage improvements in the safety and health of workers at work; Directive 79/409 on the conservation of wild birds and Directive 92/43 on the conservation of natural habitats and of wild fauna and flora.
In 15 proceedings the European Court of Justice issued a judgement establishing an infringement of Community law by the Republic of Austria. These judgements concerned authorisation for the enlargement of the golf course in the municipality of Wörschach/Styria; the classification of food supplements and vitamins as medicinal products or foods; the inadequate implementation of the Remedies Directives 89/665/EEC and 92/13/EEC (procurement law) by the provinces of Salzburg, Styria, Lower Austria and Carinthia; the limitation of emissions into the air of certain pollutants from large combustion plants; the conditions for the exercise of certain paramedical professions on a self-employed basis (Austrian Higher Medico-Technical Services Act); the application of open network provision to voice telephony and the universal service for telecommunications; the exclusion from eligibility for election to the chambers of labour (“Arbeiterkammer”) of workers from the Community and EEA Member States and of workers from third countries with which the EU has concluded agreements concerning the non-discrimination of these workers with regard to employment conditions; the minimum safety and health requirements for work with display screen equipment; the protection of the health and safety of workers from the risks
10 relating to chemical agents at work; the Directive establishing a first list of indicative occupational exposure limit values; the legal protection of biotechnological inventions; the deliberate release into the environment of genetically modified organisms; Section 50/2 of the Food Act concerning the prohibition on the sale by mail order of food supplements; integrated pollution prevention and control; and minimum safety and health requirements for the manual handling of loads.
As a result of the streamlining of proceedings by the Court of Justice, two cases against Austria resulted in a conviction within a period of one year. In case C-194/01 regarding the inadequate transposition of Directive 75/422/EEC on waste, the Court of Justice dismissed the application.
In March, Austria brought an action against the Council and the European Parliament for annulment of Regulation 2327/2003 establishing a transitional points system applicable to heavy goods vehicles travelling through Austria in 2004. The European Commission joined this action as intervener on the side of the defendants.
In September, Austria brought an action seeking annulment of the decision taken by the European Commission on 22 June to reject the request to the European Commission made by the Republic of Austria on 31 March to propose a successor regulation for the eco-points system or comparable measures in conformity with primary law. The Council joined this action as intervener on the side of the defendant.
In June, the European Court of Justice referred Austria’s action for annulment of the decision taken by the European Commission to reject legislation banning the use of genetically modified organisms in the province of Upper Austria to the European Court of First Instance.
1.4. European Economic and Social Committee (EESC)
Austria is represented in the EESC with 12 members. In 2004, Hans Kletzmayr was nominated as a new member. At the EESC’s plenary meeting of 27 and 28 October, the Austrian member Anne-Marie Sigmund was elected president for the next two years.
1.5. Committee of the Regions (CoR)
In the Committee of the Regions, Austria is represented with 12 members. The national delegation is composed of the nine Governors of the Federal Provinces and three representatives of the Association of Cities and Towns and the Association of Municipalities. In 2004, Bernd Vögerle was appointed member of the CoR and Gebhard Halder, Markus Linhart, Josef Martinz and
11 Andreas Schieder were appointed as alternate members. The Austrian delegation is headed by the Governor of the Province of Tyrol, Herwig van Staa, who also holds the office of Vice-President of the Committee of the Regions.
2. National Cooperation between Government, Parliament and Federal Provinces
The cooperation between the government, parliament and federal provinces in matters relating to European integration is based on the National and Federal Councils’ right to be informed about plans concerning the EU and the right to give an opinion on them. If the Main Committee of the National Council or the Standing Sub-Committee on matters relating to the EU resolves to give an opinion or to make a statement on an EU-related matter which would have to be regulated by a federal law or is geared towards passing an immediately applicable EU legal act relating to matters to be regulated by federal law, the competent member of the Federal Government is bound by this opinion and can only deviate from it for compelling foreign or integration policy reasons.
On 17 March, the Main Committee of the National Council issued a unanimous statement demanding that the general reimbursement of costs and the reimbursement of travelling expenses of MEPs should be subject to a regulation based on documented expenses, irrespective of an agreement on the MEP (Member of European Parliament) statute.
The participation rights of the provinces and municipalities laid down in Article 23d of the Federal Constitutional Act include the right to be notified of and comment on issues falling within their sphere of responsibility, analogous to the rights of the National and Federal Council. In 2004, the provinces delivered seven uniform opinions pursuant to Article 23d Paragraph 2 of the Federal Constitutional Act, commenting on the following environmental issues: the Directive on access to justice in environmental matters; the Directive on services in the internal market, the Natura 2000 network of protected sites; the Community list of the Continental region, Natura 2000 network of protected sites; the Community list of the Atlantic region, White Paper on services of general interest, Natura 2000 network of protected sites; the Community list of the Atlantic and Continental regions, Natura 2000 network of protected sites; the Community list of the Boreal region.
12 3. Economy and Finance
3.1. Economic and Monetary Union
The annual growth rate of the gross domestic product (GDP) in the euro zone was 2 per cent. For 2005 and 2006, the growth rate is expected to stay at this level. The dynamic economic developments are due to the lively export demand, while an increase in the contribution made by domestic demand cannot be anticipated before the next few quarters. The improved economic situation also had an impact on the labour market. Employment growth in the euro zone increased to 0.5 per cent and is likely to amount to nearly 1 per cent in 2005 and 2006. The inflation rate remained unchanged at 2.1 per cent, but is expected to fall below 2 per cent in 2005 and 2006.
Economic recovery was supported by an accommodating macro policy, favourable financing costs, rising profit margins and structural reforms. For example, considerable progress was made in the reform of the social security systems of a number of Member States. As a result of the new capital adequacy directive and the third money laundering directive, further significant advances were also made with respect to the development of the single financial market.
In preparing the mid-term evaluation of the Lisbon strategy, an expert group chaired by the former Dutch Prime Minister Wim Kok compiled a report, which was welcomed by the European Council on 4 and 5 November. The report concluded that the crucial point was to improve the Member States’ implementation efforts.
Deliberations on a reform of the Stability and Growth Pact were started. Austria supported all proposals that could contribute to a more effective implementation of the Pact and advocated that its substance should not be subject to any changes.
3.2. Financial Perspective 2007–2013
On 14 July, the European Commission presented its detailed proposals for the Financial Perspective for the period 2007 to 2013 (Agenda 2007). The measures proposed with regard to the EU’s own resources include a general mechanism for the equalisation of burdens among the net contributors (general correction mechanism), a larger number of opportunities to reallocate appropriations between expenditure headings, and the introduction of an EU-wide tax. In addition, Agenda 2007 comprises proposals for new legal regulations for all expenditure headings. The previous discussions in the Council had focused on the necessary amount of the overall financial resources and its distribution among the individual categories. For this purpose, the different objectives in 13 the individual categories and the required funds to accomplish these objectives were combined into “building blocks”, which will form the basis for further discussions in the first half of 2005. In this respect, Austria’s central concern is to exercise a strict spending discipline and to maintain the current level of spending of approximately 1 per cent as a contribution to the long- term stability of Europe’s public finances – an objective which is consistently pursued together with a number of other EU Member States.
4. Employment and Social Policy
In the field of employment policy, the Federal Government endeavoured to work towards the achievement of the Lisbon objectives by implementing a number of national measures . With a view to improving quality and productivity levels, aspects that were particularly promoted included company start-ups, lifelong learning, flexibility and safety at work, the fight against discrimination, improvement of work organisation and better reconciliation of the demands made by job and family. To improve participation by older workers in the labour market, the Federal Government adopted a pension reform package, supported by individual measures including a reduction of social insurance contributions and a balanced early retirement scheme.
In the context of the Lisbon strategy, promotion of social cohesion was formulated as one of the EU’s strategic goals. The system of social protection is to be modernised by applying the open method of coordination, particularly with respect to the fight against poverty and social exclusion, the safeguarding of the quality and sustainability of the pension systems, the future of the health care and nursing systems, and the issue of “making work pay”.
The National Action Plan for Social Inclusion (NAPincl) submitted by the Member States in 2003 formed the basis for the adoption of the second joint report of the European Commission and the Council on social inclusion. Austria submitted an updated summary report to the European Commission on the latest plans and reforms in the field of social policy.
To strengthen social policy, in March the Social Protection Committee and the EU Employment Committee submitted to the European Council a joint document containing key messages on employment, social protection, social inclusion and equal treatment of men and women.
14 5. Single Market
The central issue was the creation of a genuine single market for services. On 13 January, the European Commission presented its proposal, which aims to establish a general legal framework for the elimination of barriers, with respect to both the freedom of establishment for service providers and the free movement of services between the Member States.
Points of dispute include the scope of application of the framework directive concerning services of general economic interest, the application of the country of origin principle and the functioning of cooperation between authorities. In this context, particular mention should be made of the draft directive on the recognition of professional qualifications, which provides special regulations complementing the planned directive on services. A significant innovation in the Services Directive is the introduction of the country of origin principle for temporary services. The European Council on Competitiveness of 17 and 18 May succeeded in reaching political agreement on the Directive on unfair commercial practices. In contrast, the proposal for a regulation on sales promotion was rejected on 24 September. The efforts to improve and simplify legislation, an issue which Austria considers very important, also included the further development of the instrument of impact assessment.
In 2004, the European Commission again emphasised the central importance of accelerating the transposition of the EU internal market directives into the national laws of the Member States. By 15 November, Austria had achieved an implementation rate of 98.04 per cent (31 overdue directives), ranking seventh among all Member States.
6. Transport
At the beginning of the year, the eco-points system was to be replaced by the provisional points system , which had been established against the vote of Austria. In view of the expected negative impact in the fields of transport policy and the environment and a number of technical and administrative problems, Austria announced non-application and on 24 March brought an action for annulment of the regulation. On 1 September, Austria brought an action for annulment of the European Commission’s decision not to take any further steps to achieve the targets of the Transit Protocol.
Despite the target set by the European Council meeting of December 2003, in 2004 the Council was not able to reach agreement on a directive for a new calculation of road pricing and infrastructure costs .
15
Since a blocking minority against the harmonisation of weekend and night driving bans was also maintained after the enlargement of the EU, jurisdiction in these matters remained with the Member States. In November, the night driving ban imposed last year on a section of the Inntal Motorway was extended in time since the relevant limits had been exceeded. In contrast, the sectoral driving ban planned by the Province of Tyrol, which had become the subject of an action by the European Commission the previous year, had to be suspended in May pending the decision of the European Court of Justice.
In July, the European Commission admitted that the mileage-dependent toll system Austria had introduced on 1 January complied with the road pricing directive currently in force, but in two warnings criticised the level of the toll collected on four of the six special toll sections. Austria is in close contact with the European Commission in order to invalidate these reproaches.
In 2004, the Guidelines on the Trans-European Networks (TEN) were revised . The list of priority projects was extended from 14 to 30 projects, including six projects in Austria: four railway links (Salzburg-Vienna- Bratislava, Brno-Vienna, Sopron-Vienna and Prague-Linz), as well as the Brno-Vienna motorway and the upgrading of the Danube between Bratislava and Vienna. In April, the rate of EU funding for cross-border sections of European interest laid down in the TEN Financing Regulation was doubled from 10 per cent to 20 per cent. In July, the European Commission proposed a further increase by up to 50 per cent, particularly for the railway tunnels in the Alps and Pyrenees.
At the end of April, the Second Railway Package was adopted. It contains a regulation establishing a European Railway Agency and two directives on railway safety and the access to railway infrastructure, as well as a gradual extension to the whole railway network of the existing interoperability directives.
The Single European Sky project is intended to reduce airspace congestion. In March, a framework regulation, a regulation on the use of airspace, an interoperability regulation and a regulation on the provision of air navigation services were adopted. In addition, the decision was taken to pass a directive on the safety of third country aircraft using Community airports.
At the end of August, the agreement on the control of the Central European upper airspace (Central European Air Traffic Services – CEATS ), which is designed to ensure more efficient airspace control in Central Europe within the scope of EUROCONTROL and the Single European Sky, entered into force. CEATS was signed by Austria and seven other Central European
16 countries, and the future CEATS airspace control centre will be located at Vienna Airport.
In December, the Council authorised the European Commission to enter into negotiations with the countries of the Western Balkans and Morocco with a view to concluding new air traffic agreements on behalf of the Member States. The negotiations between the European Commission and the United States of America regarding a common airspace have already achieved first results, to which, however, the Council did not consent for lack of a more comprehensive outcome of the negotiations.
7. Environment
The EU’s environmental policy continues to focus on implementing the results of the World Summit on Sustainable Development, which now also involves the new EU Members. In doing so, priority is given to aspects of sustainable production and consumption patterns , particularly the decoupling of waste production from economic growth, eco-efficiency and integrated product policy.
The EU Member States have started to implement the emission trading directive by submitting their allocation plans to the European Commission for consideration. The EU also passed the “ linking directive “, which will link the EU scheme for trading in greenhouse gas emission certificates with the project- related mechanisms of the Kyoto Protocol. The efforts made by the EU contributed significantly to Russia’s ratification of the Protocol in November, so that the globally binding emission reduction system may now enter into force.
The phasing out of nuclear energy and the interim measure of raising the protection level for people and the environment are still objectives of Austrian nuclear policy within the EU. Austria therefore generally welcomed the package on nuclear safety in the EU proposed by Commissioner Loyola de Palacio, which aims primarily at common safety standards in the field of nuclear energy. These proposals have, however, been rejected for the time being, although the Conclusions of the Environmental Council of June and an action plan provide an opportunity to continue work on this issue.
8. Energy
The second liberalisation package in the fields of electricity and gas obliged the Member States to open up their electricity and gas markets to all non-
17 household customers by the middle of the year and for all customers by July 2007. Austria is the front-runner among the EU Member States as regards liberalisation of the energy market.
The establishment of an Energy Community of South East Europe (ECSEE ) in the context of the Stability Pact was of great relevance to Austria. At the third ECSEE ministerial conference in December it was decided that the secretariat would be headquartered in Vienna.
The planned Nabucco natural gas pipeline, which runs from Turkey through Bulgaria, Romania and Hungary to Austria, is to contribute to the long-term safeguarding and diversification of the energy supply.
The European Commission hosts the secretariat of the Johannesburg Renewable Energies Coalition (JREC ), which aims to firmly establish long- term quantitative goals to increase the proportion of renewable energies at international level. The JREC supported the International Conference for Renewable Energy by generating a database for global policies and measures for renewable energies and a proposal to set up a financing fund (Patient Capital Initiative).
The EU has formulated a number of targets to promote renewable energies. By 2010, the proportion of renewable energy in electricity production should amount to 21 per cent, and the share of renewable energy in total consumption to 12 per cent. So far, the EU has not made any progress towards accomplishing the goal of a 20 per cent share of renewable energies in total consumption by 2020, which was called for at the International Conference for Renewable Energy in Bonn in July.
The European Energy Charter , which aims to establish a legal framework for long-term cooperation and legal certainty in relation to investment, transit and trade, has not been ratified by Russia, which makes its ratification contingent on a positive conclusion of the Transit Protocol.
9. Education and Youth
The February Council on Education, Youth and Culture adopted a first interim report on the implementation status of the “work programme on the follow- up on the objectives of education and training systems by 2010” and defined three priorities: focusing reforms and investments on key areas, realising lifelong learning through national strategies and creating a Europe of education and training by means of a common framework for the recognition of qualifications and skills.
18 Under the Irish Presidency, the following documents were adopted inter alia : Resolution on Guidance throughout Life in Europe, Conclusions on Quality Assurance in Vocational Education and Training, and Conclusions on Common European Principles for the Identification and Validation of Non- Formal and Informal Learning. In addition, political agreement was reached on a decision on a uniform framework to promote the transparency of qualifications and competences (Europass; effective as of 1 January 2005).
In June, the European Commission submitted a proposal for a uniform programme promoting lifelong learning, which combines the current Socrates and Leonardo da Vinci programmes. The budget framework amounts to 13.6 billion euros for the seven programme years from 2007 to 2013.
The Councils on Education, Youth and Culture held on 27 and 28 May and on 15 and 16 November continued their work on the White Paper Process entitled “A New Impetus for European Youth”. With regard to cooperation in the field of youth policy, where the open method of coordination is applied, the Council decided on common objectives for the four priority issues of participation, information, voluntary activities and greater understanding and knowledge of youth. The youth ministers also discussed the new proposal for the “Youth in Action” programme for 2007 to 2013, which will succeed the “Youth” programme expiring in 2006.
10. Research
Increasing expenditure for research and development from 1.95 per cent of GDP in 2002 to 3 per cent by 2010 was defined as a primary goal with regard to the realisation of the Lisbon strategy .
Implementation of the 6th Framework Programme for Research and Technological Development (2002-2006) continued. As a consequence of the accession of ten new Member States, the Framework Programme budget was raised to 19.235 billion euros. In 2004, the European Commission approved some 2,000 projects with an overall volume of around 4.5 billion euros. The share of funds allocated to Austrian participants increased to approximately 2.3 per cent of the total funds made available for this purpose and is equivalent to Austria’s rate of contribution.
2004 marked the beginning of the preparations for the 7th Research Framework Programme , which is to be adopted in 2006 under the Austrian Presidency. After the Heads of State and Government had committed themselves to increasing the funds of the EU budget for research and innovation, the EU considered a massive increase in the budget resources for the framework programme. Intensive discussions were also held on the 19 establishment of a European Research Council to promote basic research. On 22 November, the Federal Government approved the Austrian position paper for the 7 th Framework Programme, which sets out the lines of negotiation Austria considers most important.
Within the ITER international fusion research project , the delicate negotiations with the partner countries USA, Japan, Russia, South Korea and China were continued.
For the benefit of small and medium-sized enterprises in Austria, the Federal Ministry for Foreign Affairs is actively participating in the EUREKA platform for market-oriented research. The regular conference of ministers took place in June under the French Presidency and focused on cooperation between EUREKA and the European Commission. One of the two industrial projects presented on this occasion was the result of a cooperation between Austrian and French partners in the field of three-dimensional, and in the future, four- dimensional, ultrasound diagnostics. The Netherlands took up Austria’s suggestion to ask Wim Kok, who is currently co-ordinating a report on the Lisbon strategy, to consider the EUREKA initiative in his work.
11. Establishment of an Area of Freedom, Security and Justice
The central activities in this field included the efforts to intensify the common asylum and migration policy and to integrate the fight against terrorism into the sphere of justice and home affairs.
In November, the European Council adopted the Hague Programme, which is the second five-year programme (2005-2009) following the Tampere Programme (October 1999). The programme pursues a number of political goals, including cross-border cooperation in criminal and civil matters, a more powerful common asylum and migration policy, combating illegal immigration and terrorism, and the implementation of the EU drug strategy. Progress will be evaluated on an annual basis.
In October, the legal basis for the EU Border Management Agency (FRONTEX) was adopted by way of a Council regulation. The Agency will be mainly responsible for coordinating operational cooperation between the Member States, supporting Member States in training national border guards, conducting risk analyses and following up on the latest developments in the fields of control and surveillance. The Agency is scheduled to commence its activities on 1 May 2005.
The European asylum and migration policy was strengthened through the adoption of the asylum qualifications directive and the asylum procedures 20 directive. These directives will ensure a minimum level of protection and procedural guarantees for asylum seekers and at the same time prevent asylum abuse. As of May, the co-decision procedure will be applied to asylum and migration issues. Exceptions include matters of legal migration and access to the labour market, which will still require a unanimous decision by the Council.
Significant progress was also made in the implementation of the Schengen Information System (SIS II), which is planned for 2007.
In November, the European Council approved the conclusions on a common readmission policy and access to durable solutions, which include aspects such as voluntary return, protection in the region and the resettlement of non- EU citizens. At the same time, the migration issue will be incorporated into the external relations of the Union. A European asylum agency is to be established by 2010. In December, the European Council consented to common basic principles for Member States’ policies on the integration of immigrants.
As a measure to combat international terrorism, in May the European Council entered into an agreement between the European Union and the USA on the processing of air passenger name record data and their transmission to the US Department of Homeland Security.
In the field of justice and home affairs, the regional partnership is being successfully implemented through the Salzburg Group by regular meetings of the Ministers of the Interior of Austria, the Czech Republic, Hungary, Poland, Slovakia and Slovenia, and by ongoing contacts at working level.
12. Combating Terrorism
Since the terrorist attacks in New York and Washington on 11 September 2001, and particularly in the wake of the Madrid bombings of 11 March 2004, the EU has been very active in the fight against terrorism. After 11 March, the EU intensified its cooperation in combating terrorism, in order to guarantee the greatest possible security for European citizens.
On 25 March, the European Council passed a declaration on the fight against terrorism. Among other things, the declaration contains statements on the application of the solidarity clause, the European Security Strategy, assistance to victims, increased border controls and travel document safety, guidelines for a common concept for combating terrorism, strategic goals for a revision of the EU action plan on combating terrorism, the joint access to intelligence information, the fight against terrorist financing, measures to protect the transport network and the population, cooperation with the USA and other 21 countries, and the establishment of the position of a high-ranking anti- terrorism co-ordinator.
The appointment of the high-ranking, cross-pillar anti-terrorism coordinator Gijs de Vries contributed significantly to the resolution of coordination problems. Strengthening the role of the Brussels-based Situation Centre (SITCEN) will make it possible to provide status reports on and analyses of terrorist threats within and outside the EU. For this purpose, close cooperation between SITCEN and EUROPOL is envisaged.
Cooperation with third countries was intensified, with severely affected priority countries being promised technical assistance from the EU. Furthermore, specific anti-terrorist clauses were increasingly included in agreements with third countries and action plans were agreed upon with partner countries. Now, these instruments have to be effectively implemented.
The revised Action Plan on Combating Terrorism adopted by the European Council in June represents a manifest improvement in this respect. It contains inter alia the introduction of early warning and civil protection systems, the development of new safety standards for the protection of critical infrastructure, the preparation of emergency plans and a solidarity programme, as well as the elaboration of a long-term strategy against the recruitment of terrorists. The extensive involvement of the anti-terrorism coordinator constitutes a remarkable development in this process. In September 2005, the peer evaluation of national anti-terrorist measures will be completed by all 25 Member States.
The Hague Programme , which was adopted by the European Council in November and which defines the objectives of the EU in the fields of justice and home affairs for the years 2005 to 2009, attaches major importance to combating terrorism. The programme emphasises that terrorism can be effectively combated while safeguarding fundamental rights only if the Member States do not restrict their activities to their own safety, but aim to ensure the safety of the Union as a whole. The programme underlines the importance of measures to combat terrorist financing, including new reporting obligations for financial transactions and more efficient freezing of assets.
Proposals are to be elaborated for improved safety measures for the storage and transport of explosives and for ensuring the traceability of industrial and chemical raw materials. Further plans include a more efficient exchange of information from judicial records and the protection and support of victims of terrorism. An agreement on data retention and the European Evidence Warrant is to be reached by the end of 2005.
22 Projects for capacity building in connection with fighting terrorism in third countries will require the provision of additional funds and expert knowledge.
IV. The European Union’s External Relations
1. The Common Foreign and Security Policy (CFSP)
1.1. General
The CFSP focused primarily on the continuation of the stabilisation process in the Western Balkans, the search for a peaceful solution to the Middle East conflict, the situations in Iraq and Iran, as well as in the new neighbouring countries of the EU and in the conflict zones of Africa. Thematic priorities included terrorism, disarmament, non-proliferation of weapons of mass destruction and mine clearance.
In recent years, the following trend has been observed: on the one hand, the commonly agreed (legally binding) Joint Actions and Common Positions of the EU cover more areas and have greater political implications; on the other hand, the economic and financial consequences of these legal instruments have become increasingly far-reaching.
The most important Joint Actions and Common Positions were adopted in the field of the European Security and Defence Policy (ESDP). Of central significance in this respect are the decisions to take over the EU military operation in Bosnia and Herzegovina (EUFOR-ALTHEA operation) and to establish a European Defence Agency. The EU police operations in Bosnia and Herzegovina (EUPM) and in Macedonia (EUPOL Proxima) were continued, an EU rule of law mission to Georgia (EUJUST THEMIS) was started and a Joint Action for launching an EU police operation in Kinshasa (Democratic Republic of the Congo) was adopted (see Chapter A.IV.1.2.1.). Other important measures included:
Arms embargos: As a result of recent political developments in that country, the arms embargo against Libya was lifted. Furthermore, the European Council declared in December that it would work towards lifting the EU arms embargo against China, while at the same time clarifying that this would not result in an increase in either the quantity or the quality of arms exports by EU Member States to China.
Travel restrictions: were newly imposed by the EU for certain groups of persons from Belarus, Moldova/Transnistria and the Western Balkan countries.
23 Freezing of accounts: In the EU the accounts of alleged war criminals wanted by the ICTY were frozen in October. The states of the Western Balkans associated themselves with this Common Position.
The implementation of strategic policy documents, such as the European Security Strategy and the Strategy against Weapons of Mass Destruction, both adopted by the European Council in December 2003, remained an important point of reference for a concerted approach within the CFSP in 2004. Joint activities for combating terrorism were advanced, including the adoption of a revised EU Plan of Action on Combating Terrorism and the appointment of an EU Counter-Terrorism Co-ordinator.
The European Union’s Special Representatives remained an important instrument employed within the framework of the CFSP. Their mandates for Afghanistan, Bosnia and Herzegovina, Macedonia, the Middle East peace process, the African Great Lakes Region and South Caucasus were all extended.
Throughout 2004, the monthly Conclusions adopted by the General Affairs and External Relations Council, as well as the joint demarches and declarations by the EU also continued to remain central political instruments.
The European Union’s CFSP budget amounts to 62 million euros for 2004 and 2005, respectively. The main budget items were civil operations for crisis management, followed by the budget for EU Special Representatives and disarmament.
1.2. The European Security and Defence Policy (ESDP)
Initiated in 1999 within the framework of the CFSP, the ESDP aims to provide the EU with the civilian and military capabilities required for international crisis management and the assumption of responsibilities as a global player for global security. During 2004 it made decisive progress in further developing these civilian and military capabilities. The European Union’s commitment in the military field covers the EUFOR-ALTHEA operation in Bosnia and Herzegovina. In the area of civilian crisis management the police missions in Bosnia and Herzegovina (EUPM) and Macedonia (EUPOL Proxima) were continued. In July, the first EU rule of law mission (EUJUST THEMIS) was launched in Georgia, and in December the decision was taken to establish the EUPOL “Kinshasa” police mission.
24 1.2.1. Ongoing and Planned Crisis Management Operations
The EU took over the international military presence in Bosnia and Herzegovina from NATO (SFOR) by launching EUFOR-ALTHEA on 2 December. This mission is of crucial importance to both the EU and the further development of the ESDP. Together with the EU Special Representative and the EUPM, EUFOR-ALTHEA is part of the EU’s comprehensive commitment to Bosnia and Herzegovina. The EUFOR-ALTHEA operation is carried out on the basis of the Berlin Plus agreements, availing itself of NATO resources and capabilities. Comprising 7,000 persons, it is the largest EU crisis management operation to date. Austria is participating in this operation with up to 300 persons, 150 of whom are deployed in the Northern Sector (Tuzla) for observation and liaison with the local authorities and to protect the headquarters in Tuzla. Together with Slovenian officers, a further 150 persons form part of the Integrated Police Unit (IPU), which is designed to maintain order, particularly in the event of political tension, and to support the local police. This practical commitment is a tangible demonstration of Austria's focus on security policy vis-à-vis the Balkans.
Since the start of its mission on 1 January 2003, the EUPM has been fulfilling its mandate to monitor, advise and inspect the police of Bosnia and Herzegovina and to assist the local police forces in their efforts to achieve European policing standards. The EUPM also supports institutions and measures to combat organised crime and the establishment of the State Investigation and Protection Agency (SIPA). The mission has a total strength of 490 police officers. Austria has seconded five police officers and the head of the political department to the mission headquarters.
The mandate of the EUPOL Proxima mission, launched on 15 December 2003, consists of building up an efficient and professional police service in Macedonia based on European policing standards. The operation will continue until 15 December 2005 and will concentrate on the three priority areas of law and order, the fight against organised crime and border monitoring. Austria has seconded three police officers to the mission, which comprises 163 persons in all.
EUJUST THEMIS , the first civilian ESDP mission in the field of the rule of law, was launched in Georgia on 16 July. The mission will support Georgian authorities in the national coordination of judiciary reforms and combating corruption. The mission will also assist in defining priorities for the reform of the criminal justice system. This relatively small mission comprises 13 international experts. Austria has not participated in EUJUST THEMIS to date.
The decision to launch EUPOL Kinshasa was taken with the aim of monitoring, mentoring and advising on the establishment and first operational
25 stage of the Integrated Police Unit in Kinshasa, and to ensure that the activities of the police forces trained with EU funds comply with the training standards. The mission will focus on decision-makers in the Integrated Police Unit in Kinshasa and on improving their management abilities. The EUPOL Kinshasa mission will have 29 staff members and is scheduled to last one year.
In October, the EU also carried out an exploratory mission to Iraq to examine possibilities for sending an integrated police, rule of law and civilian administration mission there. At the end of November, a team of experts was sent to Iraq to start initial planning for a possible integrated mission, which would be launched after the elections in January 2005.
In November, a further exploratory mission was sent to the Democratic Republic of the Congo to examine the various options for EU involvement in the process of security sector reform, including the integration of armed groups into the army and their training.
1.2.2. Development of Crisis Management Capabilities
The creation and development of military and civilian capabilities is essential for increasing the credibility of EU crisis management under the ESDP. Significant progress was achieved at the Military and Civilian Capabilities Commitment Conferences in November.
With the military Headline Goal 2010 , adopted by the European Council on 17 and 18 June, the development of capabilities for crisis management entered a new phase. The battle groups constitute an important component of the Headline Goal 2010 and the key element of rapid response (responsive crisis management capability). The aim of the concept is to establish battle groups – for the most part infantry – of 1,500 persons each, which could be deployed at short notice (i.e. within a period of five to 15 days). These would be called upon, particularly at the request of the UN, for EU crisis management operations, including those at the upper end of the Petersberg spectrum (therefore including peace-building measures). At the Military Capabilities Commitment Conference on 22 November, Member States announced their commitment to the implementation of the concept of battle groups. Austria took the policy decision to participate in this concept. The planned commitment will in all probability comprise about 200 members of the Austrian armed forces who will participate together with Czech armed forces in a battle group led by Germany.
The European Capabilities Action Plan (ECAP) was evaluated in the light of the new Headline Goal 2010 and the establishment of the Defence Agency and adapted to these new circumstances.
26 The European Defence Agency (intergovernmental agency for defence capability development, research, acquisition and armaments) provided for in the Treaty establishing a Constitution for Europe was established by a Council decision of 12 July independently of the possible entry into force of the Treaty. The Agency should be fully operational by 2005. Its budget and working programme for 2005 were approved by the European Council on 16 and 17 December.
The agreement on the establishment of a civilian-military cell , including a small EU Cell within NATO/SHAPE and a NATO liaison element within the EU, resulted in a considerable expansion of EU planning capabilities. The civilian-military cell, which will be established as part of the EU military staff, will comprise a department for strategic planning and a permanent nucleus for an EU Operations Centre. The permanent nucleus will ensure that, in the event of a crisis, an EU Operations Centre will be established within five days, unless a national operations centre or the mechanisms provided for in the Berlin Plus agreements are used. The civilian-military cell will be established as of 1 January 2005, while the EU Operations Centre should be fully operational from 1 January 2006.
Considerable progress was made in the development of the EU’s civilian capabilities through the adoption of the Action Plan for the Civilian Aspects of ESDP in June and the elaboration and adoption of a Civilian Headline Goal 2008. The Action Plan affirms the EU’s goals in the area of civilian crisis management and outlines measures to be carried out in the coming years with a view to developing civilian capabilities and permitting their deployment. Such measures include the qualitative and quantitative improvement of capabilities, the development of integrated crisis management packages (e.g. combination of police, rule of law and other elements) and the enhanced use of synergies created through crisis responses by the EC, ESDP and, bilaterally, by the Member States. The Action Plan also provides for improvements designed to shorten the preparation period for operations and to establish rapid procurement procedures.
A considerable strengthening of civilian capabilities was achieved at the Civilian Capabilities Commitment Conference on 22 November. Member States’ pledged commitments for police, the rule of law, civilian administration and civil protection exceeded the targets set by the European Council. Commitments comprised a total of 5,761 police officers, 631 legal experts, 562 experts in civilian administration and 4,968 experts and intervention teams in the area of civil protection. For the first time, Member States also made commitments relating to capabilities in new task areas such as the creation of a pool of experts to support the EU Special Representatives (including advisers on civilian administration, human rights and gender issues) and observation activities (including the return of refugees and human
27 rights). Austria pledged capabilities in all six areas, making a commitment for 135 experts and 23 civil protection teams.
The Civilian Headline Goal 2008 specifies the goals to be pursued by the EU in the next few years with regard to the civilian ESDP component and defines a four-step process for the development of civilian capabilities by 2008. This process ranges from the elaboration of scenarios and basic planning assumptions (Step 1) and the compilation of a list of civilian capability requirements (Step 2) to the identification of capability shortfalls by the end of 2005 (Step 3) and a follow-up process (periodic review of capabilities until 2008).
To improve the quality of civilian capabilities, the training concept of the pilot project “Training for Civilian Aspects of Crisis Management”, initiated by the European Commission in 2001, was further developed and a number of training courses were held. Within the European network of civilian crisis management training institutions, the Austrian Study Centre for Peace and Conflict Resolution (Österreichisches Studienzentrum für Frieden und Konfliktlösung, ÖSFK) in Stadtschlaining played a leading role and coordinated the individual training facilities of EU Member States in this area from 2002 to 2004.
1.2.3. Cooperation with International Organisations and Third Countries
The joint presence of NATO and the EU in Bosnia and Herzegovina and the use by the EU of NATO resources during the EUFOR-ALTHEA operation required close cooperation between the two organisations in preparation for the takeover of SFOR by EUFOR-Althea. Regular meetings based on the Berlin Plus agreements contributed to further facilitating a smooth handover in Bosnia and Herzegovina.
Cooperation between the UN Secretariat and the EU Council Secretariat led to increased direct contacts. A joint consultation mechanism was set up at working level to examine ways and means of improving mutual coordination and compatibility in the areas of planning, training, communication, and best practices.
Third countries actively participate in EUPM, EUFOR-ALTHEA and EUPOL Proxima. Furthermore, third countries will continue to be invited to participate in EU crisis management operations – as in the case of the planned EUPOL Kinshasa operation. In order to facilitate their future participation, framework agreements on participation in ESDP operations are currently being negotiated with a number of interested states.
28 1.2.4. ESDP and Africa
In the light of continued crises and the need for increased action by the EU on the African continent, an Action Plan was adopted which foresees ESDP support for peace and stability in Africa. The key element of this Action Plan is to strengthen the autonomous capabilities for peace-keeping and crisis management of the African Union (AU) and regional African organisations.
1.2.5. ESDP and the Fight against Terrorism
The conceptual framework for the ESDP dimension of the fight against terrorism was elaborated in the second half of the year and approved by the European Council in December. Among the specific measures outlined in the document are the further improvement of military and civilian capabilities and their interoperability, the exchange of military information, possibilities for the protection of citizens in third countries, support to third countries in combating terrorism and the development of a rapidly deployable defence capability.
2. The European Neighbourhood Policy (ENP)
As the European Council decided in June to include the three South Caucasian states in this policy, the ENP now includes 16 neighbouring countries of the enlarged Union: Algeria, Armenia, Azerbaijan, Belarus, Egypt, Georgia, Israel, Jordan, Lebanon, Libya, Moldova, Morocco, the Palestinian National Authority, Syria, Tunisia, and Ukraine.
Originally, the EU, in compliance with the Conclusions of the Copenhagen European Council of December 2002, also wanted to fully include Russia in this policy. However, since Russia did not respond to the submission of the EU draft for a comprehensive action plan, the specific form of cooperation agreed upon at the EU-Russia summit in St. Petersburg in May 2003 was reaffirmed. The EU and its key partner Russia would thus further develop their strategic partnership not within the framework of the ENP but by establishing Four Common Spaces: the Common Economic Space; the Common Space of Freedom, Security and Justice; the Common Space of External Security; and the Common Space of Research, Education and Culture (see Chapter A.IV.5.).
With its European Neighbourhood Policy, the EU aims to include the countries in a common zone of peace, security and prosperity. For this purpose, detailed Action Plans tailored to each individual country are being drawn up. According to these Action Plans, the countries should not only make full use of the potential of the respective Association and/or Partnership 29 and Cooperation Agreement but, provided they show the commitment required, also enter into an increasingly close relationship going beyond cooperation and including a considerable degree of economic and political integration, which might eventually lead to the conclusion of new agreements. The Action Plans, which are concluded for a period of three to five years, are negotiated by the European Commission, approved by the Council and then endorsed, implemented and evaluated by the respective Association/Cooperation Councils.
The priorities defined in the Action Plans include political dialogue and reform; trade, aspects of internal market policies; cooperation in the field of justice and home affairs; transport, energy, information society and environment, and personal contacts. Based on the evolution clause, these Action Plans can be adapted according to the progress made.
The Action Plans concluded with the first group of seven countries – Israel, Jordan, Moldova, Morocco, the Palestinian National Authority, Tunisia and Ukraine – were approved by the European Council in Brussels on 16 and 17 December.
Major incentives for the Action Plan for Ukraine were provided by the Hungarian-Austrian Paper on the Future Policy of the Union towards Ukraine, a joint contribution by the Austrian and Hungarian Ministries for Foreign Affairs, which was drawn up as early as 2003.
In addition, a new uniform European Neighbourhood and Partnership Instrument (ENPI) is planned as a basis for financing measures within the ENP and the strategic partnership in the period 2007-2013, replacing the Technical Assistance for the Commonwealth of Independent States (TACIS) and MEDA (financial and technical measures accompanying the reform of economic and social structures under the Euro-Mediterranean Partnership).
3. South East Europe / Western Balkans
3.1. Developments in the Individual States
3.1.1. Croatia
In December 2003 the new government led by Ivo Sanader was sworn in. It set itself five foreign policy priorities: membership of the EU (see Chapters A.I. and A.IV.3.2.), membership of NATO, promoting relations with the neighbouring countries; development of economic diplomacy, and improvement of Croatia’s image abroad.
30 Relations with Serbia and Montenegro have clearly improved. A visible sign of this improvement was the visit of Croatia's Prime Minister Ivo Sanader to Belgrade on 15 November. The Croatian government called on the Serbs who had been forced to leave the country to return to Croatia. However, efforts are still required to make housing available for the refugees and to guarantee their security. The suspension of the visa requirement for nationals of Serbia and Montenegro was also extended. Nevertheless, some issues relating to the drawing of the border with both Serbia and Montenegro and Slovenia have still to be resolved.
3.1.2. Serbia and Montenegro/Kosovo
Last year, the representatives of the State Union, which consists of the two republics of Serbia and Montenegro, were still unable to implement their foreign policy priorities. At the NATO summit in Istanbul in the early summer, the anticipated participation in the Partnership for Peace did not come about because of inadequate cooperation with the ICTY. This lack of cooperation threatens to become another stumbling block on the path towards European structures. For internal policy reasons, the Serbian government has so far taken no steps to arrest accused suspects. Not surprisingly, this attitude resulted in highly critical statements by the Chief Prosecutor of the ICTY, Carla del Ponte.
There was also disagreement between the Serbian and the Montenegrin governments on the modalities for the elections to the Parliament of the Union scheduled for February 2005. The former is in favour of direct elections in accordance with the Constitution of the Union, while the latter strongly opposes such elections.
On 28 December 2003, Serbia held parliamentary elections in which the extreme right-wing Serbian Radical Party (SRS) was the strongest party with 27 per cent of the votes. Subsequently, Prime Minister Vojislav Koštunica, chairman of the national conservative Democratic Party of Serbia (DSS), Deputy Prime Minister Miroljub Labus, chairman of the economic liberal party G17 Plus, and Vuk Draškovi ć/Velimir Ili ć, chairmen of the alliance of the Serbian Renewal Movement/New Serbia (SPO/NS) agreed to form a coalition government. This minority government is dependent on the support of Slobodan Miloševi ć’s Socialist Party of Serbia (SPS). The opposition parties to the coalition are the SRS and Boris Tadi ć’s Democratic Party (DS). The DS did not participate in the government because of differences between the DS and the DSS.
On 29 April, in response to the unrest in Kosovo in March, the Serbian Parliament unanimously adopted a government plan demanding a high degree of autonomy for the Serb population of Kosovo.
31
After one and a half years and three invalid ballots, Serbia’s President was finally elected at the end of June. In the run-off election of 27 June between the reform candidate Boris Tadi ć (DS) and the SRS candidate Tomislav Nikoli ć, the former achieved a clear victory with 53.24 per cent of the votes. Subsequently, Tadi ć and Prime Minister Koštunica cooperated closely for a short period, but came into conflict in October over the participation of Kosovo Serbs in the parliamentary elections in Kosovo. Referring to the unsatisfactory security situation, Koštunica was against Serb participation and recommended an election boycott. Tadi ć, on the other hand, called for participation in the election. Further differences – also within the government – were caused by Koštunica’s lack of cooperation with the ICTY. Against this background, new early elections in 2005 cannot be ruled out.
In Montenegro , the opposition’s parliamentary boycott launched in May 2003 was abandoned at the end of October by two of the four opposition parties. Two smaller parties continued their boycott. Ultimately, it was only the opposition that was harmed by the boycott and all attempts at forcing early parliamentary elections failed.
In August, Prime Minister Milo Djukanovi ć surprisingly suggested that negotiations be entered into with Serbia regarding the separation of the two republics based on the “Czechoslovakian model”. As expected, this suggestion was rejected by the Serbian side. So far, the Montenegrin Constitution has not been adapted to the constitutional charter of the Union. The government, which has up to now remained stable on account of the opposition’s weakness and disagreement, is increasingly facing economic and social problems. Another sign of the tensions existing within the coalition is the parliamentary resolution passed in November by the opposition and the small coalition partner, the Social Democratic Party (SDP), to preserve the Tara Gorge as a nature reserve instead of building a dam. This area is recognised as a world natural and cultural heritage by the UN Educational, Scientific and Cultural Organisation (UNESCO). In July, the decision of the Montenegrin Minister of Education to have the name of the school subject “Serbian language” replaced by “mother tongue” led to massive protests.
In Kosovo , the implementation of the eight Standards for Kosovo introduced at the end of 2003 – including democratisation, human rights, minority rights and the return of refugees – is an important prerequisite for discussion of its future status. A general evaluation of the implementation of these standards is scheduled for mid-2005. A positive evaluation should lead to a subsequent discussion on Kosovo's status.
The heavy clashes of 17 to 19 March, which resulted in 21 dead, about 900 injured, the destruction of around 600 houses and dozens of churches and
32 monasteries, as well as the displacement of over 4,000 Kosovo Serbs, constituted an unexpected and heavy setback for the international community’s policy and for the Kosovan institutions. Harri Holkeri, the UN Secretary-General’s Special Representative, had come under political pressure and ultimately resigned for health reasons in May. After the clashes, the EU High Representative Javier Solana sent a personal representative, Fernando Gentilini, and the Austrian Jan Kickert to Kosovo. In the meantime, the EU presence has been supplemented by an office of the European Commission. On 15 August, the Dane Søren Jessen-Petersen succeeded Holkeri as Special Representative in Kosovo.
Following the unrest in March, deliberations on possible approaches to a resolution of the Kosovo issue were launched. Within the Regional Partnership countries Austria contributed substantially to the elaboration of a strategy paper which was well received by the EU Partners and in the region. From 14 to 16 July, the Federal Ministry for Foreign Affairs also organised a seminar on decentralisation models in Dürnstein, Lower Austria, which was attended by representatives of the Serbian and Kosovo Albanian parties, as well as international experts. At a meeting of the Contact Group in Vienna on 27 and 28 September, there was a first rapprochement between the two parties with respect to the positions held on decentralisation.
On 23 October, parliamentary elections were held in Kosovo, which were overshadowed by an almost full boycott by the Kosovo Serbs. Ibrahim Rugova of the Democratic League of Kosovo unexpectedly formed a coalition with ex- UCK commander Ramush Haradinaj (Alliance for the Future of Kosovo), who may face indictment by the ICTY, and with other smaller parties (Christian Democrats, minorities). On 3 December, Parliament elected the new ministers, Haradinaj as Prime Minister and Rugova again as President.
3.1.3. Bosnia and Herzegovina
The rapprochement of Bosnia and Herzegovina with the EU and NATO (PfP Programme) has so far failed because of lack of cooperation by Republika Srpska with the ICTY. Chief Prosecutor Carla del Ponte expressed strong criticism, particularly at the fact that Republika Srpska has not arrested and extradited a single indictee. In a response, the High Representative of the international community and EU Special Representative Paddy Ashdown started to launch measures in June and December, including the dismissal of public officials and politicians from Republika Srpska, which in December led to the resignation of Prime Minister Dragan Mikerevi ć. This subsequently resulted in a government crisis, which spread to the entire state following the resignation of the Foreign Minister of Bosnia and Herzegovina.
33 In October, the Srebrenica Commission completed its work with a report in which Republika Srpska for the first time confessed responsibility for the Srebrenica massacre, acknowledging the around 7,000 to 8,000 civilian victims.
Further progress was made in the implementation of a feasibility study for a Stabilisation and Association Agreement, and reforms at the state level as a whole were continued. In March, the first Defence Minister to be responsible for the entire state was sworn in. A new value-added tax law with a uniform tax rate has, however, not yet been adopted. The municipal elections in October were the first elections to be organised by the Bosnian authorities themselves. December saw the transition from the UN-mandated, NATO-led SFOR to the EU-led EUFOR-ALTHEA (see Chapter A.IV.1.2.1.).
3.1.4. Albania
Headed by Fatos Nano of the Albanian Socialist Party (PSSH), the government now has only a small majority left in Parliament after a group of MPs led by former Prime Minister Ilir Meta left to form a new party, the Socialist Movement for Integration (LSI). The reform of the election system, which is necessary for the parliamentary elections scheduled for 2005, has come to a halt, despite the urgency which is recognised by all parties and the efforts of the OSCE presence. The voter lists have not been updated either. Because of the slow progress of reforms, the negotiations on a Stabilisation and Association Agreement with the EU were also delayed (see Chapter A.IV.3.2.).
In its efforts to achieve stability in the region the country continued to play a balancing role. This was illustrated particularly by the balanced attitude of the government during the unrest in Kosovo in March. The Albanian government also largely supported the position of the international community vis-à-vis Macedonia.
3.1.5. Macedonia
After the tragic death of the Macedonian President Boris Trajkovski in a plane crash in Bosnia and Herzegovina in February, the presidential election was brought forward from autumn to April. After two ballots, Branko Crvenkovski of the Social Democratic Alliance of Macedonia (SDSM), who had been Prime Minister up to that time, was elected new President. He was succeeded as Prime Minister by the non-affiliated Hari Kostov, who resigned in November. Finally, the new government, headed by Vlado Bu čkovski, took office on 17 December.
The implementation of the Ohrid Framework Agreement , which terminated the armed conflicts between the ethnic groups in August 2001, still remained a central issue and a prerequisite for the rapprochement of Macedonia with the
34 EU (see Chapter A.IV.3.2.). The core of the Agreement is the fair representation of the ethnic Albanian minority among public officials and the decentralisation of the state. Regarding the latter, a set of laws regulating the redrawing of local community borders in implementation of the Agreement was adopted by a small majority in August. As a consequence, the number of local communities decreased from 123 to 84 (and subsequently to 80). This meant that the proportion of ethnic minorities exceeded 20 per cent in about one third of the local communities, so that a second official language (generally Albanian) had to be introduced. After these laws had been adopted, the ethnic Macedonian opposition, with the help of the non-governmental organisation (NGO) World Macedonian Congress, succeeded in collecting the necessary number of signatures to initiate a referendum against this set of laws. However, the referendum failed, because of the low voter turnout. The abstention by the majority of ethnic Macedonians was also seen as an expression of their acceptance of the Ohrid Framework Agreement. The implementation process, which had been slow from the outset, was further delayed by this referendum, but did not come to a complete halt. The municipal elections, which had originally been scheduled for 2004, were postponed until March 2005.
Macedonia’s foreign policy priorities include rapprochement with the EU and NATO and improving relations with neighbouring countries that are currently clouded by disputes (state name, drawing of borders). The security situation is still unstable, as reflected by the presence of an armed group of ethnic Albanians for several months (October to December) in Kondovo near Skopje.
3.2. The European Union Perspective of the Western Balkan States
The Austrian position on the shaping of the EU’s relations with the countries of the Western Balkans remains focused on systematically contributing to the gradual realisation of the EU perspective for all the countries in the region that have enjoyed the status of potential accession candidates since 2000. Within the European Commission, this perspective was reaffirmed both symbolically and in concrete terms by assigning responsibility for these countries to the new Commissioner for Enlargement’s area of competence.
The EU strategy affirmed and developed at the Western Balkans Summit in June 2003 of providing comprehensive support to the Western Balkan countries in their rapprochement with the Union (see Foreign Policy Yearbook 2003, p. 49, for the “Thessaloniki Agenda”), was further pursued and implemented within the Stabilisation and Association Process (SAP). The principle of matching the pace of rapprochement with the reform progress in the individual countries is clearly evident in this process.
35 Croatia: The ratification procedure for the Stabilisation and Association Agreement (SAA) with the EU and its Member States was completed after considerable delays by individual Member States. The SAA is scheduled to enter into force in February 2005 (see Chapter A.I. for Croatia's EU accession process).
In March, Macedonia submitted an application for accession to the EU. The SAA entered into force on 1 April, so Macedonia is the first country in the region to have such comprehensive contractual relations with the EU.
The SAA negotiations with Albania that started in early 2003 were continued.
In Bosnia and Herzegovina , the focus was on the creation of stable conditions for starting the promising SAA negotiations, involving, in particular, cooperation with the ICTY, the creation of a common market within Bosnia and Herzegovina, and administrative and judicial reform.
After years of stagnation in its relations with Serbia and Montenegro , the EU launched an initiative in response to the unsatisfactory functioning of the State Union and hence to the futility of conducting negotiations on a SAA solely at the level of the State Union. The EU approved a concept – still to be elaborated in detail – under which essential components of a SAA (particularly regarding trade issues) would be subject to separate negotiations with Serbia on the one hand and Montenegro on the other (twin-track approach).
The Community Assistance for Reconstruction, Development and Stabilisation (CARDS) is a comprehensive EU external aid programme for the Western Balkans that includes various projects (e.g. infrastructure, education, environment and institution building) to assist the states in their rapprochement with the EU. The funds available for the period 2000 to 2006 total 4.65 billion euros (in 2004, their value amounted to 547.5 million euros). Here, too, an important role is played by regional cooperation; a CARDS regional project in the field of justice that was launched in May will be implemented over the next three years under the leadership of the Austrian Ministry of Justice. Within the CARDS Twinning Programme, the administrative partnerships between EU Member States and SAP countries (see Chapter A.I.), Austria is involved in two projects in Croatia devoted to integrated border management. In 2004, a project lasting several years for improving the prison system was successfully completed in Albania.
Complementing SAP, the Stability Pact for South Eastern Europe , which is headed by Special Coordinator and former Austrian Vice-Chancellor Erhard Busek, has launched numerous initiatives designed to promote rapprochement with the EU and to improve cooperation within the region itself. An interim review of the Pact’s successful activities was conducted at a
36 meeting to mark its fifth anniversary in Portorož (Slovenia) on 8 June. In her address Federal Minister Benita Ferrero-Waldner emphasised the significance of the Stability Pact as a consistent provider of ideas to revive the neighbourhood policy in the region under the new circumstances.
Austria also played an instrumental role in a number of Stability Pact initiatives and made financial contributions. In July, the working group for improving the investment climate in the region (“Investment Compact”), which is co-chaired by Austria, organised a ministerial conference in Vienna headed by Federal Minister Martin Bartenstein. The director of the Zagreb- based Regional Arms Control Verification and Implementation Assistance Centre (RACVIAC), which aims to implement arms control and verification in South East Europe, is Austrian.
In the energy sector, Austria continued its efforts to build a common regional energy market for gas and electricity in South East Europe, which goes back to an initiative launched by the Stability Pact and is now being set up with the active support of the European Commission. At the annual meeting of the Ministerial Council of the ECSEE, held in Athens on 14 December, Vienna was chosen as the seat of the ECSEE Secretariat.
Further priorities in the work of the Stability Pact include the fight against organised crime, in particular trafficking in human beings, education and youth (these initiatives are chaired by Austrians), the reintegration of refugees, migration, education and social affairs.
4. The Eastern European States
4.1. Ukraine, Moldova, Belarus
4.1.1. Ukraine
Relations between the EU and Ukraine were dominated by three events: the joint elaboration of the ENP Action Plan, (see Chapter A.IV.2.), the EU-Ukraine Summit in The Hague on 8 July, and the presidential elections, in which Austria was represented by observers in all three ballots.
At the EU-Ukraine summit, fundamental agreement was reached on the ENP Action Plan; agreement was also reached on Ukraine’s participation in EUPOL Proxima in the Republic of Macedonia and on intensified cooperation in the fields of science and technology. The EU reaffirmed its support of Ukraine’s accession to the World Trade Organization (WTO), but called for progress with respect to the country’s market economy status. At the same
37 time, the good cooperation in the field of justice and home affairs was emphasised.
Even before the presidential elections, the EU stressed the decisive significance of free and fair elections for the further intensification of bilateral relations. After the election observation mission of the OSCE Office for Democratic Institutions and Human Rights (ODIHR) had discovered blatant violations both in the first ballot on 31 October and, particularly in the run-off election on 21 November, the EU refused to acknowledge the officially announced election result as legitimate. The run-off ballot was followed by a serious internal crisis. The opposition refused to acknowledge the election result, which subsequently resulted in demonstrations. In this extremely critical situation the EU appealed to both camps to refrain from violence and to seek an amicable solution through dialogue within the framework of the Ukrainian legal system. Following the decision of the Supreme Court of 3 December, which annulled the result of the run-off ballot, the Ukrainian Parliament reached a political solution in the form of a combined constitutional and election law reform on 8 December, paving the way for a repetition of the run- off ballot on 26 December, which was won by the opposition candidate Viktor Yushchenko, who obtained 52 per cent of the valid votes cast. In this crisis, the EU showed its resolute commitment thus contributing decisively to opening up the prospects for establishing true democracy in Ukraine and introducing fundamental reforms with regard to the rule of law, and to economic and social policies.
4.1.2. Moldova
The European Commission and Moldova elaborated an Action Plan in line with the ENP framework, the implementation of which is scheduled to start in February 2005 (see Chapter A.IV.2.).
The EU gained visibility and profile through its visits which were more frequent than in previous years, and repeated statements criticising the separatist regime in Transnistria, in the eastern part of the country. The dialogue between the EU and the Moldovan authorities was intensified. On account of the stronger presence of the EU in the media and in politics, interest in the EU has been aroused above all among the urban population.
On 1 June, President Vladimir Voronin presented a draft Stability and Security Pact, in which the designated signatories Ukraine, Russia, USA, Romania and the EU were to give long-term guarantees for Moldova. In subsequent comments, the EU and the USA noted that a number of elements in the draft were useful and worthy of further consideration. On the margins of the OSCE meeting of Foreign Ministers in Sofia on 6 to 7 December, a compromise was proposed. This envisaged the signing of a Declaration on the Stability and
38 Security for the Republic of Moldova, in accordance with which the five-sided format (the two Moldovan parties plus the three mediators Russia, Ukraine and the OSCE) was to be extended by a body providing new ideas, consisting of the EU, the USA and Romania. However, this option failed because of Russia’s refusal to agree.
So far no satisfactory solution has been found regarding the surveillance of the still highly permeable Transnistrian section of the Moldovan-Ukrainian border, which is the reason why the Republic of Moldova is deprived of a major share of its customs revenues. In mid-October trilateral talks were held between Moldova, Ukraine and the European Commission, at which the European Commission offered financial and technical assistance for joint customs surveillance. However, no progress at all has been made with respect to the 40,000 tonnes of ammunition stored under appalling circumstances in Transnistria. Since June 2003 Transnistria has made further removal more difficult. The OSCE Ministerial Conferences, held in Maastricht in December 2003 and in Sofia in December 2004, also failed to agree on another deadline. By the end of May, about 50 per cent of the war materials had been removed.
4.1.3. Belarus
The EU’s relations with Belarus, which have been limited since 1997, further deteriorated in the course of 2004 owing to the authoritarian and undemocratic leadership style of President Alexander Lukashenko. In the parliamentary elections of 17 October only strict followers of the President or representatives of political parties that form a “constructive opposition” were elected to Parliament. The parliamentary elections coincided with a referendum on a change to the constitution which gives the President an unlimited number of further terms of office, thus securing his power in the long run. With a turnout of 89.8 per cent of eligible voters, 77.3 per cent approved the constitutional change in the referendum.
The ODIHR election observation mission stated that neither the parliamentary elections nor the referendum had complied with OSCE commitments for the conduct of democratic elections. The EU shared this criticism and declared that it would continue to support any remaining democratic forces. At the same time it reaffirmed that there would be room for a democratic Belarus in the European community of states. The EU would like to intensify relations with the country as soon as the Belarus authorities clearly demonstrate their willingness to respect democratic values and principles of the rule of law.
On account of reprisals against civil society and the opposition, on 24 September the EU decided to impose an entry and transit ban on individuals responsible for the disappearance of members of the opposition or persons who hindered the prosecution of such individuals. In its declaration of 14
39 May, the EU had already announced measures to be taken in the event that the Belarussian authorities remained inactive. Against this background, on 5 August the EU adopted a declaration stating that the presence at the Olympic Games in Athens of the Minister of Sports, who had been Minister of the Interior at the time members of the opposition disappeared, was “completely inappropriate”. As a result, the Minister refrained from attending the Olympic Games. In mid-December, travel restrictions were extended to persons who had been responsible for irregularities during the elections and the referendum and for measures taken against peaceful demonstrators.
4.2. South Caucasus
The developments in the three South Caucasian states Armenia, Azerbaijan and Georgia and their relations with the EU were closely related to the “Georgian Rose Revolution”, which had led to the resignation of the President of Georgia , Eduard Shevardnadze, on 23 November 2003, and the subsequent election of Mikhail Saakashvili, who became President on 4 January with 96 per cent of the votes. In addition to the general integration into the Euro- Atlantic structures, the Georgian leadership sees rapprochement to the EU as a priority goal of its foreign policy. The establishment of a Ministry for Europe and the presence of Brian Cowen, Chairman of the EU Council, at Saakashvili’s inauguration on 26 January are an expression of this policy. In its Conclusions on Georgia, the EU expressed its willingness to continue its support of the reform process and called upon Georgia to carry out the parliamentary elections scheduled for 28 March in accordance with the recommendations of the international election observation mission. It was noted that progress had been achieved in carrying out both the presidential and the parliamentary elections, where only two parties managed to get into Parliament. At the same time, requests for improvement were also issued. On 16 June, an EU donor conference for Georgia took place in Brussels. At Georgia’s request, EUJUST THEMIS was established in Tbilisi, which, within one year and starting in summer, will create the basic structure for networking the Georgian administration within the area of the rule of law (see Chapter A.IV.1.2.1.).
The Adzharia crisis, which led to the resignation of the “President” of Adzharia, Aslan Abashidze, was resolved in the interests of Georgia’s central government. In addition to mediation activities by the Council of Europe (CoE), Russia and the USA, the EU had sent Heikki Talvitie, EU Special Representative for South Caucasus, as mediator and called for a peaceful settlement of the crisis. In August, the South Ossetia crisis, on the other hand, was on the brink of an armed conflict. The EU promised further support for the Georgian reform process and called for a peaceful resolution of the crisis and the withdrawal of the Georgian troops that had advanced into the conflict area.
40
With regard to Azerbaijan , the EU issued a statement on 9 January on the question of political prisoners, in which it welcomed the release of 160 prisoners but at the same time expressed its concern about the fate of those arrested in the wake of the mass demonstrations of 16 October 2003. At the initiative of the European Commission, a high-level conference on promoting cooperation in the fields of energy and transport between the EU and the Caspian Sea countries, including the neighbouring states, was held in Baku from 12 to 14 November.
Armenia asked the EU to make Turkey’s ultimate accession to the EU also contingent on Turkey’s acknowledgement – demanded by Armenia – of the genocide perpetrated by the Ottoman Empire against Armenians.
The increased significance of South Caucasus for the EU (see Chapter A.IV.2. for inclusion of these states in the ENP) was illustrated both by the high degree of political commitment shown by the new EU Member States, in particular the Baltic states, in the region, and by the greater frequency of mutual visits. Commissioner Janez Potocnik visited all three states from 5 to 8 July, and Romano Prodi, the first President of the Commission to visit Armenia, stayed there from 16 to 19 September. High Representative Javier Solana received the Foreign Ministers of Armenia and Georgia on the margins of a meeting of the Euro-Atlantic Partnership Council (EAPC) held in Brussels on 9 December. A Troika meeting with the three Foreign Ministers was held in Brussels on 13 September within the framework of the annual cooperation councils prepared by the cooperation committees. Special Representative Talvitie visited the region regularly, not only to express the increased interest of the EU in South Caucasus but also to sound out possible EU support for reform processes and the resolution of conflicts. Likewise, meetings of the Parliamentarian Cooperation Committees were convened at which all three states were represented.
The implementation of the TACIS Programme for the modernisation of the customs administration, headed by the Austrian Georg Miller, was continued in Georgia. The Association of Austrian Non-military alternative servants (Plattform Zivildienst) continued to elaborate a non-military alternative labour service programme for Georgia. The University of Natural Resources and Applied Life Sciences conducted two TACIS-TEMPUS projects with Georgia. Two Austrians are working at the EU-TACIS representation in Yerevan.
41 5. Russia
At the presidential elections held on 14 March, Vladimir Putin was re-elected for a further four years, gaining 71 per cent of the valid votes cast. The international election observation mission of the ODIHR and the Parliamentary Assembly of the CoE (where Austrians also acted as observers) and the EU criticised the one-sided reporting in favour of the incumbent by the state-controlled electronic media and the lack of political debate among the six candidates.
In his second term of office President Putin is relying to an increasing extent on the security services. He continues to control a large part of the media and to increase the influence of the state in key strategic areas of the Russian economy. After a series of terrorist acts in the late summer – the highest toll in terms of human casualties was paid when hostages were taken in Beslan, North Ossetia – laws were passed on Putin’s initiative “to consolidate the unity of the state”, which further extend the President’s rights to take drastic action.
The liberal economic reforms lost momentum after the presidential elections in March. Even though new tax laws favouring industry were passed, the efforts to destroy the gas and electricity monopolies had come to a halt and the state influence on the economy increased. The developments in connection with the Yukos oil company dented the trust investors had put in the Russian economy.
Moscow’s policy towards Chechnya was characterised by setbacks. Akhmed Kadyrov, who had been elected President of Chechnya with the support of the Kremlin in October 2003, died on 9 May in a bomb attack. In the second half of the year terrorist activities spread to other republics of North Caucasus (Dagestan, Ingushetia, North Ossetia, Kabardino-Balkaria). Despite the danger of a conflagration in North Caucasus, the Kremlin still rejects dialogue with Chechnyan opposition politicians.
Russia’s foreign policy focuses on Eurasia. Fostering relations with CIS partners is of the utmost priority. The closest relations were between Russia, Belarus, Ukraine and Kazakhstan, and in September 2003 this group of four agreed on the creation of a common economic area. However, attempts to put this plan into action have not yielded any result so far.
The EU is Russia’s most important trading partner. Following the EU enlargement on 1 May, more than 60 per cent of all Russian exports now go to the EU (three quarters of them are accounted for by oil and gas). In the course of the year, in demarches and declarations, the EU commented on various aspects of Russia’s domestic and foreign policy, in particular in connection 42 with the events in the Caucasian region and their ramifications. The EU raised the issue of the status of human rights in Chechnya and expressed criticism at bilateral meetings and before international bodies.
At their summit in May 2003, the EU and Russia decided to further develop their relations by creating Four Common Spaces (see Chapter A.IV.2). At the summit in The Hague in November 2004 road maps should have been agreed for the design of the four spaces. While far-reaching agreement was reached before the summit on the road maps for the Common Economic Space and the Common Space for Research, Education and Culture, fundamental differences remained in the areas of internal and external security. Notwithstanding these differences, 2004 saw important steps towards the further development of the strategic partnership between the EU and Russia. In a protocol, the EU gave its consent to the planned accession of Russia to the WTO. In good time before the Hague summit, Russia ratified the Kyoto Protocol and the Protocol on the expansion of the EU-Russia Partnership and Cooperation Agreement to include the new EU members.
6. The Middle East, North Africa and the Mediterranean
6.1. General Developments
During the entire year, the situation in the Middle East and the North African region was dominated by the grave crisis in connection with Iraq and the continuing conflict between Israel and its Arab neighbours.
In Iraq the security situation remained extremely precarious. The almost daily terrorist attacks and the military response to them hindered reconstruction of the shattered infrastructure. Kidnappings and the taking of foreign and Iraqi hostages, be it for blackmail or for political reasons (withdrawal of foreign armed forces) constituted a new security issue. Following difficult negotiations between religious and ethnic groups, agreement on an interim constitution was reached, and on 29 June an interim government took over sovereignty. Debt relief of 80 per cent was agreed by the members of the Paris Club. On 23 November, an international conference took place in Sharm-El-Sheikh, which confirmed the election date of 30 January 2005 and reiterated the principle of non-interference in internal Iraqi affairs.
The wave of terrorist acts perpetrated by Islamic forces in Saudi Arabia since mid-May 2003 persisted in 2004. The series of national dialogue forums launched at the end of December 2003 continued in June with a forum on the status of women and in December with topics relating to young people. Voter registration for the local community elections scheduled for spring 2005 started in December. 43
The ruling houses in Kuwait, Bahrain and Qatar are striving to open up their political systems, and internal policy reform measures have been introduced in recent years. While the reform process stagnated in Kuwait – which had spearheaded democratic efforts in the Gulf Region – as a result of the strained relations between Parliament and government, the positive democratic developments continued in Bahrain and Qatar. The sovereignty and integrity of these three states is guaranteed by the USA, which made them important cornerstones of its military strategy in the region.
Internal affairs in the United Arab Emirates were dominated by the death of the President and founder of the United Arab Emirates, Sheikh Zayed bin Sultan Al Nahyan, who had headed the Federation since 1971. Sheikh Zayed was an integration role model who united the country behind him and had been responsible – thanks to oil and gas revenues – for the dynamic development of the United Arab Emirates within a single generation. Former Crown Prince Sheikh Khalifa bin Zayed Al Nahyan was elected his successor by the Supreme Council composed of the rulers of the seven emirates. The sharp increase in oil prices will bring the United Arab Emirates considerably higher revenues. The United Arab Emirates are working successfully on a good neighbourhood policy and pan-Arabic solidarity. In 2005, the rotating chair of the Gulf Cooperation Council (GCC) was to be taken over by the United Arab Emirates, but, for technical reasons, was handed over to Bahrain.
Oman has always sought good relations with its neighbours in the region (its partners in the GCC, Yemen and Iran) and with the states of the Indian subcontinent. Despite criticizing the situation in Iraq, it officially recognised the Iraqi Governing Council in August 2003. Omani-Iranian relations were characterised by an active exchange of visits at all levels, including the religious one. In autumn, the Iranian President Mohammad Khatami paid a state visit to Oman. Oman is interested in concluding a free trade agreement with the EU and in attracting investments from the EU region.
In Iran , parliamentary elections were held in February. The disqualification of many reform-oriented candidates led to a heavy shift in the political power structure in favour of the Conservatives, who now enjoy a two thirds majority in Parliament. As a result, the reform-oriented government led by President Mohammad Khatami is left with hardly any room for manoeuvre. In 2004, Iran’s foreign policy was dominated by the controversy over its nuclear programme. The agreement reached with Iran on 15 November in the wake of negotiations with France, Germany and the United Kingdom – and supported by the High Representative – on nuclear questions and future cooperation was welcomed by the European Council. Maintaining the full moratorium on all enrichment and recycling activities is vital to the continuation of the entire process.
44
Morocco continued its economic and social reform efforts. In February, Parliament passed the family law reform, which is the legal basis for the high degree of equality between men and women. King Mohammed VI set up a special commission to deal with the compensation claims of victims of state despotism prior to 1999. In the field of foreign policy, Morocco continues its rapprochement to the EU, and an Action Plan was agreed in December within the framework of the ENP (see Chapter A.IV.2.). South-South cooperation was further developed, and a free trade agreement was signed with the USA in June. Morocco also reaffirmed its position as a moderate and conciliatory Islamic state within the Forum for the Future (G8 states bordering the Mediterranean Sea) at the First Ministerial Conference which took place in Rabat on 11 December. Relations with Spain improved in the course of the year, but the relationship with Algeria remained clouded. The borders between the two states continued to be closed, and a resolution of the West Sahara conflict is not currently foreseeable.
Since 1999, President Abdelaziz Bouteflika has been working towards the full international re-integration of Algeria , which had been ostracised for many years because of radical Islamic terrorism. Algeria’s foreign policy focused on combating international terrorism, its relations with EU Member States, in particular the countries bordering the Mediterranean Sea, the African continent and inter-Maghreb relations. In 2002, Algeria signed an Association Agreement with the EU. Accession to the WTO is planned. On 8 April, President Bouteflika was re-elected by a large majority for a second five-year term. The process of internal stabilisation, which started with the 1999 Amnesty Act (Concorde civile), is progressing, and the general security situation has been improving, even if the state of emergency imposed in 1992 remained in force because of recurrent terrorist activities. In spite of investments, restructuring measures in the public sector and the promotion of the private economy, economic and social development failed to meet general expectations.
Tunisia ’s foreign policy focused on its relations with Western states, particularly the EU, and with its neighbouring Arab states. A further priority was the fight against international terrorism. The developments in Iraq and the Middle East also represented a key focus of the country’s foreign policy. As in the past, the elections held on 24 October were clearly won by the incumbent President Ben Ali and his Constitutional Democratic Rally Party (RCD). In May, Tunis was the venue of the 16 th Summit of the Arab League Council. The favourable economic development continued, especially with regard to foreign trade with EU Member States, and progress was made in the preparations for a programme under the EU New Neighbourhood Policy (see Chapter A.IV.2.).
45 Following its declaration in December 2003 to renounce weapons of mass destruction, Libya ratified the Comprehensive Test Ban Treaty (CTBT) on 6 January and signed the Additional Protocol to the Treaty on the Non- Proliferation of Nuclear Weapons (NPT) on 10 March. On 5 February, the Chemical Weapons Convention (CWC) entered into force for Libya. Weapons of mass destruction and weapon-grade armaments goods were thus subject to disarmament under international surveillance. In February, the USA and Libya resumed diplomatic relations, and most of the US sanctions were lifted. In October, the EU also decided to lift its remaining sanctions against Libya. The political and economic opening led to a renewed invitation to Libya to participate in the Barcelona Process by taking over the acquis communautaire (existing community law).
In May, a Palestinian doctor and five Bulgarian nurses were sentenced to death after being accused of having deliberately infected 400 Libyan children with AIDS. The international community of states, in particular the EU and its Member States, endeavoured to find a rapid, just and positive solution to this case. After agreements had been concluded on Lockerbie (UK, USA) and UTA (France), the last unresolved case regarding compensation payments in connection with past terrorist acts was settled between the victims of the attack on the Berlin discotheque La Belle and the Libyan authorities.
In response to the clashes in the Israeli-Palestinian conflict, Egypt launched mediation efforts through diplomatic channels by way of its strategic partnership with the USA and its influence within the Arab world. Examples of Egypt’s mediation efforts include its offer to organise the funeral of Palestinian President Yasser Arafat in Cairo and the hosting of the international Iraq Conference in Sharm-El-Sheikh. The new government, which took office in the summer, places special emphasis on economic policy reforms. In October, the Sinai was hit by deadly terrorist attacks on tourist targets, the first since the attacks in Luxor in 1997.
In Israel , 2004 was marked by two significant developments: the continued Israeli-Arab conflict, and the plan pursued by Prime Minister Ariel Sharon (Likud) to clear the Gaza Strip and four settlements in the northern West Bank by summer 2005. The disengagement plan led to government crises and the withdrawal of the right wing National Union and National Religious parties from the coalition and hence to a minority government for several months. This was, however, supported by the opposition Labour Party. Despite vote splitting within Likud, negative reactions by the right wing parties, and the mobilisation of settlers, the Knesset passed the disengagement plan in October with the support of the left wing parties and the economic-liberal secular Shinui Party. However, concessions made by the Prime Minister to the Azhkenazi United Torah Judaism Party were seen as an affront by Shinui, prompting its withdrawal from the government. Towards the end of the year,
46 a coalition agreement was emerging between Likud, the Labour Party under Shimon Peres and the United Torah Judaism Party. Finance Minister Benjamin Netanyahu continued his reform and privatisation policy.
Jordan continued to place its foreign policy focus on contributing to the resumption of the negotiation process for a peaceful settlement of the Israeli- Palestinian conflict. A conference of the Economic Forum (Davos Forum) was held on 15 May on the shores of the Dead Sea. The EU had adopted an Action Plan coordinated with Jordan in support of economic and political reforms. The ruling Hashemite family in Jordan advocated the presentation of a correct picture of Islam and issued the Amman Declaration, which outlines the peaceful and progressive bases of Islam. In contrast to the situation in the region as a whole, the domestic security situation in Jordan remained quiet.
In Lebanon the term of office of pro-Syrian President Emile Lahoud, who had been in office for six years, was extended under strong Syrian pressure for a further three years, which caused fierce reactions from the internal Lebanese opposition and led to the adoption of UN Security Council resolution 1559, which calls for strict observation of Lebanese sovereignty and political independence, the withdrawal of all foreign armed forces and the dissolution of the armed militia. The extension of President Lahoud’s term of office led to the resignation of Rafik al-Hariri’s Government and to the installation of a manifestly pro-Syrian government under Prime Minister Omar Karame, which emphatically rejects Security Council resolution 1559. In September, the withdrawal of Syrian troops called for in the 1989 Taif Agreement and the international pressure on Syria led to a fifth partial withdrawal and the return of troops to Syria and the Bekaa Valley near the Syrian border, so that at the end of 2004 around 14,000 Syrian soldiers and security forces remained in Lebanon. The anticipated economic and social progress did not materialise, and the budget deficit and national debt continued to grow.
A new phase in the relations between the EU and Syria was ushered in with the initialling of the EU Association Agreement in October. After the Agreement has been signed (probably in the first half of 2005), its section on trade will enter into force, providing, among other things, for easier access to the EU market and a substantial dismantling of tariffs. Relations with Iraq improved in the course of the year. The deteriorating security situation in Iraq and US pressure prompted Syria to step up border control to prevent illegal entries. In March, there were demonstrations by Kurds and violent clashes in the northeast of Syria, where the majority of the two million Syrian Kurds live. Syria feared further unrest in the event of further Kurdish autonomy in Iraq. US pressure on Syria became stronger, and economic sanctions were imposed in May. Syria repeatedly signalled its willingness to enter into talks with Israel. For Syria, the return of the Golan Heights is a central condition for comprehensive peace in the Middle East.
47
6.2. The Middle East Peace Process
The peace process in the Middle East was characterised by the Al-Aqsa- Intifada, Israeli military actions, the plan of Prime Minister Ariel Sharon (Likud) to disengage from the Gaza Strip and the northern West Bank by 2005, the construction of the so-called security fence (separation wall) in the occupied territories, internal Palestinian power struggles and the death of Palestinian President Yasser Arafat in November.
Since the beginning of the Al-Aqsa-Intifada in September 2000, the number of casualties has risen to over 4,000 (more than 3,000 Palestinians and over 1,000 Israelis). The whole region was hit by a severe economic recession. The Palestinian population’s freedom of movement was severely restricted by curfews and barriers put up by the Israeli army, which resulted in a further deterioration of its economic and humanitarian situation. The UN General Assembly took note of a legal opinion issued in July, in which the International Court of Justice called the construction of the wall “contradictory to international law”.
The EU supported Ariel Sharon’s disengagement plan on the condition that it was carried out in the context of the Road Map of the international Middle East Quartet – the EU, USA, Russia and the UN – as a step towards a two-state solution. According to the disengagement plan, there was to be no transfer of settlement activities to the West Bank. It also called for the handing-over of responsibility in an organised manner, negotiations with the Palestinian National Authority and facilitation by Israel of rehabilitation and reconstruction in the Gaza Strip.
Until shortly before his death in a French hospital in November, Arafat remained de facto under the house arrest imposed by Israel at his headquarters in Ramallah, where he was laid to rest. His successor as Chairman of the Palestinian Liberation Organization (PLO) and President of the Palestinian National Authority was Mahmoud Abbas (Abu Mazen), his deputy of many years and first Palestinian Prime Minister.
6.3. The Euro-Mediterranean Partnership (Barcelona Process)
The EU policy for the Mediterranean region is implemented within the Euro- Mediterranean Partnership, which, since the conference held on 27 and 28 November 1995, has also been known as the Barcelona Process. It constitutes the EU policy towards non-member states in the southern and eastern Mediterranean and aims at convergence of the EU partner countries at the political and economic level. The ten EU partners are Morocco, Algeria, Tunisia, Egypt, Israel, Jordan, the Palestinian National Authority, Lebanon,
48 Syria and Turkey. Libya, Mauritania and the Arab League currently enjoy observer status.
The EU’s Mediterranean policy pursues three main objectives: the creation of a common area of peace and stability, based on fundamental principles, including the respect of human rights and democracy, the establishment of a zone of shared prosperity through the gradual establishment of a Euro- Mediterranean free-trade area by 2010, the improvement of the mutual understanding between the peoples of the region and the development of an active civil society.
The focus in the political area was on partnership measures and human rights issues, combating international terrorism and migration issues. Owing to the continued Intifada, little political progress was made in the Middle East. The significance of the Barcelona Process as the only body where European, Arab and Israeli state representatives meet at the highest level remains an important factor.
The establishment of a free-trade area by 2010 remained the most important objective of economic and financial cooperation. The strategy for achieving this goal called for the conclusion of bilateral association agreements with all partners. The last of these agreements was initialled with Syria in October.
In addition to the establishment of a free-trade area between the EU and the Mediterranean countries, trade between the Mediterranean partners themselves will also be liberalised. In pursuit of this objective, progress was made in the free-trade area (Agadir Process), whose membership currently consists of Morocco, Egypt, Jordan and Tunisia.
Two financing instruments, the MEDA Programme and the European Investment Bank (EIB), are available to implement the Euro-Mediterranean Partnership. The MEDA Programme provides financial and technical support to accompany the economic and social reforms in the MEDA partner countries. In 2004, the European Union made available more than 700 million euros for the Mediterranean countries. The EIB established a separate facility to finance infrastructure and individual investment projects.
In the field of social and cultural cooperation, the EuroMed Foundation, also known as the Anna-Lindh Foundation, was set up to foster the dialogue between cultures and civilisations. At the Conference of the Foreign Ministers of the Euro-Mediterranean Partnership in Dublin (4 and 5 May) the decision was taken to house the EuroMed Foundation jointly in the “Bibliotheca Alexandrina” and in the Swedish Institute in Alexandria, Egypt.
49 The meeting of Foreign Ministers, which took place in The Hague on 29 and 30 November, was marked by the death of Palestinian President Yasser Arafat. In preparation for a possible summit in Spain in November 2005, it was decided to make 2005 the Year of the Mediterranean. The first annual session of the Euro-Mediterranean Parliamentary Assembly was held on 22 and 23 March in Athens.
6.4. Organisations Furthering Multilateral Cooperation
6.4.1. Arab League
In the area of foreign policy, the summit meeting of the Arab League was dominated by the Middle East conflict and the war in Iraq. It was suggested that internal talks be held on political reforms demanded in the member states and within the Arab League itself. The cancellation at short notice by the host country Tunisia of the summit meeting scheduled for March was a reflection of this development. Two months later the Arab League adopted a declaration welcoming the reforms initiated in the region.
6.4.2. Organization of the Islamic Conference (OIC)
At the meeting of the Foreign Ministers of the OIC in Istanbul in June, the Turkish university professor Ekmeleddin Ihsanoglu was elected to succeed the Moroccan OIC Secretary General, Abdul Wahid Belqeziz, who resigned at the end of the year.
6.4.3. Gulf Cooperation Council (GCC)
The GCC was founded in 1981 as a forum for closer cooperation between the member states Saudi Arabia, the United Arab Emirates, Kuwait, Qatar, Bahrain and Oman. These states account for 45 per cent of the global oil reserves and about one fifth of the crude oil output worldwide. The GCC was faced with the implementation of an ambitious programme, which included a customs information centre, a uniform currency, a monetary union and a schedule for their implementation, the adoption of anti-dumping, anti-subsidy and protective measures as well as the adoption of a foundation charter for the GCC standards organisations. According to the EU’s total statistics, the GCC was the EU’s fifth-largest export market, with the EU showing a regular surplus in the bilateral balance of trade. Crude oil was the EU’s most important import commodity from the region, accounting for two thirds of the region’s total EU exports. Both partners attend annual meetings at ministerial level. The 14 th EU-GCC Joint Council and Ministerial Meeting took place on 17 May in Brussels. Thematic priorities included a future free trade agreement, the GCC customs union and current international issues. The EU negotiations on the conclusion of a free trade agreement were characterised by differences
50 of opinion regarding the provision of services and market access for certain product categories. For economic and general political reasons, Austria actively supported the conclusion of the negotiations on the free trade agreement.
7. North America
7.1. United States of America
In 2004, the outstanding events were the presidential, congressional and gubernatorial elections , which were decisively won by President George W. Bush and the Republican Party. After a gripping election campaign which focused primarily on the “battleground states” (states with close majority votes), President Bush clearly defeated his Democratic challenger John F. Kerry and was re-elected to office on 2 November for a further four years. President Bush received 286 or 51 per cent of the electoral votes, while John F. Kerry received 252 or 48 per cent of the electoral votes cast.
The Republican Party was also successful at the congressional elections, where it increased its majority in the Senate to 55 seats (Democratic Party, 45 seats) and in the House of Representatives to 231 seats (Democratic Party, 206 seats), enabling the majority party to consolidate its position. In the gubernatorial elections, the Republican Party was able to hold its lead over the Democrats by 28 to 22.
The effective mobilisation of the traditional Republican voters and the concentration on issues involving moral values such as family, marriage, religion and continuity may have contributed decisively to President Bush’s victory. The referendums held at the same time in 11 US states clearly rejected the introduction of homosexual marriages. Compared to 2000, the voter turnout rose to 60 per cent, with about 13 million people voting for the first time.
In his second term of office President Bush made a number of important changes to his team. After the inauguration ceremony on 20 January 2005, Condoleezza Rice will take over from Colin Powell as Secretary of State, and Stephen Hadley will become the new Security Adviser. Alberto Gonzalez became the new Attorney General, Margaret Spelling the new Secretary of Education and Michael Chertoff the new Secretary of the Department of Homeland Security.
For his second term of office President Bush listed the following priorities : fundamental reform of the social security system and, in this connection, a
51 reduction in spending on the health sector, reform of the tax law and education system, and the introduction of an effective new secret service law.
Freeing the world from the threat of global terrorism and weapons of mass destruction is still at the top of the US foreign policy agenda . In this respect, the US National Security Strategy, which was announced by President Bush on 17 September 2002, remains valid. It is based on the following foreign and security policy pillar: in the fight against global terrorism the use of military force as a last means of protection against acute threats and as “pre-emptive act of self-defence” is considered legitimate, particularly with a view to preventing terrorist organisations or regimes that support terrorism from acquiring or producing weapons of mass destruction. This pillar is complemented by the objectives of global advancement of democracy and of cooperation within the framework of international organisations.
In view of the continued attacks and the precarious security situation in some areas, the pacification of Iraq by the US-led alliance and the establishment of a post-war order in preparation for general elections remained extremely difficult. The torture scandals in Iraqi prisons greatly reduced support for the US commitment in Iraq by the American population. Regarding the Democratic Republic of Korea, the USA is interested in a “multilateralisation” of its efforts. The long-term prospects for the success of the EU’s mediation efforts in Iran are viewed with great scepticism by the Bush Administration. After the death of Palestinian President Yasser Arafat, the Middle East peace process has gained fresh momentum. Both the USA and the EU have started intensive negotiations with the parties to the conflict.
The positive economic development observed since the fourth quarter of 2003 continued. US economic growth amounted to 4.5 per cent in the first quarter, and although achieving only 3.3 per cent in the second quarter, rose again to 3.9 per cent in the third and reached 4.2 per cent in the fourth quarter. This economic growth was primarily driven by the monetary policy of the Federal Reserve Bank, the US central bank, which seemed to consist in a controlled depreciation of the US dollar. After the moderate increases of a quarter percentage point in September, November and December, not least on account of the elections, the prime rate finally stood at 2¼ per cent. As a result of this policy, on 3 December the euro exchange rate against the dollar stood at 1.3459, the highest level since the introduction of the euro in 1999. The inflation rate, which rose by 0.5 percentage points between September and October owing to a marked increase in crude oil prices to 3.2 per cent, was the decisive factor influencing this policy. The capacity utilisation of US enterprises of 77.7 per cent was still 3.4 per cent below the average of 1972 to 2003, thus adversely affecting corporate investment policy and hence the labour market. In the third quarter, the unemployment rate remained unchanged at around 5.4 per cent.
52
In June, the balance of trade deficit reached a record high of 55.8 billion US dollars, decreasing slightly to 53.5 billion US dollars in August and to 51.6 billion US dollars in September. Both exports and imports were down. In the third quarter, the current account deficit amounted to 171 billion US dollars. The budget deficit was also likely to reach a record high of more than 500 billion US dollars. These deficits were cushioned by capital inflows of around 45 billion US dollars per month, some 25 per cent of which came from central banks in Asia.
7.2. Canada
Canada is one of Austria’s most important trade and investment partners outside Europe. There are also many affinities in non-economic areas. Like Austria, Canada is emphatically multilateralist, the degree of concordance in the voting behaviour of the two countries in the UN General Assembly being 96 per cent. Canada and Austria cooperate closely within the Ottawa Process, in particular in the preparation and organisation of the First Review Conference of the Antipersonnel Mine Ban Convention (see Chapter G.II.1.), in NATO’s Partnership for Peace Trust Fund Project for the destruction of anti- personnel mines in Serbia and Montenegro, and in their activities within the Human Security Network (see Chapter H.VI.).
The USA is the most important foreign policy and foreign trade factor in Canada’s foreign policy. Canada attaches particular importance to keeping a balance between its basic multilateral stance and its wish to be a dependable partner of the USA. During the Iraq crisis it did not participate in the US-led military alliance against the country. Its participation in the US BMD missile defence system is a highly controversial domestic issue. The protection of the North American air space was ensured by an adaptation of the Agreement on the North American Aerospace Defence Command (NORAD).
Alongside its traditional military security policy (“hard security”), Canada is particularly committed to the area of human security and the new security policy challenges. This is reflected in the numerous UN peace missions, which are based on Canadian initiatives. In the past 40 years Canada has sent 110,000 soldiers to almost all UN operations. Canada accords high significance to the International Criminal Court, which is chaired by the Canadian Philippe Hirsch; the UN High Commissioner for Human Rights, Louise Arbour, is also Canadian. In the Balkans, Canada has been participating in the EUFOR- ALTHEA operation since December (see Chapter A.IV.1.2.1.).
On 29 and 30 April, a high-ranking Canadian delegation from Canada’s Ministry for Foreign Affairs and other ministries and federal institutions visited Austria and eight other Member States of the EU. This visit formed
53 part of Canada’s objective of intensifying cooperation with the EU, in line with the Partnership Agenda adopted at the last EU-Canada summit in Ottawa on 18 March, and of promoting Canadian interests in the fields of trade, investment, science and technology.
Following the parliamentary elections on 28 June, Prime Minister Paul Martin (Liberal Party) is currently leading a relatively stable minority government, which, on a limited number of issues, is supported by the three opposition parties (New Democratic Party, Conservative Party, Bloc Québecois) beyond party lines. Topics like the urgent reform of the national health system, constitutional issues, the future of state unity (sovereignty of Québec) and budget consolidation dominated domestic policy.
After 2003, when SARS, BSE, power failures and natural disasters hit Canada, the Canadian economy again grew more rapidly in 2004. Following the 2 per cent rise in GDP in 2003, which is weak by Canadian standards, the growth rate might again reach 3 per cent in 2004, which will once more make Canada the most successful G7 country this year. Inflation should rise by only 1½ to 2 per cent, the budget is expected to show a surplus of three billion Canadian dollars, and the balance of trade is highly positive. This growth was mainly due to activities in the energy sector and in the field of housing to which the around 250,000 mostly young and well-trained immigrants contributed substantially. Canada also benefits from the increase in the world market price for crude oil. The cost-intensive extraction of the country’s own energy reserves, which are mainly located in the Province of Alberta, is becoming profitable and will thus be continued. After last year’s decline, exports, too, again contributed to growth, with Canadian suppliers of the automobile industry particularly benefiting from the GDP growth in the USA, which accounts for 87 per cent of Canadian exports.
Problems were caused by the fact that some flagships of industry, like Air Canada, Bombardier, Nortel and the steel and timber industry, had run into difficulties. In addition, the trade conflicts with the USA over cut timber and meat exports remained unresolved. Canada’s balance of investments is also topped by the USA, but here the US lead is less pronounced than in the case of exports.
Passive investments (foreign investments in Canadian firms) estimated at a total of 360 billion Canadian dollars (approximately 230 billion euros) at the end of 2003, originated primarily in the following countries: USA (64 per cent), France (9 per cent) and UK (8 per cent). Foreign investments by Canadian enterprises were made primarily in the following countries: USA (a decline from 46 per cent in 2002 to 41 per cent), UK (10 per cent), Barbados (6 per cent), Ireland (4.6 per cent) and France (3 per cent). In 2004, the latter might
54 have more than doubled as a result of the take-over of the Pechiney aluminium group by the Canadian company Alcan.
7.3 Transatlantic Dialogue
The Transatlantic Dialogue is an institutionalised form of cooperation between the EU and the USA. Basically, it rests on three foundations: the 1990 Transatlantic Declaration, the 1995 New Transatlantic Agenda and the associated EU-US Joint Action Plan. The highest body is the annual summit, the most recent summit having taken place on 26 June in Ireland. In addition, there are EU-US ministerial meetings, which are prepared by meetings of the Senior Level Group and the Task Force. The EU-US Transatlantic Dialogue is the most intensive of all institutionalised dialogues between the EU and third countries.
Transatlantic relations were dominated by the re-establishment of intact political relations following the Iraq crisis. The successful summit in Ireland on 26 June was an important step towards resolving the differences between the EU and the USA and marked the start of a new phase in which they will again concentrate on forward-looking cooperation in managing global challenges such as the situation in Iraq, the Middle East, the fight against international terrorism and the non-proliferation of weapons of mass destruction. The joint declarations adopted at the summit laid the foundations for a concerted approach in a number of areas including Iraq, the Sudan, the Middle East and the Mediterranean region, terrorism, non-proliferation of weapons of mass destruction, strengthening economic partnership, and HIV/AIDS, malaria and tuberculosis. An agreement on cooperation between the European satellite navigation system Galileo and the US global positioning system (GPS) was also signed.
The EU and the USA are each other’s most important trade and investment partners. US investments in the Netherlands alone reached almost the same level as US investments in the whole of Asia. In turn, EU investments in Texas alone exceeded aggregated US investments in China and Japan. As confirmed by a congressional hearing in July, even in 2003, when diplomatic relations were strained, mutual investments reached two-digit growth rates. This trend continued in 2004.
The transatlantic dialogues established within people-to-people links, particularly the Trans-Atlantic Business Dialogue (TABD), which is of importance for the economic sector, and the Transatlantic Consumer Dialogue (TACD), held meetings following their restructuring and sent messages to the EU-US summit in June. While the TABD pressed for a unification of standards, the TACD suggested accepting the precautionary approach in the food and chemical sectors in the interests of health and of respecting data protection in
55 the fight against terrorism. At the TABD’s recommendation, intensive consultations were started to reduce the growing differences in the field of standards, which were identified as the main obstacles in the trade and investment sectors. A further initiative aimed at fostering concrete results in negotiations on economic issues is the Stakeholders’ Dialogue (stakeholders being persons or organisations interested in or affected by EU law and political decisions). The European Commission and the US government hope that this dialogue will produce new incentives for the reduction of trade barriers.
In spite of the trade disputes between the EU and the USA, some of which are fought in public, 98 per cent of transatlantic trade is carried out without friction. Regarding tax benefits for US export firms (Foreign Sales Corporations) that are incompatible with the WTO provisions, the EU introduced the approved punitive tariffs against US exports and increased them on a monthly basis. This finally prompted the USA to launch the long overdue implementation of the arbitration decision by amending the law, and now the case may be regarded as settled. Another dispute in which the contested sums are only slightly lower and which relates to subsidies for aeroplane manufacturers (Boeing and Airbus) threatened to arise when the USA terminated a 1992 agreement on the mutual limitation of subsidies and called for consultations within the framework of the WTO. However, it refrained at the last minute from the formal institution of arbitration proceedings. Thus, there are currently no major disputes pending.
Agreements were concluded on the Galileo satellite information system developed by the EU and on the Transfer of Air Passenger Name Record (PNR) Data, which plays an important role in combating terrorism. However, the EP submitted the PNR Agreement to the European Court of Justice to review its compatibility with EU data protection provisions. The adaptation to the Community acquis of the agreements by the ten new EU Member States with the USA also progressed satisfactorily. The negotiations on a wine agreement and an Open Skies Agreement, which would be binding for the entire EU, were less successful. Within the framework of the Positive Economic Agenda, which is continuously being extended, significant progress has been achieved with regard to cooperation in the financial services sector, harmonisation and/or mutual recognition of regulatory systems, scientific cooperation and hydrogen energy production. The good working climate between the main representatives of both sides in charge of trade issues also contributed to the resumption of the WTO round of negotiations after the largely unsuccessful summit in Cancún (Mexico).
Economic questions concerning Canada are discussed at summits and at the meetings of the Joint Cooperation Committee, which convenes once a year, and the Trade and Investment Sub-Committee. In this context, the Canada
56 Europe Round Table, which is made up of company representatives from both sides, provides important stimuli. The declarations at the Ottawa summit in March were not restricted to bilateral economic problems; Canada is also very interested in cooperating with international organisations in the economic area. Moreover, both sides continued their internal preparations for the start of negotiations on an agreement aimed at promoting trade and investment. In December, the European Commission received the official negotiating mandate from the European Council.
7.4. North American Free Trade Agreement (NAFTA)
The agreement on the establishment of a North American free trade area (NAFTA) between the USA, Canada and Mexico entered into force on 1 January 1994. It is special because it unites two of the richest industrial states with a threshold country from the south. Mexico’s GDP is twenty times lower than that of the USA and its per capita income is seven times lower. In 2003, the combined GDP of the parties to the agreement amounted to 11.4 trillion US dollars, far in excess of the EU’s GDP, which even after the enlargement is currently estimated at 8.3 trillion US dollars. The marked comparative cost differences, in particular, stimulated the dynamic growth of intraregional trade. According to the International Monetary Fund (IMF), trade between the three NAFTA states more than doubled, rising from 306 billion US dollars in 1993 to 621 billion US dollars in 2002. This corresponds to a trade volume of 1.2 million US dollars per minute. Mexican exports to the USA increased by 234 per cent to 136 billion US dollars, while exports to Canada, which amount to 9 billion US dollars, rose by 203 per cent. In the same period, the US- Mexican trade volume more than tripled. US exports to Mexico increased by 118 per cent from 50.8 billion US dollars to 110.8 billion US dollars.
In spite of these impressive data, NAFTA is still subject to fierce domestic controversy in the USA, mainly because of the extremely high balance of trade deficit. NGOs criticise the further implementation of the agreement because they fear wage and environmental dumping. In Canada and Mexico, however, the agreement is considered a positive achievement because it has led to a considerable increase in the bilateral trade volume. In the field of investment protection, the agreement has broken new ground, prompting international discussion on the formulation of bilateral agreements in this area. In spite of delays in the implementation of individual provisions of the NAFTA Agreement, the integration process as a whole is proceeding as planned.
57 8. Latin America and the Caribbean
8.1. Political Developments
Although some states of the Andes Region had to overcome political crises and their democratic institutions to withstand severe tests, solutions were sought and courses pursued which inspire optimism regarding their future political, economic and social development. Strong leadership in the representation of regional and international interests was shown by Brazil as a non-permanent member of the UN Security Council and by Mexico as the host of important international meetings including the Third Summit of the Heads of State and Government of the EU, Latin America and the Caribbean (EU- LAC). For Austria’s foreign policy, strengthening cooperation between the EU and the Latin American and Caribbean regions, and the growing significance of the EU-LAC summit process are relevant not only as an essential complement to the existing bilateral relations, but also with regard to Austria’s role as host of the Fourth Summit meeting of the EU and Latin America/Caribbean Region from 11 to 13 May 2006.
In its domestic policy, Brazil ’s government led by President Luiz Inácio Lula da Silva continued its efforts to lay the foundations for social and economic reform by pursuing responsible debt, currency and budgetary policies. In view of its recent positive economic development, Brazil is optimistic about the future. The most important objective in the field of social policy is the “Fome Zero” (Zero Hunger) programme, which is aimed at eliminating hunger in the entire country and at meeting basic needs. The municipal elections held in October resulted in gains for the government coalition in rural areas, while the opposition turned out winners in towns and cities. Brazil’s priority foreign policy objectives include efforts to obtain a permanent seat on the UN Security Council in the course of a future UN reform, the consolidation and enlargement of MERCOSUR, the development of relations with the EU, the diversification of trade relations and the pursuit of the Zero Hunger programme at an international level.
In Argentina , President Néstor Kirchner continued to pursue his objective of effecting gradual change through the cultural and moral reorientation of society as a whole. Major thrusts in the government’s policy include consolidation of the role of the state and emphasis on social issues. After overcoming a five-year recession and the most severe economic and financial crisis in Argentina’s history, the gradual recovery process continued, giving grounds for an optimistic assessment of the country’s economic development. However, in 2004, it was not possible to come to an agreement with foreign private creditors. As one of the conditions of the stand-by agreement
58 concluded with the IMF in September 2003, such an agreement is necessary for maximum acceptance of Argentina’s offers to restructure its debts.
With an estimated growth rate of 5 per cent and an inflation of slightly over 1 per cent, Chile ’s economy has proved to be the most stable one in the region. Looking ahead to the parliamentary and presidential elections to be held on 14 December 2005, President Ricardo Lagos dismissed both Defence Minister Michelle Bachelet and Foreign Minister Soledad Alvear on 30 September, as these two popular female politicians were intending to run for the presidency.
In Peru , the noteworthy progress achieved by the government at the macroeconomic level and the stable growth figures did not make up for the dissatisfaction of the population in the social area. Although poverty reduction remained the uppermost goal, the government had to withstand severe tests.
In Colombia, the general security situation was further improved thanks to the Democratic Security Policy. Domestic policy focused on the possible re- election of the extremely popular President Álvaro Uribe, who has the support of 80 per cent of the population. Efforts to achieve peace with the armed groups concentrated on a peace process with the paramilitary United Self- Defence Forces of Colombia (AUC). In mid-May, the Colombian government and the majority of paramilitary forces agreed on the establishment of a defined zone (“zona de ubicación”) covering 368 square kilometres located in the north-western part of the country, where the representatives of the paramilitary forces and their bodyguards could move freely. At the beginning of July, negotiations with government representatives started in this zone. The international community has reservations about this process, for which no legal framework was put into effect. Little progress was made in the peace process with the guerrilla Revolutionary Armed Forces of Colombia (FARC) and the National Liberation Army (ELN). The EU continued to support Colombia in pursuing the goal of peace and consolidation, and identified options for a possible common policy in the future.
In Venezuela , a referendum held on 15 August confirmed Hugo Chávez as President until the end of 2006. The opposition suspected election fraud, but the results were acknowledged by election observers from the OAS and the Carter Center. The EU had declined to observe the election under the conditions offered by the government. In the regional elections of 31 October the government clearly improved its position so that now 270 out of 335 city administrations are headed by supporters of President Chávez.
Relations between Cuba and the EU continued to cool after the government severed personal diplomatic relations with those EU missions in Havana that had given increased visibility to Cuban dissidents by inviting them to national holiday receptions. In the course of the year, 14 dissidents were paroled for
59 health reasons for the time being. The EU’s Common Position on Cuba of 2 December 1996, which aims to promote the transition to democracy and pluralism, including the full respect of human rights within the framework of political dialogue, was reaffirmed.
After more than four years in power, there was some disappointment expressed in Vicente Fox Quesada’s government in Mexico on account of its failure to keep promises and the inability of Congress to approve reform projects. The party supporting the President, the National Action Party (PAN), is only the second-strongest force and has no majority in Congress. The Party of the Institutionalised Revolution (PRI) is still the strongest party in both chambers of Parliament and in the majority of federal states. Mexico’s economy is growing at an estimated rate of 3.5 to 4 per cent, but without any significant employment growth. On the foreign policy front, the government relied on stronger multilateral commitment and continued to support a policy of trade liberalisation. Mexico’s aspiration to be an active partner in a globalised world was reflected in its role as host of important international meetings. The Special Summit of the Organization of American States (OAS) in Monterrey and the Third EU-LAC Summit in Guadalajara were an expression of Mexico’s desire to intensify relations with the EU, both politically and economically.
In Guatemala , President Oscar Berger inherited an administration in January that was characterised by numerous problems. Although progress was achieved in putting the peace agreements into practice, they have still not been fully implemented. The UN Verification Mission in Guatemala (MINUGUA) completed its work in 2004 and will be replaced by an office of the United Nations High Commissioner for Human Rights.
In October, Nicaraguan President Enrique Bolaños faced attempts by political opponents and the opposition to oust him, and was confronted with proposals for constitutional reforms that could weaken democratic institutions. On 1 November, the EU issued a statement on the political situation in Nicaragua in which it expressed support for the government programme of President Bolaños.
8.2. Regional Integration Fora
The main outcomes of the regular session of the General Assembly of the Organization of American States (OAS) , which was held in Quito, Ecuador, from 6 to 8 June, included the adoption of the Declaration of Quito on the fight against corruption, agreement on the elaboration of a social charter, and the adoption of a resolution on the situation in Haiti. The Declaration of Quito on Social Development and Democracy and the Impact of Corruption calls for combating corruption, one of the main obstacles to social cohesion, trust in
60 democracy, and development in the hemisphere. The priorities of the resolution on Haiti include the creation of conditions for the holding of elections and the elaboration of initiatives for the re-establishment of democracy in the country. The interim government will be supported in this respect by the OAS mission in Haiti. A meeting of the Permanent OAS Observer States with the heads of delegations from the OAS member states prior to the official opening of the regular session of the General Assembly was particularly useful, the contributions of the observer states receiving special mention as an important source for promoting development in Latin America.
Chaired by Brazil, the 18 th Summit of the Rio Group (twelve Latin American states, five Central American States, and the Caribbean Region, represented by the CARICOM Presidency) took place on 4 and 5 November in Rio de Janeiro. The discussions centred on UN reform, effective multilateralism, Haiti, social development in the region and the intensification of relations in Latin America. However, it seemed as if no concrete operative conclusions could be drawn from the summit declaration.
The 26 th Summit of the MERCOSUR States (Argentina, Brazil, Paraguay and Uruguay), which was chaired by Argentina, took place in Puerto Iguazú, Argentina, on 8 July, while the 27 th Summit, chaired by Brazil, was held in Ouro Preto, Brazil, from 15 to 17 December. Work in the first half year focused on preparations for a free trade agreement with the Andean Community, which was subsequently signed on 18 October, initiatives for intensifying external relations with Mexico, India, China and the Republic of Korea, and preparations for the inauguration of the Permanent Court of Justice for Dispute Settlement with its headquarters in Asunción on 15 August. The main results of the 27 th Summit included the accession of Colombia, Ecuador and Venezuela as Associated Member States in addition to Chile and Bolivia, the conclusion of an agreement on external tariff settlement, the creation of a structural fund, trade agreements with India and with the Southern African Customs Union, and the establishment of a commission for the creation of a MERCOSUR Parliament.
The 15 th Summit of the Andean Community (CAN) , consisting of Bolivia, Peru, Ecuador, Colombia and Venezuela, was held at presidential level in Quito, Ecuador, on 12 July. The most important results included the decision to develop and consolidate the Andean Peace Zone as a nuclear, chemical and biological weapon-free area, the approval of a decision on a common external tariff in 2005, the development of a common strategy for the prevention of natural disasters, the intensification of relations with the other Latin American states with a view to enhanced regional integration, and the commitment to conduct economic negotiations as a subregional unit with the EU in particular.
61 The 14 th Ibero-American Summit , held in San José, Costa Rica, on 19 and 20 November, was dedicated to the general issue of “Education for Progress”. Discussions focused on possible ways of using education to eliminate poverty and to improve the living conditions of the population.
A new initiative launched during a summit held in Cusco and Ayacucho, Peru, on 8 and 9 December was the inception of a South American Community of Nations in which not only the MERCOSUR states and the members of the Andean Community, but also Chile, Guyana and Suriname participate. The establishment of this Community of Nations, the work of which is to build on the experience gained by the Andean Community and MERCOSUR, is expected to provide a stimulus for the regional integration of South America.
At their 10 th Conference in Port of Spain, Trinidad and Tobago, on 8 and 9 November, the heads of state and government of the Caribbean Community (CARICOM) considered practical measures for speeding up the establishment of a common market and a common Caribbean economic area. The objectives of the common Caribbean economic area (free movement of persons, goods and services) should be realised by December 2005. The meeting also dealt with the devastating consequences of the year’s hurricanes, which resulted in almost irreparable damage, particularly in Grenada and Haiti. The Caribbean Court of Justice, which will replace the Privy Council in London as the highest court of appeal, has not yet been able to start its work in Port of Spain as planned.
8.3. Relations with the EU
Relations between the EU and Latin America and the Caribbean are maintained at the bi-regional level, in the form of a summit process in which all 33 states of Latin America and the Caribbean region participate, and through institutionalised political dialogue with the Rio Group. Regular specialised meetings are also held with MERCOSUR, Central America, the Andean Community, Mexico and Chile.
The EU summit process with Latin America and the Caribbean (EU-LAC), which started in June 1999 in Rio de Janeiro and was followed by two other summit meetings in Madrid in May 2002 and in Guadalajara, Mexico, in May 2004, is the most important dialogue forum, defining the strategic direction for the further development of relations. At the Third EU-LAC Summit meeting in Guadalajara, Mexico, held on 28 May, the importance of cooperation between the two regions was reaffirmed. The Declaration of Guadalajara underlined the priority all 58 participating states attach to further developing and strengthening the relations between the EU and Latin America. Consisting of 104 items it covers a wide range of issues and common concerns.
62 Multilateralism and social cohesion were the main focuses of the discussion by the heads of state and government and were therefore dealt with in detail in the Declaration. While the Declaration emphasised the importance of improved cooperation and coordination in multilateral bodies regarding major world policy issues, the way in which this project will actually be implemented is still to be determined. The plans for increased cooperation in the field of social cohesion were furthered through the establishment of the European Commission’s EUROsocial programme and supported by initiatives of the Inter-American Development Bank (IDB), the UN Development Programme (UNDP), the UN Economic Commission for Latin America and the Caribbean (ECLAC), the International Monetary Fund (IMF), the European Investment Bank (EIB) and the World Bank. In the economic area, the progress achieved in the EU-MERCOSUR negotiations was welcomed, but the aim of completing negotiations on the EU-MERCOSUR Association Agreement before the expiry of the European Commission’s term under Romano Prodi was not achieved. Regarding the start of negotiations on EU association agreements with the Andean Community and Central America, which was being strongly urged by the LAC partners, the next step will be to conduct a joint evaluation of the status of regional integration, which is a precondition for speedy negotiations. At the invitation of Federal Chancellor Wolfgang Schüssel and Federal Minister Benita Ferrero-Waldner, the participants adopted Article 103, which calls for the holding of the Fourth EU-LAC Summit in Vienna on 12 and 13 May 2006.
An association agreement has been negotiated between the EU and MERCOSUR since 24 November 1999. The core of this unique interregional draft agreement is the free trade regulation. After the negotiations on the chapters “Political Dialogue” and “Cooperation” had been completed in the seventh round, the talks concentrated on trade-related issues, without a breakthrough being achieved in the subsequent eight rounds in essential areas such as agriculture, services, rules of origin, public procurement and investments. In April, revised offers were exchanged in the areas of services, public procurement, and investments and commodities, including agriculture. However, the 16 th round of negotiations scheduled for September in Brussels was cancelled by MERCOSUR, as it did not see any sense in a further round of technical negotiations. Nor was agreement reached on the completion of negotiations at a ministerial meeting in Lisbon in October, which is why the offers submitted by MERCOSUR and the EU in September became invalid on 31 October. There was also a certain competition between these negotiations and parallel negotiations on the establishment of a Free Trade Area for the Americas (FTAA), which, however, will not be concluded in 2005 as planned. Moreover, conflicting trends brought about by the WTO negotiations (Doha Round) cannot be overlooked.
63 The EU Association Agreement with Chile was signed in November 2002 in Brussels and published in the Official Journal of the European Union on 31 December 2002. At the end of 2004, the ratification of one EU Member State was still missing for its entry into force under international law. A major part of the agreement, however, has been implemented since 1 February 2003 on a provisional basis. The agreement may be regarded as the most comprehensive and far-reaching agreement concluded by the Union and its Member States with a third country to date. Its core component is the establishment of a free trade zone between the EU and Chile within ten years of the entry into force of the agreement. At the same time, it covers the gradual liberalisation of trade and services, a political and cultural dialogue, and practically all areas of economic and scientific cooperation (“Fourth Generation Agreement”).
9. Sub-Saharan Africa
9.1. General Developments
In 2004, the most important development for Africa was institution building. For the first time, the African Union (AU) enjoyed the legitimacy required to play the cross-continental role assigned to it, thus clearly distinguishing itself from its predecessor, the Organization of African Unity (OAU). Particularly in the fields of conflict settlement and re-establishment of peaceful conditions, the AU had succeeded to build structures which now give credibility to its claim to leadership in this area. In the economic area, the New Partnership for Africa’s Development (NEPAD) started to apply the instruments envisaged by it, such as the peer review (mutual evaluation) modelled on the Organisation for Economic Co-operation and Development (OECD), and thus to impact on areas such as good governance, legal security and corruption. Regional organisations like the Economic Community of West African States (ECOWAS), the Intergovernmental Authority on Development (IGAD), and the Southern African Development Community (SADC) also made progress in their consolidation and integration processes, thus participating in the crucial regional implementation of AU initiatives. Supported by the EU, the AU and regional organisations contributed to the efforts aimed at settling all major crises and unresolved conflicts on the continent, including those in Darfur (the Sudan), Côte d’Ivoire and the Democratic Republic of the Congo. The EU had endeavoured for years to achieve an “Africanisation” of conflict management in Africa, using the new European peace-supporting African Peace Facility. The peace negotiations in southern Sudan and with the parties to the conflict in Somalia were successful. The continuing peaceful developments in former crisis areas such as Angola and Burundi, and the holding of elections in many countries, may be seen as indicators of – albeit slow – political progress in Africa.
64 Africa remained one of the main foreign policy references for the EU outside Europe, finding its expression in instruments like the Euro-African Dialogue and the Cotonou Agreement. The international community – the UN, the World Bank, and, most recently, China and South-East Asia – have become increasingly active in Africa. The Commission for Africa set up by the British Prime Minister Tony Blair will work out new financing proposals. Austria was involved in Africa particularly through development cooperation with six priority countries and six other cooperation countries.
9.2. Regional Integration Fora
9.2.1. African Union (AU)
At its summit in Addis Ababa, Ethiopia, from 6 to 8 July, the AU adopted a visionary paper drafted by the AU Commission on the development of the organisation by 2030, but referred the decision on the priority programmes to be realised and the question of funding to an extraordinary executive council of the AU Foreign Ministers in December. The appointment of members of the Commission, which started its work on 15 September 2003, has not yet been completed. In July, South Africa was chosen as the seat of the Pan-African Parliament. The Peace and Security Council of the African Union, an ancillary body of the Commission for Peace and Security, has been active since February. The situation in Darfur led to the deployment of an AU Military Observer Mission (AMIS), which was replaced in the autumn by the more comprehensive AMIS II. The AU and its structures are based on the EU model and also on the OSCE and the UN Security Council. The new AU programme is ambitious, clearly turning away from the OAU of the past, and finding its expression above all in a new interpretation of national sovereignty, a concept that had been defended prior to the foundation of the AU. Issues such as human rights, good governance, democracy and the rule of law are no longer the exclusive affair of a member state.
9.2.2. East African Community (EAC)
The EAC’s most important event of the year was the entry into force of the customs union following ratification of the agreement on 14 December by Kenya; Tanzania and Uganda had already ratified earlier on.
9.2.3. Economic Community of West African States (ECOWAS)
The ECOWAS pursues the following objectives: the economic and political integration of West Africa; increased cooperation with the UN, the EU, USA, Canada, Russia, Japan, India and China; the promotion of democracy and fair elections; good governance; combating poverty and impoverishment; and the maintenance, support and guarantee of peace, security and stability in the
65 region using appropriate measures to achieve internal and external security. The crisis areas of Côte d’Ivoire, Liberia, Guinea-Bissau and Sierra Leone were the main centres of interest. The policy decision to set up a 6,500 strong rapid reaction force for crisis management was a clear sign of (West) Africa’s determination to achieve integration, reform and international cooperation.
9.2.4. Southern African Development Community (SADC)
At the SADC summit held in Port Louis, Mauritius, from 16 to 17 August, Mauritius took over the SADC chair for one year. Guidelines on democratic and free elections were adopted and applied in the elections held in Botswana, Namibia and Mozambique.
9.2.5. Intergovernmental Authority on Development (IGAD)
2004 was the most successful year so far for the IGAD. In the field of conflict settlement it gained profile through its efforts aimed at finding a solution for Somalia and the Sudan . At the Somalia Peace Conference in Mbaghati/Nairobi, Kenya, the first President of the federal transition government (Abdullahi Yussuf) was elected on 10 October. A peace agreement on southern Sudan was also prepared for signature at the Conference of Machakos, Kenya, towards the end of the year.
9.3. Regional Developments
9.3.1. The Horn of Africa
The peace process between Ethiopia and Eritrea initiated by the Algiers Peace Agreement (December 2000) had stalled in September 2003, and the standstill continued in 2004. On 26 November, Ethiopia announced a five-point peace plan, in which it declared its willingness to make the defaulted payments to the border commission and to name the liaison officer in charge of border demarcation who should have been appointed a long time ago. The decision on the drawing of the border was acknowledged in principle, but bilateral negotiations with Eritrea still have to be held in order to reach agreement on the precise course of the border. Lloyd Axworthy, former Foreign Minister of Canada, was appointed Special Representative of the UN Secretary-General in February for the purpose of initiating a dialogue between Ethiopia and Eritrea. Compliance with the ceasefire was monitored by the UN Mission in Ethiopia and Eritrea (UNMEE ).
The large-scale Somalia National Reconciliation Conference, which began on 15 October 2002 in Kenya, ended positively on 10 October with the election of Abdullahi Yussuf as President. This election was preceded by parliamentary elections and the appointment of the Prime Minister. By the end of the year, a
66 federal transitional government had been formed which continued to have its seat in Nairobi. The peace conference took place under the auspices of the IGAD and was largely co-funded by the EU.
The peace process which aimed to end the decade-long civil war in southern Sudan yielded decisive results: In May, agreement was reached in Naivasha, Kenya, on the sharing of political power between the government and the rebel Sudan People’s Liberation Movement/Army (SPLM/A). At a special session of the UN Security Council on the situation in the Sudan, the parties to the conflict undertook to conclude negotiations by the end of the year. At the same time, the situation in the western province of Darfur , bordering Chad, deteriorated dramatically. In spite of ceasefire agreements and massive international pressure, the violent clashes between government troops, government-related militia and the rebel Sudan Liberation Movement/Army (SLM/A) and the Justice and Equality Movement (JEM) increased, producing over two million displaced persons and refugees.
9.3.2. Southern Africa
In South Africa, the April elections were won by the African National Congress (ANC). On 27 April, South Africa celebrated the tenth anniversary of the New South Africa in the presence of many foreign heads of state and government. President Thabo Mbeki was sworn in for a second term of office. The Ministerial Conference of the Non-Aligned Movement (NAM) was held in August 2004. President Mbeki assumed an active role in the peace efforts for the Great Lakes Region. South Africa was in favour of a reform of the UN Security Council, General Assembly and ECOSOC, and is seeking a non- permanent seat on the Security Council.
In Botswana, Festus Mogae, who had been in power since 1998, was re- elected. The presidential and parliamentary elections held in Mozambique on 1 and 2 December took place in a free and transparent manner, constituting a further step towards the consolidation of democracy. Armando Guebuza, the candidate of the governing party’s Liberation Front of Mozambique (FRELIMO), was elected President, succeeding Joaquim Chissano. In Namibia, Hifikepunye Pohamba, the candidate chosen by President Sam Nujoma, won the presidential elections held on 15 and 16 November. The balance of power between the South West Africa People’s Organisation (SWAPO) and the opposition remained unchanged.
Hopes for the start of formal dialogue between the government and the opposition party’s Movement for Democratic Change (MDC) on the resolution of the domestic crisis in Zimbabwe were not fulfilled. The radical land reform was continued, disrespecting in some cases existing bilateral investment protection laws and also making use of force. The government’s main
67 objective was to re-establish Zimbabwe’s “legitimacy and reputation”, which had been impaired since March 2002, at an international level, by winning the election scheduled for March 2005 in a “fair and transparent” manner. On 18 February, the restrictive measures imposed by the EU including travel restrictions and the freezing of accounts were extended for a further year.
From 3 to 7 May, both the Council of the Group of African, Caribbean and Pacific States (ACP Council) and the 79 th Session of the Joint ACP/EU Council were held in Gaborone (Botswana). The meetings’ agenda focused on the new Economic Partnership Agreement, which aims to integrate ACP states in the world economy in accordance with WTO provisions. The EU called for the accession of further states to the Rome Statute and suggested that the Cotonou Agreement contain a reference to the International Criminal Court (ICC) and a shared commitment to it.
9.3.3. Great Lakes Region
The Great Lakes Region has been the focus of considerable tensions between the main protagonists of the last decade’s Congo wars, namely the Democratic Republic of the Congo, Rwanda, Uganda and Burundi. The first summit of the heads of state and government of the region, the Conference on the Great Lakes Region, took place in Dar es Salaam from 18 to 20 November. Themes for discussion included peace and security, democracy and good governance, economic development and integration, as well as humanitarian and social affairs. The Conference on the Great Lakes Region is modelled on the Conference on Security and Co-operation in Europe (CSCE) and consists of regular summits, a one-year work process headed by a Regional Inter- Ministerial Committee and a Great Lakes Charter in the form of a Pact for Security, Stability and Development.
Rwanda ’s domestic, regional and foreign policy was characterised by continuing tensions with the Democratic Republic of the Congo caused by the undiminished presence of the Hutu rebel Democratic Forces for the Liberation of Rwanda (FDLR) – Interahamwe and ex-FAR (former armed forces of Rwanda) – in the Kivu provinces in the east of the Democratic Republic of the Congo. In line with a bilateral agreement and a UN mandate, the government in Kinshasa and MONUC sought to disarm and demobilise the Hutu rebels. On the domestic front, the reprisals against political groups suspected of non- conformism and the delay in the trials for the Gacaca genocide deserve mention. In June, a court in Kigali sentenced former President Pasteur Bizimungu to 15 years imprisonment for subversive activities, and in July a parliamentary investigation report accused a number of NGOs of spreading genocide ideology. This also affected LIPRODHOR, Rwanda’s respected human rights organisation, whose work had been supported by various donor countries, including Austria.
68
Under the Arusha Agreement, the transition period in Burundi was to end on 30 October, following which a new constitution was to be adopted and general elections held. Since the constitutional debate remained without result, the transition period was extended by one year to the end of October 2005. In spite of lengthy negotiations, with the South African Vice-President Jacob Zuma acting as a mediator, it was not possible to reach agreement on a formula for the division of power that would be acceptable to both Hutus and Tutsis. The signing of a still ethnically based power-sharing agreement ultimately took place on 6 August, but only the 20 Hutu parties were present, while the Tutsi parties of the G10 failed to show up. On 18 August, this agreement was endorsed at the 22 nd Summit of the Regional Powers in Dar es Salaam, followed by the adoption of the new constitution on 17 September in the absence of all Tutsi parties.
In 2004, the Democratic Republic of the Congo again experienced several crises: a crisis in the transition institutions, which triggered a crisis in the armed forces in the eastern provinces, and a crisis in the country's relations with Rwanda. The tensions within the government were reflected in the military field by two attempted coups d'état in Kinshasa and by growing tensions between the national army units/military regions of different political affiliations in the Kivu provinces. The cross-border rhetoric of neighbouring Rwanda, in turn, culminated in the unveiled threat of an invasion of the eastern Congo in order to take the disarmament of the FDLR Interahamwe and ex-FAR into its own hands.
9.3.4. East Africa
After years of corruption and mismanagement, the peaceful takeover of power in Kenya by the National Rainbow Coalition (NARC) under President Mwai Kibaki, replacing the Kenya African National Union (KANU) and long-time President Daniel Arap Moi in December 2002, looked as if it would usher in a more hopeful era. However, the fact that little progress was achieved in implementing the reform agenda of the new government and the failure to improve living conditions resulted in disillusionment. Kenya did not succeed in adopting a new constitution or successfully combating corruption.
In northern Uganda the retreat of the Lord’s Resistance Army (LRA) to bases in southern Sudan was cut off by the imminent conclusion of peace in the Sudan towards the end of the year. The ceasefire negotiations between the government and the rebels were resumed.
In March, the Zanzibar Islands were disrupted by a number of violent clashes and bomb attacks, which increased the political tensions with the central government of Tanzania .
69
9.3.5. West Africa
UN peacekeeping troops are currently deployed in three West African countries, i.e. the neighbouring countries of Sierra Leone, Liberia and Côte d’Ivoire.
In Guinea-Bissau , the first phase of a transition to functioning democratic structures, a process which began after the military coup in September 2003, came to a positive conclusion through the elections in March 2004. Following a revolt of mutinous soldiers, however, the situation in Guinea-Bissau remains extremely unstable. In spite of this instability, some progress has been made in the efforts to achieve peace in the neighbouring Casamance Province in southern Senegal.
The open conflict in Liberia was settled by the countries of the Mano River Union (Sierra Leone, Liberia and Guinea) and peace was maintained in Sierra Leone, in particular. The comprehensive peace agreement signed by the parties to the conflict on 18 August 2003 in Accra, Ghana, put an end to the civil war in Liberia, with UN peacekeepers monitoring the implementation of the agreement. The EU Special Representative, Swedish State Secretary Hans Dahlgren, continued his efforts to put an end to the conflict.
In Freetown, the International Special Court continued its work, prosecuting those responsible for war crimes and crimes against humanity during the civil war in Sierra Leone . In Niger and Ghana presidential and general elections were held in December. In both cases the incumbent President was re-elected.
The EU lifted the sanctions imposed on Togo after the consultations under Article 96 of the Cotonou Agreement had been successfully completed.
Côte d’Ivoire was the focus of numerous international peace efforts. A summit of the AU heads of state convened at the end of July at the initiative of UN Secretary-General Kofi Annan in Accra, Ghana, established a timeframe (“Accra III”) for the measures provided for in the 2003 Linas-Marcoussis Agreement concerning the conduct of presidential and general elections in October 2005. None of the parties to the conflict complied with this schedule. The breach of the ceasefire agreement and the subsequent outbreak of violence, particularly in Abidjan, induced the UN Security Council to impose a 13- month arms embargo on Côte d’Ivoire.
Burkina Faso was the venue of the 10 th Summit of the Heads of State of the International Organisation of Francophony in November. Austria was accorded the status of permanent observer. Three Austrian military officers
70 participated as advisers in a French training camp (RECAMP 4) organised in Benin in November/December.
10. Asia
10.1. General Developments
10.1.1. North-East Asia
No diplomatic agreement was reached on the question of the secret North Korean uranium-enriching programme. In 2003, the Democratic People’s Republic of Korea had declared its willingness to hold multilateral talks with the USA, China, Japan, the Republic of Korea and Russia (six-party talks) on the resolution of the conflict. However, no rapprochement was reached in the first three rounds of the six-party talks. The EU does not participate in the six- party talks but endeavours to make a contribution to the resolution of the conflict by negotiation. The top objective of the EU, which is preventing a further destabilisation of the region and keeping the Korean peninsula free from nuclear weapons, is shared by the USA and the countries in the region. In a resolution adopted unanimously by all 137 Member States on 24 September, the International Atomic Energy Agency (IAEA) called upon the Democratic People’s Republic of Korea to re-admit its inspectors and enable the examination of its controversial nuclear programme. The Democratic People’s Republic of Korea was asked to give “full guarantees” for cooperation with the IAEA without delay. Pyongyang, however, rejected this demand.
The People’s Republic of China , which plays an important role as a mediator in the nuclear crisis, is increasingly becoming a decisive regional and important global factor. Beijing pursued ambitious economic goals and objectives of development policy. China’s economic growth amounted to 8.5 per cent. Since the rapidly growing economy requires ever more resources, the Chinese leadership has increasingly concentrated on sustainable development and questions of social policy issues, which in view of the dynamic economic development seem to be of special urgency.
In March 2003, a new generation of leaders had been installed in China. This first peaceful transfer of power in the People’s Republic’s 50-year history was completed in September 2004, when the former Chinese State President and party leader Jiang Zemin resigned as Chairman of the Central Military Commission of the Communist Party of China. Following the handing-over of the Supreme Command over the People’s Armed Forces, State President and party leader Hu Jintao now holds the three most important political posts China has to offer. 71
A fundamental change of course in Chinese foreign policy is not to be expected. The intensive cooperation between the EU and China was further developed in line with the objective of a strategic partnership, as formulated in 2003. The annual EU-China summit took place on 8 December in The Hague, where a total of eight agreements was signed.
Beijing’s relations with Taipeh deteriorated in the course of the presidential campaign in Taiwan , which was won by the incumbent Chen Shui-bian by a small margin on 20 March. Despite their political disputes, economic relations between Taiwan and the People’s Republic of China are intensifying.
In Japan , these developments contributed to a reorientation of its security policy and the step by step development of its defence and deterrence capabilities. The pacifist Article 9 of the Constitution is being interpreted more and more widely, and an increasing number of voices are being heard in support of an amendment to this article in order to enable Japan to pursue a more flexible defence policy. In spite of clear efforts by Japan for a foreign policy profile of its own, the strategic partnership with the USA remains a cornerstone of Japanese foreign policy. Particularly in Iraq, Japan positioned itself as a close ally of the USA, sending up to 1,000 soldiers to the country. The relations between the EU and Japan were further developed on the basis of the 2001 Action Plan. The annual EU-Japan Summit, which took place in Tokyo on 22 June, focused on questions of international security and the global economy. April and September saw EU-Japanese foreign ministers’ meetings in Troika format.
10.1.2. Central Asia
The developments in Central Asia were essentially characterised by Russia’s return to the region as a counterweight to the forces stationed by the US-led anti-terrorism coalition in Kyrgyzstan, Tajikistan and Uzbekistan, by the continued intensive exchange of visits with the USA and the conclusion of US trade agreements with the five states in the region, the increased cooperation with the EU and the priority assigned to South Caucasus and Central Asia, as decided at the EAPC Summit in Istanbul in June. The Central Asian states endeavoured to intensify their regional cooperation, organising numerous meetings of regional organisations.
As regards domestic policy, in 2004 parliamentary elections were held in Kazakhstan, Uzbekistan and Turkmenistan; the preparations for parliamentary elections in Kyrgyzstan and Tajikistan, as well as for the presidential elections in Kyrgyzstan in 2005, are fully under way.
72 Russia’s stronger commitment manifested itself both economically through increased activities in the individual states and politically through its fully- fledged admission to the Central Asian Cooperation Organization at the May summit in Kazakhstan. The reduction of Russian troops for the surveillance of the border with Afghanistan gave rise to concern by the EU and the USA, who sent a joint fact-finding mission to clarify the situation. The Austrian-led “Border Management in Central Asia” programme (BOMCA) with a local representation in Bishkek supported the local border protection authorities in their reforms by holding seminars.
On account of the new EU Members’ close relations with the region, the relevance of the EU’s Central Asia policy has increased. The EU’s interest mainly focuses on the strategic importance of the region in combating terrorism, drugs and crime, as well as on its role as an energy supplier to Europe. Moreover, 2004 was characterised by an intensification of trade and investment relations and increased cooperation in such fields as water, energy and environment. The intensification of the political dialogue and the promotion of democracy and human rights constituted further priorities of European policy in the region. The EU reaffirmed its policy aimed mainly at regional cooperation by the exchange of high-level visits, the elaboration of recommendations for Central Asia and a regional dialogue in Bishkek on 9 December. The EU held Cooperation Council meetings with Kazakhstan, Kyrgyzstan and Uzbekistan, a meeting of the Sub-Committee on Trade, Investment, Energy and Transport with Kazakhstan, and a meeting of the Sub- Committee for Justice and Home Affairs with Uzbekistan. A Mixed Commission meeting was held with Tajikistan in Dushanbe in October.
In September, parliamentary elections in Kazakhstan ended with an overwhelming victory of the Otan Party which supports President Nursultan Nasarbayev. The ODIHR election observation mission stated that progress had been achieved in comparison with previous elections, but that elections still did not comply with OSCE standards. The EU issued a statement which referred to both progress and shortcomings of the elections and called upon Kazakhstan to carry out improvements by the time the next elections are held, if necessary with the support of the EU.
Kyrgyzstan asked the EU for support in holding the parliamentary and presidential elections scheduled for 2005. President Askar Akaev announced that, in compliance with the Constitution, he would not stand for another term, but sharpened his criticism of the western democracy model and “revolutions” supported from the outside, such as in Georgia and Ukraine.
Tajikistan was the last Central Asian state to sign the Partnership and Cooperation Agreement with the EU in October. In view of the parliamentary and presidential elections scheduled for 2005 and 2006, the government took a
73 tougher stance against possible competitors and increased its hold on media policy. In a statement, the EU emphasised the importance of free media. In connection with the abolition of the death penalty, the EU issued a positive statement in June.
As for democratic efforts, Turkmenistan remained at the bottom of the list of states in Central Asia. At the parliamentary elections in December, the only party admitted was the party supporting President Saparmurat Niyasov. For the first time, the ODIHR was not invited to observe the elections. As in 2003, the EU, together with the USA, submitted a draft resolution to the UN on the humanitarian situation in Turkmenistan.
Uzbekistan saw a rise in terrorist activities which either had an Islamic background or were directed against repressive economic policies and anti- democratic practices of the regime. The three main opposition parties were excluded from the parliamentary elections in December. The EU undertook a number of demarches because of the human rights situation and issued statements within the framework of the OSCE. Uzbekistan’s Cabinet of Ministers issued a decree on the improvement of the cooperation between Uzbekistan and the EU in March.
Two Austrians worked at the representation of the EU Commission in Almaty. Playing a leading role, an Austrian company participated in seminars held in Kazakhstan and Uzbekistan on the Europe Caucasus Asia (TRACECA) transport corridor. One Austrian worked at the BOMCA representation in Bishkek.
10.1.3. Afghanistan
In Afghanistan, the difficult reconstruction process was continued with the adoption of a new constitution on 4 January and the holding of free general presidential elections . On 9 October, interim president Hamid Karzai was elected as the new President and sworn in on 7 December. On 23 December, Karzai presented his new government.
Continued security problems in the provinces impaired the further stabilisation of the country. They were mainly caused by factional fighting between regional and local warlords and militia leaders, hold-ups and attacks by the Taliban, and an increasing drug trade.
At the Afghanistan Conference in Berlin on 31 March, the international community undertook to continue the support of the reconstruction efforts in Afghanistan. The assistance pledged for the period 2004-2006 amounted to 8.2 billion US dollars. The USA continued its “Enduring Freedom” military
74 operation against the Taliban and Al’Qaida in the south and south-east of the country.
The EU was among the main donors in Afghanistan, providing a considerable portion of the International Security Assistance Force (ISAF ) in the country . Austria also contributed to reconstruction at a bilateral level. The help pledged and paid out for the period 2002-2004 amounted to 12.3 million euros, and for 2005 Austria earmarked additional support totalling 1 million euros. Austria focused its aid on the fight against drugs, the strengthening of the rights of women and mine clearance. Austria continued to participate in ISAF by sending staff to the ISAF headquarters in Kabul.
10.1.4. South and South-East Asia
In South Asia, the political climate between New Delhi and Islamabad and the dynamic economic development in India continued to remain the major determining factors. The economic integration of the states of the South Asian Association for Regional Cooperation (SAARC ) was still very weak.
In South-East Asia, the further integration process within the Association of South-East Asian Nations (ASEAN ) was of great importance. ASEAN states continued to hold different opinions on the pace and extent of integration, which can be explained by their varying economic strength and diverging political systems. Economic integration was intensified, not only between ASEAN countries, but also between ASEAN and China, Japan and South Korea. The enhanced economic integration of the region was mainly driven by the dynamic development of the Chinese economy.
For the tsunami disaster in South-East Asia and East Africa see Chapter D.
10.1.4.1. India and Pakistan
On 4 January, the then Indian Prime Minister Atal Behari Vajpayee and Pakistani President Pervez Musharraf agreed to launch a comprehensive dialogue aimed at the peaceful settlement of all bilateral problems, including the Kashmir issue . The start of this dialogue marked the beginning of a phase of détente and improvement of Indian-Pakistani relations, which also had a positive impact on stability in the region as a whole. The new Indian government led by Prime Minister K. Natwar Singh continued the course of détente. Since January, several rounds of bilateral talks have been held at different levels, which, inter alia , led to the implementation of a number of confidence-building measures. The EU welcomed these positive developments and encouraged both states to continue this process of rapprochement and the efforts for a peaceful resolution of the Kashmir issue. India, like China, is connected with the EU via a strategic partnership which was officially
75 launched at the Fifth India-EU Summit on 8 November and which will be implemented by a Joint Action Plan that is still to be elaborated.
10.1.4.2. Nepal
The political situation in Nepal remained unstable. The armed conflict between the government and Maoist insurgents, which has claimed about 10,000 lives since 1996, continued. The talks between the government and the “Maoists” have reached a standstill since the ceasefire ended in August 2003.
10.1.4.3. Sri Lanka
The ceasefire agreement concluded in February 2002 between the government of Sri Lanka and the Liberation Tigers of Tamil Eelam (LTTE) was observed. However, it was not possible to resume the peace talks which had reached a deadlock in April 2003. The unresolved status question of the LTTE-controlled parts in the North and North-East and the criteria for the establishment of a transitional administration for these areas remained the main obstacles to the resumption of talks.
International efforts to get the stalled peace process back on track were continued. Since 2002, Austria has been supporting the peace process through seminars and meetings on methods of conflict management. Two seminars took place in August and October at the Austrian Study Centre for Peace and Conflict Resolution (ÖSFK).
Sri Lanka was severely hit by the tsunami disaster on 26 December (see Chapter D).
10.1.4.4. Indonesia
2004 was an important year for elections in Indonesia. In addition to regional and parliamentary elections, the first direct presidential elections were held in July and September, resulting in the victory of Susilo Bambang Yudhoyono over the incumbent President Megawati Sukarnoputri. The EU welcomed the orderly and peaceful course of the elections. After his victory, President Susilo announced a number of political and economic reforms (among other things, improvement of the investment climate and strengthening the rule of law).
No political solution has been found so far to the conflict over the Aceh Province . The government and the GAM separatist movement continued to hold different views on the future of the province, where the flood disaster of 26 December had caused devastating damage. The state of military emergency, declared by the government for Aceh in May 2003, was replaced in May by a state of civil emergency. Military operations, were, however,
76 continued. After his election victory, President Susilo stressed the necessity to work towards achieving a political solution for Aceh.
10.1.4.5. Myanmar
Despite international pressure, the government of Myanmar was not prepared to make concessions in the field of human rights and democratisation. There was still no sign of a credible process of national reconciliation and democratisation. The house arrest of opposition leader and Nobel Peace Prize laureate Aung San Suu Kyi was extended, and numerous other opposition politicians were held in custody. The National Convention convened by the government in July, whose main task is to work out a new constitution in line with the government’s “road map for democracy”, did not meet the requirements for a transparent, fair and open discussion process. Urgent appeals by the EU to release Aung San Suu Kyi and to guarantee a free, fair and inclusive conduct of the National Convention remained unheard. The EU therefore decided in October to once again tighten the sanctions which had been in effect since 1996. The travel restrictions for government representatives were extended to a wider group of persons, and financial support for certain state enterprises in Myanmar was prohibited. At the same time, the EU decided to step-up its humanitarian support, measures aimed at combating poverty and the support of NGOs.
10.2. Regional Organisations
The Association of South-East Asian Nations (ASEAN ), which consists of ten countries – Brunei, Cambodia, Indonesia, Laos, Malaysia, Myanmar, the Philippines, Singapore, Thailand and Vietnam – remains an important forum for regional cooperation. The volume of goods and services traded within ASEAN doubled in the past decade, reaching around 100 billion euros. Furthermore, the average customs tariff within the Asian Free Trade Area (AFTA ) decreased from almost 13 per cent to 2.3 per cent. The long-term objective of ASEAN is the creation of an “Asian Community” by 2020, made up of three pillars (the Asian Security Community, the ASEAN Economic Community and the ASEAN Socio-Cultural Community). ASEAN maintains an institutionalised cooperation process with China, Japan and the Republic of Korea (ASEAN + 3).
10.3. EU-Asia Partnership
The aim of the Asia-Europe Dialogue, which was established in 1996 within the framework of the Asia-Europe Meeting (ASEM), is to pursue economic, political and social objectives. Until 2004, the 15 EU Member States, the European Commission and the ten ASEAN states, together with China, Japan and the Republic of Korea, participated in ASEM.
77
The Fifth Asia-Europe Summit Meeting held in Hanoi from 7 to 9 October was also attended by Federal Chancellor Wolfgang Schüssel. At this summit it was decided that membership should be expanded from 26 to 39 states. From ASEM 5, the process will bring together the whole European Union including the ten new EU Member States and all of ASEAN including the three ASEAN countries Cambodia, Laos, Myanmar as new members of ASEM. This enlargement had been blocked for a long time because of the human rights situation in Myanmar. Within the ASEM process, the EU is now continuing its efforts to improve the human rights situation in Myanmar. At the Hanoi Summit, the heads of state and government adopted declarations on a closer economic partnership and the Dialogue among Cultures and Civilizations.
A regular formalised dialogue at ministerial level (AEMM) was introduced in 1978 and takes place every two years between the EU and the ASEAN states. The economic cooperation between the EU and the then ASEAN members had already been institutionalised in 1980 with the conclusion of a cooperation agreement covering trade, business and development (EACA ).
11. Australia, New Zealand, Oceania
11.1. Australia
For the EU, Australia is not only a significant export market but also a major partner for dialogue in the regional fora of Asia and the Pacific. The EU is Australia’s most important foreign trading partner and also its largest foreign investor.
After the Liberal-National Coalition’s victory in federal elections on 9 October, the government of Prime Minister John Howard (Liberal Party) took up office for its fourth parliamentary term. At the same time, the Coalition attained the majority of seats in the Senate, which makes it considerably easier for the Prime Minister to implement the legislative projects thus far blocked by the Upper House. These projects include, above all, the further sale of the partly state-owned telephone company Telstra, changes in the field of labour and social law and provisions relating to investment in the media sector. As regards foreign policy, the fight against international terrorism is one of Prime Minister Howard’s priorities.
11.2. New Zealand
For New Zealand, the EU, as its second-biggest trading partner after Australia, is of major economic importance. New Zealand’s economy continued its
78 positive trend in 2004 and was among the most stable and dynamic economies in the OECD area.
Since the election in 2002, Prime Minister Helen Clark (Labour Party), in coalition with Jim Anderton’s Progressive Party, has led a minority government, which needs the support of the United Future Party of former Labour Member of Parliament Peter Dunne in order to gain a majority in parliament. The government’s foreign policy priorities are regional security, human rights, environmental protection and the liberalisation of trade.
11.3. Oceania
Relations between the EU and the majority of the countries in the Oceania region are based on the ACP-EU Partnership, whose legal foundation is the Cotonou ACP-EU Partnership Agreement. This partnership’s most important financial and technical instruments are the European Development Fund (EDF) and the different forms of funding provided by the EIB, such as non- repayable grants and risk capital loans. Under the Cotonou Agreement, negotiations were begun for new regional trade agreements concerning trade liberalisation and the promotion of South-South integration in accordance with WTO rules. The 78 ACP Member States in the Pacific regions which are party to the Cotonou Agreement include Fiji, Kiribati, the Marshall Islands, Micronesia, Nauru, Palau, Papua New Guinea, Samoa, Tonga, Tuvalu and Vanuatu.
The particular economic vulnerability of these island states results mainly from their dependency on the development of a few economic sectors, which is why the EU supports economic diversification. In order to better cope with rising energy prices, these countries are cooperating with the EU in the field of sustainable and renewable energy.
79
B. Austria in other European Fora
I. European Security Policy
1. The Euro-Atlantic Partnership Council (EAPC) and the Partnership for Peace (PfP)
1.1. Developments within NATO
For the Alliance, 2004 was a year of enlargement : with seven Partners (Bulgaria, Estonia, Latvia, Lithuania, Romania, Slovakia and Slovenia) joining at the end of March, NATO now has 26 Member States.
The resolutions adopted at the Summit Meeting of the North Atlantic Treaty Organisation (NATO) in Istanbul on 28 and 29 June included those concerning the establishment of a training mission in and outside Iraq, assistance to the government of Afghanistan in organising the presidential elections, and developing cooperation links to the broader Middle East region through the Istanbul Cooperation Initiative.
The further development of the various operations under NATO command was also of central importance: during the presidential election period in October, the NATO-led International Security Assistance Force (ISAF ) in Afghanistan was strengthened to comprise up to 9,500 soldiers. NATO also increased its forces in Afghanistan’s regions by assuming control of five Provincial Reconstruction Teams (PRTs) in the north of the country.
After nine years of NATO leadership, command of the international military presence in Bosnia and Herzegovina (SFOR ) was handed over to the EU (Operation EUFOR-ALTHEA) on 2 December (see Chapter A.IV.1.2.1.). NATO will keep on a liaison office in Sarajevo to assist Bosnian authorities with the implementation of the armed forces reform. At the conclusion of the mission the Stabilization Force (SFOR) had a total strength of 8,000 soldiers from 28 countries. The NATO-led PfP operation in Kosovo (KFOR) is being maintained at robust strength. At the end of 2004, KFOR totalled around 18,000 soldiers from 34 countries.
In Iraq , NATO supported the Polish-led sector through the provision of logistics and planning capacities. The mission for the training of Iraqi security forces, which had been agreed at the Istanbul Summit in August, was also launched.
80 1.2. NATO-Partner Relations
The 26 NATO Allies work together with 20 Partner countries within the framework of the Euro-Atlantic Partnership Council (EAPC) and the Partnership for Peace (PfP).
At the NATO/EAPC Summit Meeting in Istanbul stock was taken of the PfP’s ten-year existence and future developments were discussed. The PfP’s priorities are increasingly shifting to Central Asia and the Southern Caucasus. South East Europe will keep its status as a priority region. NATO’s Deputy Assistant Secretary General Robert Simmons was appointed Special Representative for the Caucasus and Central Asia.
The implementation of the Partnership Initiatives (Partnership Action Plan against Terrorism, Partnership Action Plan on Defence Institution Building, and instruments to create military interoperability) was continued. A new initiative dealt with measures to combat human trafficking.
The situation in the Caucasus and Central Asia and in South East Europe was discussed at the meeting of the EAPC Foreign Ministers held on 9 December in Brussels. An important priority in the year to come will be the rapprochement to EAPC’s and PfP’s Euro-Atlantic structures of Serbia and Montenegro, and of Bosnia and Herzegovina, with which tailor-made cooperation programmes have been elaborated.
1.3. Austria and the PfP
This year, Austria has once again made an important contribution to the stabilisation of the Balkans within the NATO-led peacekeeping mission. At the end of the year the Austrian KFOR contingent comprised 600 personnel. During the unrest in March the contingent was increased on a short-term basis. At the end of the mission the Austrian contribution to SFOR consisted of around 180 persons. Austria also had up to ten staff officers in the ISAF.
Together with Canada, Austria has assumed the lead role of a PfP Trust Fund Project for the destruction of more then 1.3 million anti-personnel landmines in Serbia and Montenegro. Austria was the first Partner country to take on such a role.
At the EAPC Summit Meeting in Istanbul in June, Austria was represented by Federal Chancellor Wolfgang Schüssel and Federal Ministers Benita Ferrero- Waldner and Günther Platter.
NATO Secretary General Jaap de Hoop Scheffer paid his first visit to Austria on 18 November. He met with Federal President Heinz Fischer, Federal
81 Chancellor Wolfgang Schüssel, Foreign Minister Ursula Plassnik and Defence Minister Günther Platter and gave a speech at the National Defence Academy (Landesverteidigungsakademie, LAVAK) on the topic of “Transatlantic Security Policy Put to the Test”.
At the EAPC Foreign Ministers Meeting in Brussels on 9 December, Austria was represented by the Secretary-General for Foreign Affairs, Johannes Kyrle.
2. The Western European Union (WEU)
Pursuant to the resolutions adopted by the European Council in Helsinki (1999) on the development of a European Security and Defence Policy (ESDP) within the framework of the EU, from 1 July 2001 on the WEU’s mandate was reduced to a few residual responsibilities. The Treaty on Economic, Social and Cultural Collaboration and Collective Self-Defence (Brussels Treaty) with its obligation to provide military assistance remains legally valid, as does the status of the associate members, associate partners and observers (including Austria). In addition to the obligation of the WEU Member States to provide military assistance, the WEU’s remaining functions include parliamentary collaboration within the WEU Assembly, to which Austria sends representatives, and armaments cooperation in the Western European Armament Group (WEAG), in which Austria has participated since 2000.
II. Organization for Security and Co-operation in Europe (OSCE)
1. Introduction
The Bulgarian OSCE Chairmanship set itself the goal of implementing the OSCE Strategy to Address Threats to Security and Stability in the Twenty-First Century agreed the previous year in the areas of combating terrorism, small arms and light weapons (SALW), law enforcement, border security and the human dimension. A total of 24 decisions were adopted at the OSCE Ministerial Council in Sofia on 6 and 7 December, giving a major stimulus to these core areas of OSCE strategy.
In response to the growing debate, the Ministerial Council in Sofia decided to establish a Panel of Eminent Persons to reflect on and redefine the role of the OSCE in the new European context, following the enlargement of both the EU and NATO. The 20 election monitoring and support missions conducted by the Office for Democratic Institutions and Human Rights, inter alia in Georgia, the former Yugoslav Republic of Macedonia, Serbia and Montenegro, Afghanistan, Kazakhstan, Belarus, the USA, and Ukraine, represented a particular focus of the OSCE’s activities. The Bulgarian OSCE Chairmanship
82 was also involved in conflict-solving efforts in Georgia/South Ossetia, Moldova/Transnistria and Nagorno-Karabakh. Austria chaired the Forum for Security Co-operation for the last four months of the year.
In the priority area of combating terrorism the OSCE Ministerial Council in Sofia adopted four documents: the Statement on Preventing and Combating Terrorism, and three decisions – on combating the use of the Internet for terrorist purposes, on reporting lost/stolen passports to Interpol’s automated search facility/stolen travel documents database, and on enhancing freight container security.
2. Regional Issues and Field Activities
The OSCE maintains 18 field operations, all in South East Europe and the Commonwealth of Independent States (CIS), to which the largest portion of the OSCE budget (75 per cent) and human resources were devoted. Austria seconded 29 civilian experts to over half of these field operations, the vast majority being active in South East Europe.
The OSCE’s biggest field activities (six in all) continue to focus on South East Europe , although the manpower resources of the two largest missions in Kosovo and Bosnia and Herzegovina have been reduced in recent years in keeping with the general international trend regarding personnel strength and budget volume. The missions were involved, above all, in re-establishing democratic structures and the rule of law and in post-conflict confidence- building. They worked in areas that are also relevant to the EU’s Stablisation and Association Process. There was particularly close cooperation with the EU in Bosnia and Herzegovina and in the former Yugoslav Republic of Macedonia, where the EU took over the police aspects of civilian crisis- management operations.
2.1. Moldova/Transnistria
The Bulgarian OSCE Chairmanship undertook several initiatives in its endeavours to relaunch the constitution and status negotiations between Tiraspol and Chisinau, which had run aground, particularly since the summer following the clearance by force of four of the six schools located on the territory of Transnistria which taught Moldovan in the Latin script. The last meeting of the five-sided format (see chapter A.IV.4.1.2.) took place in Varna, Bulgaria, on 9 and 10 November. No progress was made in the withdrawal of Russian troops from Transnistria. The OSCE Chairman-in-Office, Bulgarian Foreign Minister Salomon Passy, appointed the former Bulgarian President Petar Stoyanov as his Personal Envoy for Moldova.
83 2.2. Belarus
The Bulgarian Foreign Minister Salomon Passy visited Belarus in June. There were repeated incidents of restrictions to press freedom, and NGOs concerned with human rights were increasingly hindered in their work. The OSCE Office in Minsk reported on developments in these areas and followed up cases of imprisonment of opposition politicians. The ODIHR sent an observation mission to monitor the parliamentary elections in October. The assessments by the election monitoring groups were extremely divergent: while the ODIHR observations were very critical, CIS observers described the elections as “democratic, free, fair, legitimate and transparent”.
2.3. Georgia
The OSCE monitored the presidential elections held at the beginning of January and the repeat of some of the parliamentary elections at the end of March. Austria sent observers to both elections and also contributed to the financing. The OSCE Mission to Georgia, the largest OSCE field operation outside South East Europe, is involved in the political solution to the conflicts in the two separatist enclaves, namely South Ossetia and – under the leadership of the UN – Abkhazia . In view of the rekindling of the conflict in South Ossetia, the Mission’s work focused on that region. With the assistance of additional observers, the OSCE undertook the monitoring of the local Joint Peacekeeping Force, which is made up of representatives from the parties to the conflict and from Russia. The border monitoring operation at the Chechen- Georgian border segment with Russia, set up during the Austrian Chairmanship and subsequently extended to include Ingushetia and Dagestan, was successful, but the operation will probably be discontinued at the end of the year.
2.4. Ukraine
In close collaboration with the authorities and civil society in Ukraine, the office of the OSCE Project Co-ordinator conducted projects to promote the economy, to combat trafficking in human beings, to foster democratisation and – in preparation for the presidential elections – “to encourage the further improvement of the election process” in Ukraine. The identification by the Office for Democratic Institutions and Human Rights (ODIHR) in Warsaw of serious shortcomings in the presidential election in November contributed decisively to the cancellation and repeat of the second round of elections. The third round was monitored by 1,300 international observers headed by the ODIHR, which concluded that “the conduct of the 26 December election process brought Ukraine substantially closer to meeting OSCE election commitments and Council of Europe and other European standards”.
84 2.5. Central Asia
As in previous years, the Chairman-in-Office and his Personal Envoy, former Finnish President Martti Ahtisaari, endeavoured to develop relations between the participating states in Central Asia and the OSCE, which are still in a process of political and economic transition. The OSCE Academy in Bishkek (Kyrgyzstan), set up in December 2002 and successfully consolidated since then, has become a reputed regional institution for the training of experts in Central Asian security issues within an international academic network. Austria has helped to develop this institution by providing it with a training expert.
3. The OSCE Human Dimension
The human dimension , which is concerned with ensuring respect for human rights, democracy and the rule of law, is one of the core components of the OSCE’s activities and one of its most important comparative strengths.
The ODIHR is the operative institution within the OSCE responsible for the human dimension. One of its main tasks is to assist with the conduct of democratic elections through technical support in the drafting and implementation of election law regulations and through election monitoring missions . The ODIHR conducted such missions in 11 of the 33 OSCE participating states in which local or national elections were held in 2004 and also provided support in other cases. In the field of democratisation , capacity- building projects and consultation on issues such as the rule of law, civil society, equal treatment, trafficking in human beings, freedom of travel and migration were carried out in a number of states. The Contact Point for Roma and Sinti Issues within the ODIHR focused on Roma in public life and conflict prevention in various everyday areas. One of the ODIHR’s major tasks is monitoring the observance of human rights by participating states. The honouring of commitments in the entire human dimension was discussed at the annual Human Dimension Implementation Meeting in Warsaw on 4-15 October.
As in the previous year, tolerance issues (combating anti-Semitism, racism, xenophobia and discrimination) formed a core component of the OSCE’s work. Apart from two major conferences dealing with anti-Semitism (Berlin, 28 and 29 April) and tolerance, racism, xenophobia and discrimination (Brussels, 13 and 14 September), an international expert meeting held in Paris on 16 and 17 June discussed the relationship between hate crimes and racist, xenophobic and anti-Semitic propaganda on the Internet. At the end of December, the Chairman-in-Office appointed three Personal Representatives charged with ensuring that the OSCE’s work on various aspects of tolerance is 85 actually implemented: Anastasia Crickley (Ireland), responsible for combating racism, xenophobia and discrimination including intolerance and discrimination against Christians and members of other religions; Gert Weissenkirchen (Germany), responsible for combating anti-Semitism; and Ömür Orhun (Turkey), responsible for combating intolerance and discrimination against Muslims.
In May, Helga Konrad, former Minister for Women’s Issues and former Chairperson of the Task Force on Trafficking in Human Beings of the Stability Pact for South Eastern Europe, was appointed by the OSCE Chairman-in- Office as Special Representative on combating trafficking in human beings .
Rolf Ekéus (Sweden), High Commissioner on National Minorities , was reappointed for a further term of office. His institution is mandated with the early identification and settlement of ethnic tensions that could threaten peace, stability and good relations between OSCE participating states.
In March, the Hungarian university professor Miklos Haraszti was appointed OSCE Representative on Freedom of the Media . This OSCE position was established in 1997 to promote standards and commitments in respect of the freedom of the media, since limitations of this freedom may be seen as the first indication of a potential source of political conflict. Apart from reports on obstructions to journalists and newspaper publishers, his main focus was on the decriminalisation of libel by journalists, the role of the media during election campaigns, and media concentration.
The OSCE Parliamentary Assembly , with its headquarters in Copenhagen and, since 2002, a liaison office in Vienna, is made up of more than 300 parliamentarians from the 55 participating states. At the Thirteenth Annual Session held in Edinburgh (UK) in July, Alcee Hastings (USA) was elected President for the period July 2004 to July 2005. Since 2002 a Winter Meeting of the Assembly has also been held in Vienna every year.
4. The OSCE Politico-Military Dimension
The Forum for Security Co-operation is responsible for politico-military issues. Austria chaired the forum for the last four months of the year and was thus responsible for the conclusion of ongoing negotiations, the organisation of security dialogue and creating a new impetus in the lead-up to the Ministerial Council in Sofia.
Agreement was reached at the Ministerial Council on four decisions . The first of these was the decision to implement the OSCE document on stockpiles of conventional ammunition, which present an enormous threat to the civilian 86 population, infrastructure and environment. So far, Ukraine, Belarus, Russia, Tajikistan and, most recently, Kazakhstan have asked the OSCE for assistance in securing or destroying these dangerous stockpiles of ammunition. The other decisions were on export controls of man-portable air defence systems (MANPADS), on the control of brokering in small arms and light weapons, and on standard elements of end-user certificates and verification procedures for SALW exports.
Significant progress was made in the field of anti-personnel mines through the adoption of a decision on a new questionnaire, which was forwarded to the President of the First Review Conference of the Antipersonnel Mine Ban Convention in Nairobi (see Chapter G.II.1.).
Some progress was made in dealing with requests for assistance from Belarus and Tajikistan for securing or destroying dangerous stockpiles under Section IV of the OSCE Document on Small Arms and Light Weapons , but, in view of the magnitude of the problem, so far solutions have been achieved in isolated areas only.
The second Annual Security Review Conference (ASRC) to review the OSCE’s security work took place on 23 and 24 June.
At a seminar held in Vienna on 14 and 15 October on the commitments undertaken in the Treaty on Open Skies , the specific possibilities for using military overflights for environmental observations were studied for the first time.
The prospects that the Adaptation of the Treaty on Conventional Armed Forces in Europe will come into force in the near future are still slight, since its ratification is contingent on the fulfilment by Russia of its Istanbul commitments (withdrawal of military equipment and personnel from Moldova and Georgia).
The Regional Arms Control Verification and Implementation Assistance Centre (RACVIAC ), headquartered in Croatia, is instrumental in confidence- building in South East Europe and is linked with the OSCE through the Stability Pact for South Eastern Europe. It was headed for two years (until October 2004) by an Austrian brigadier. Austria continues to second a staff officer to this Centre.
5. The Economic and Environmental Dimension of the OSCE
The theme of the 2004 Economic Forum was “New Challenges for Building up Institutional and Human Capacity for Economic Development and 87 Cooperation”. Austria participated in the working group devoted to strengthening the service and networking capacity of business organisations with a contribution on the experience of the Österreichische Kontrollbank in export business with Eastern Europe.
The Economic and Environmental Dimension of the OSCE is essentially concerned with the implementation of the Strategy Document for the Economic and Environmental Dimension adopted at the Maastricht Ministerial Council in 2003. At the Ministerial Council Meeting in Sofia, a Memorandum of Understanding on early warning and the implementation of the economic strategy was signed by the OSCE Secretariat and the Secretariat of the United Nations Economic Commission for Europe (UNECE). At this meeting, the Ministerial Council also adopted a decision on combating corruption , which tasked the Office of the Co-ordinator of OSCE Economic and Environmental Activities (OCEEA) to provide the participating OSCE states, at their request, with support in their national processes of ratifying the United Nations Convention against Corruption of 31 October 2003. Participating states that had not yet ratified the Convention were urged to do so by 9 December 2005.
6. OSCE Reform
The Twelfth Ministerial Council in Sofia adopted a decision establishing a Panel of Eminent Persons to make recommendations on the repositioning of the OSCE in the new European context following the enlargement of the EU and NATO. A working group chaired by Romania dealt with institutional questions. It was decided in Sofia that the role of the OSCE Secretary General should be strengthened. The drafting of new OSCE Rules of Procedure was postponed until 2005 because of irreconcilable differences. A further working group chaired by Austria dealt with the reorganisation of field operations.
7. Institutional Issues and Headquarters
In view of the fact that the OSCE scales of contributions were due for review at the end of the year, negotiations on their revision were continued, but no agreement was reached. After completion of the planning for the new permanent headquarters of the Vienna-based OSCE institutions in the autumn, work on the necessary modifications was commenced in December. The permanent headquarters in the centre of Vienna should be ready for occupancy in 2007.
88 III. Council of Europe (CoE)
1. Political Developments
On 4 October, the Principality of Monaco was accepted as the 46 th Member State . The essential issues that had hindered accession (limited sovereignty, accession to essential CoE Conventions, domestic legislation) were resolved. The Parliamentary Assembly is continuing to suspend the special guest status of Belarus because the situation in the country is still unsatisfactory by CoE standards.
The development of the situation in Chechnya was given special attention by the Committee of Ministers and the Parliamentary Assembly. The Secretary General’s experts in the office of President Vladimir Putin’s human rights special representative in Grozny provide CoE expertise in the field of human rights and exercise an advisory function.
Representatives of the Parliamentary Assembly and the Congress of Local and Regional Authorities were involved in the OSCE-organised international election observation missions to Georgia, Kosovo, Russia, and Ukraine. The CoE also assisted the Georgian authorities with the preparation and conduct of parliamentary and presidential elections.
The CoE and EU provided Moldova with considerable support to help it comply with its membership commitments within the framework of joint programmes in the fields of democracy, justice, and the freedom of expression and information (deployment of consultants and technical equipment). Armenia and Azerbaijan have not yet complied with all their membership commitments. A monitoring group specifically established for the purpose is providing support to both countries. Problems also continue to exist in the media sector and concerning the freedom of expression and information in Ukraine. The mysterious death of journalist Heorhiy Gongadze has remained unsolved.
The CoE further pursued its programme on the fight against terrorism and completed the elaboration of a legal instrument to complement the existing conventions. Gertraude Kabelka from the Federal Ministry of Justice, the Austrian chairperson of the specially created Committee of Experts on Terrorism, was the driving force in these negotiations, which closed gaps in the law hampering international action against terrorism, particularly in the areas of terrorism financing and prevention and the protection of witnesses and victims.
89 2. Relationship with other International Organisations
The close cooperation between the CoE and the EU was further intensified. There is a regular exchange of information on current activities and projects between the public officials of the CoE Secretariat and the European Commission. The CoE maintains a permanent office in Brussels. Representatives of the European Commission attend meetings held by the Committee of Ministers, the Ministers’ Deputies and the Rapporteur Groups. Special emphasis is placed on the jointly prepared and co-financed programmes for Central and Eastern European countries, which help to promote the areas of legislation, the rule of law and democracy. The annual quadrilateral political-level meeting of the Chair of the Council of Europe, the Chair of the European Council, the Secretary General of the Council of Europe and a high-ranking representative of the EU Commission dealt with the development of the European institutions – EU enlargement, ENP, the EU’s accession to the European Convention for the Protection of Human Rights and Fundamental Freedoms (ECPHR) – and the Third Summit of Heads of State and Government of the CoE, which will be held in Warsaw in May 2005. Further subjects discussed were the new joint programmes in South East Europe, Russia, Georgia, the Southern Caucasus and Moldova, which are geared towards fostering democracy and consolidating the rule of law, and which examine cooperation in the field of conflict prevention. The future cooperation between the Council of Europe and the EU and the positioning of the CoE within the European institutional landscape will also be discussed as a principal topic at the Third CoE Summit.
Cooperation with the OSCE takes place within the institutional context of the biannual 2+2/3+3 meetings (of the Chairpersons, Secretaries General and Presidents of the Parliamentary Assemblies, respectively). In addition, public officials hold regular working meetings. A high-level meeting between the CoE and the OSCE, which took place in Vienna in July, centred on the coordination of the programmes set up by the two organisations in the Balkans and the Caucasus. Council of Europe Secretary General Walter Schwimmer participated in the meeting of the OSCE Permanent Council in Vienna on 22 July and in his statement particularly emphasised the future cooperation and division of labour of the two European institutions. As regards election observation, there has already been very intensive cooperation with the ODIHR. Major initiatives were also launched concerning the coordination of measures to combat international terrorism and trafficking in human beings. A working group established specifically for cooperation with the OSCE is responsible for defining a clear division of tasks and work so as to enable the two organisations to create synergies and perform their duties without overlapping.
90 Regular contact is also maintained with the UN . On 13 February, a high- ranking trilateral meeting between the Council of Europe, the OSCE and the UN, which had been prepared by the CoE Secretariat and the OSCE, took place in Vienna. The discussions focused on cooperation in combating international terrorism, possible measures against human trafficking and intensified collaboration in the fight against racism and xenophobia, a priority goal being to strengthen future cooperation with the UN in the field of international action against terrorism. The CoE’s guidelines on human rights relating to the fight against terrorism are of particular interest to the UN.
3. Human Rights
See Chapter H.V.
4. Monitoring
Monitoring of the respect of commitments accepted by member states, especially in the field of human rights, pluralist democracy and the freedom of expression and information, is one of the CoE’s most important instruments to ensure that member states are actually respecting and honouring their obligations and commitments. Monitoring by the CoE’s Parliamentary Assembly, which is performed on an ongoing basis (visiting missions, reporting, making recommendations), is distinct from that of its Committee of Ministers.
At present, there are three different types of monitoring undertaken by the Committee of Ministers:
• Monitoring of the respect of the obligations undertaken by the Member States by virtue of the 1994 Declaration on Compliance with Commitments accepted by Member States;
• Thematic monitoring, which has been carried out since 1996 and is applicable to all Member States, currently covers ten areas (including the freedom of expression and information, the functioning and protection of democratic institutions, the functioning of the judicial system, and non- discrimination, with an emphasis on the fight against intolerance and racism). This thematic monitoring was reformed in 2004 at the suggestion of Secretary General Walter Schwimmer;
• Specific post-accession ad hoc monitoring of Armenia’s, Azerbaijan’s and Georgia’s membership commitments. This is a confidential process
91 extending over a longer period of time, which cannot be completed with an immediate result. In the case of Armenia and Azerbaijan this is done by a monitoring group set up specifically for the purpose, of which Austria is also a member. The monitoring group visited both countries and discussed the implementation of their membership commitments with leading representatives of state, parliamentarians, representatives of the media, and NGOs. The fulfilment of Georgia’s commitments is being monitored by the Committee of Ministers.
5. Assistance Programmes
Emphasis is also placed on the Council of Europe’s activities in the following areas: promotion of the idea of human rights, of a pluralist democracy and of the rule of law; promotion of the awareness of a common cultural identity in all its diversity; the search for solutions to Europe’s social problems (such as discrimination of minorities, xenophobia, intolerance, environmental pollution, human cloning, HIV/AIDS, drugs and organised crime) and the consolidation of democratic stability in Europe through the promotion of political, legislative and constitutional reforms.
The CoE’s political commitment in fulfilling these tasks is primarily demonstrated by the assistance programmes and the programmes for cooperation in the Balkans, the Caucasus and Russia. In the field of programmatic activities some 14 million euros were thus made available to support activities and programmes for collaboration with 24 Member States and other countries (such as Belarus), the main beneficiaries being the new Member States. The fields in which the CoE provides assistance are widespread, ranging from the promotion of human rights, the support of democratisation endeavours and the strengthening of civil society, to the reform of the judiciary and administration and the promotion of social cohesion. The activities consist primarily of providing experts and organising training schemes. This programme also served to fund the Council of Europe’s information offices in the countries of Central and Eastern Europe and the CoE’s offices in Tirana, Belgrade, Pristina, Podgorica, Sarajevo/Mostar, Skopje, Chisinau, Tbilisi, Baku and Yerevan.
Within the framework of Joint Programmes with the EU, the CoE implemented programmes supporting human rights and democratisation in Russia and in the Southern Caucasus (Armenia, Azerbaijan, Georgia).
92 6. Organs of the Council of Europe
The CoE is composed of the following organs:
• The Committee of Ministers, consisting of the Foreign Ministers of the 46 Member States and their deputies (Ministers’ Deputies). This is the organisation’s decision-making body and the chair is rotated on a biannual basis.
• The Parliamentary Assembly, with 630 members (315 representatives and 315 substitutes) from 46 national parliaments.
• The Congress of Local and Regional Authorities, consisting of a Chamber of Local Authorities and a Chamber of Regions.
• The Secretariat General, with approximately 2,000 employees.
6.1. The Committee of Ministers
Since the reform of 2004, the Committee of Ministers has met at ministerial level only once a year. The 114 th Session was held on 12 and 13 May in Strasbourg and chaired by Norway’s Foreign Minister, Jan Petersen. Austria was represented by the Secretary-General for Foreign Affairs, Johannes Kyrle. The major topics were the reform of the ECPHR and increasing the efficiency of the European Court of Human Rights, the preparations for the Third Summit of Heads of State and Government of the Council of Europe, scheduled to take place in Warsaw in May 2005, and the CoE’s contribution to international action against terrorism. The Ministers’ Deputies normally meet once a week.
6.2. Parliamentary Assembly
The Parliamentary Assembly meets four times annually in plenary session and periodically in its committees and subcommittees. The Parliamentary Assembly and its Standing Committee issue resolutions, recommendations, opinions and guidelines to the Committee of Ministers, national governments, parliaments and political parties. Austria is represented by six members and six substitutes, who are appointed by the National Council and the Federal Council.
The Parliamentary Assembly has 315 members and 315 substitute members, who have amalgamated into five parliamentary groups: the Socialist Group (SOC), the Group of the European People’s Party (EPP/CD), the Group of Liberals, Democrats and Reformers (LDR), the European Democrat Group
93 (EDG) and the Group of the Unified European Left (UEL). There are 26 members who do not belong to any group. Furthermore, the members are also grouped into national delegations. The Austrian delegation is headed by Member of Parliament Michael Spindelegger.
The Parliamentary Assembly also performs important monitoring tasks, such as election observation in CoE Member States and candidate countries, for instance during the presidential elections in Ukraine and the parliamentary elections in Kosovo. Furthermore, it monitors the development of individual countries’ compliance with the commitments and obligations they undertook on joining the Council of Europe (in 2004, Armenia, Azerbaijan, Bosnia and Herzegovina, and Serbia and Montenegro, among others).
6.3. The Congress of Local Authorities and Regions of the Council of Europe (CLRAE)
The CLRAE was founded in 1957 as the Standing Conference of Local and Regional Authorities of Europe and was established as a consultative body of the CoE in 1994. Its 315 members meet once a year in a plenary session in Strasbourg. The Congress formulates important recommendations to the Committee of Ministers in the areas of urban and municipal democracy, as well as environmental protection, disaster protection and social cohesion. These issues are further pursued in Austria by the Association of Towns and Cities and the Association of Municipalities, the Liaison Office of the Federal Provinces and the relevant ministries. Particularly in the field of monitoring local and regional democracy, the Congress performs a remarkable task, both in terms of quality and of quantity. The monitoring of the CLRAE also has a bearing on the monitoring of the commitments accepted by the Member States when joining. For South East Europe the Congress also offers projects within the Stability Pact (developing and strengthening democracy at local level). Programmes for the further development of local and regional democracy are offered for the southern Mediterranean countries.
7. The Council of Europe and Austria
Austria attaches major importance to pro-active participation in the CoE and is particularly active in the fields of enforcement of human rights, culture/education and social affairs, as well as in international action against terrorism. The five-year term of office of Secretary General Walter Schwimmer ended in August. He was succeeded by Terry Davis from the United Kingdom. Member of Parliament Peter Schieder was President of the Parliamentary Assembly from January 2002 to January 2005. From June 2002 to June 2004, the Governor of the Province of Tyrol, Herwig van Staa, was President of the CLRAE. He was succeeded by Giovanni di Stasi from Italy. 94 IV. Central European Initiative (CEI)
The CEI primarily aims to ensure that its Central, Eastern and South East European Member States participate in the process of European integration, to promote regional stability and development and to prevent new divisions in Europe. It comprises 17 European countries, including seven old and new EU Member States. In 2004, the Initiative was presided over by Slovenia, which will hand over the Presidency to Slovakia in 2005.
The major event in 2004 was the CEI Summit of Heads of Government in Portorož, Slovenia, on 26 November. The elections and referendums that had been held immediately before the Summit in two of the Member States, namely Belarus and Ukraine (where a second round of presidential elections was conducted and later declared invalid), formed the topical political backdrop against which the partners involved were reminded of the democratic basis of European integration. The Summit also took place against the background of the organisation’s fifteenth year of existence. It is currently undergoing organisational streamlining and thematic reorientation directed by the Austrian Director General, Ambassador Harald Kreid, who at this year’s Meeting of the CEI Ministers of Foreign Affairs (also held in Portorož on 25 May) was unanimously appointed for another three-year term.
Austria initiated a reorganisation of the CEI’s activities within the existing 16 working groups, which will be combined into competence clusters so as to better harness possible synergies between the individual working groups in the future.
In 2004, the CEI considerably increased its capacities in the fields of science and technology (Science and Technology Network) and inter-university cooperation (CEI University Network) and also founded its own youth orchestra.
V. Neighbourhood Policy
1. Regional Partnership
The concept of the Regional Partnership with the neighbouring new EU Member States – the Czech Republic, Hungary, Slovakia, Slovenia and “cultural neighbour” Poland – is a logical consequence of the existing close cooperation in Central Europe. Prior to the enlargement of the EU, the Regional Partnership served both to reduce potential sources of friction and to support the partner countries in their accession negotiations and adjustment to EU regulations. It was also used as an important consultation framework for
95 the EU’s constitutional convention and Lisbon agenda. Since enlargement, the Regional Partnership has helped to define matters of common interest and to promote them within the EU. It has thus become part of existing regional networks making relations between EU Member States more workable, thereby providing clear benefits both for the partners and for the neighbouring regions.
In this regard, cooperation within the Regional Partnership grew considerably in scope and depth in 2004. The partner countries made joint contributions to the ENP by developing proposals for the future of Kosovo and for the further development of the EU Action Plan for Ukraine (see Chapter A.IV.2.). The tsunami disaster at the end of the year and the mutually rendered practical assistance prompted the partners to prepare joint proposals for a better coordination of national and European efforts in future emergencies. Cooperation in different policy areas at the respective ministerial level was also stepped up, with the most progress being made by the Ministers of the Interior grouped together in the Salzburg Group.
Since the inception of this forum, the Foreign Ministers of the partner countries have been meeting regularly in the countries holding the Presidency, and at intervals within the framework of the General Affairs Council in Brussels. On 8 December 2004, a meeting of the Heads of Government took place for the first time in Warsaw during a conference of the Visegrad Cooperation. The Regional Partnership will continue to pursue its goals pragmatically and to look for ways of cooperating in specific areas and on specific occasions with the closely related Visegrad Group. A notable feature of the Partnership is the fact that it manages without any institutional and bureaucratic structures.
2. Switzerland and Liechtenstein
2.1. Switzerland
Bilateral relations between Switzerland and Austria are marked by a growing set of tightly-knit treaties and the traditionally lively exchange of visits at all levels. Visits were paid to Switzerland by the Federal President, the Federal Chancellor, the Vice-Chancellor, the Foreign Minister and several other ministers and, at parliamentary level, by the Presidents of the National Council and the Federal Council. In this context, Federal Minister Ursula Plassnik attached special importance to keeping up a tradition in which Switzerland is the first country visited by every new Austrian Foreign Minister. During the same period, Austria welcomed members of the Swiss government on several occasions. With a total trading volume of 6.7 billion euros, Switzerland is one of Austria’s most important trading partners. There 96 has been a lively exchange of training and information in the sphere of military cooperation and twelve Swiss Air Force F-5E Tiger aircraft were also leased to the Austrian Armed Forces. The cultural links have been marked by a number of performances by Austrian artists and ensembles in all branches of art.
Swiss foreign policy was generally very active. As regards the Middle East, Switzerland continues to support the Geneva Initiative, which has been supplemented by a mandate from the UN General Assembly concerning the application of humanitarian law in the Occupied Territories and a humanitarian project within the framework of the planned Israeli withdrawal from Gaza. Another focal point was South East Europe. Talks on the Balkans were held in Lucerne in May, where the continuation of inter-ethnic dialogue in Kosovo following the mid-March clashes was debated. The continuing participation of the SWISSCOY company (216 personnel) within the Austrian AUCON battalion in Kosovo until the end of 2008 was agreed. It was also decided that Switzerland would participate in the EUFOR-ALTHEA operation. In May, activities centred on the crisis in Sudan.
Switzerland had been negotiating bilateral treaties (“Bilaterale II”) with the EU since 2002. The agreements cover the following fields: association with Schengen/Dublin; combating fraud; taxation of savings income; processed agricultural goods; statistics; participation in the European Environmental Agency; participation in media programmes; double taxation of the pensions of retired EU officials resident in Switzerland, and educational programmes. All agreements and a protocol on extending the free movement of persons to the new EU Member States were signed on 26 October. In an exchange of letters, 1 July 2005 was agreed as the starting date for application of the Directive on taxation of savings income and the related third country agreements. In the autumn, Switzerland also declared its willingness to contribute 1 billion Swiss francs over the next five years to promoting the economic and social cohesion of the new EU Member States.
2.2. Liechtenstein
On 15 August, Prince Hans-Adam II appointed Hereditary Prince Alois as his permanent representative to exercise the sovereign powers due to him as Head of State of the Principality of Liechtenstein. In his first address, the Hereditary Prince expressed his support for extensive reforms, simple and transparent state structures and decisions that cater for the Principality’s citizens’ needs as a means of coping with the specific challenges small states will face in the future. As concerns an area of particular importance to Liechtenstein, the protection of the country’s status as a financial centre, a significant step was the signing of agreements on the taxation of savings income with the EU on 7 December in Brussels.
97
The highlight of the bilateral relations was the state visit by Prince Hans-Adam II to Federal President Thomas Klestil on 24 March, in the course of which the Liechtenstein Museum in Vienna was reopened.
3. South Tyrol
3.1. General
The year 2004 saw a lively exchange of visits between South Tyrol and Austria, personnel changes within the South Tyrolean People’s Party (SVP) and intensive attention to South Tyrolean affairs. A decisive point was the retirement of Secretary General Siegfried Brugger on 12 January after a ten- year term of office.
On 14 January, the parliamentary subcommittee on South Tyrol convened for the first time in the current parliamentary term and dealt specifically with the “declaration of membership of one of the three linguistic groups listed in the statute of autonomy” and the impending EU proceedings in this context. The subcommittee also agreed to pay an official visit to South Tyrol.
On 17 April, the SVP’s party conference was organised in Merano, and the deputy mayor of Bolzano, Elmar Pichler Rolle, was elected the new SVP Secretary General with 71.9 per cent of votes cast. The Austrian delegation was led by the President of the National Council, Andreas Khol, and Federal Minister Günther Platter.
From 19 to 21 May, the parliamentary subcommittee on South Tyrol, headed by the President of the National Council, Andreas Khol, paid the official visit to South Tyrol that had been agreed at the meeting of 14 January. The first visit in nine years, it served to take stock of the current situation regarding South Tyrol’s autonomy. Talks centred on the declaration of linguistic identity and on Italy’s constitutional reform and its possible effects on South Tyrol.
Three South Tyrolean candidates were elected to the EP on 13 June: Michl Ebner (South Tyrolean People’s Party), Lilli Gruber (Olive Tree Coalition/Uniti nell’Ulivo) and Sepp Kusstatscher (Greens). While the SVP still ranks first, it lost 9.2 per cent of the vote, and with a total of 46.7 per cent of the votes it dropped below the 50 % mark.
On 16 September, Federal Minister Benita Ferrero-Waldner chaired talks in Vienna on the topic of South Tyrol. South Tyrol was represented by SVP Secretary General Elmar Pichler Rolle, Governor Luis Durnwalder, Alexander Mittermair, who had been appointed SVP party secretary on 1 September, and 98 a number of Members of Parliament and SVP officials. The exchange of ideas centred on the two topical issues of Italian constitutional reform and the declaration of linguistic identity.
On 3 December, Secretary General Elmar Pichler Rolle, Governor Luis Durnwalder, Siegfried Brugger, representative of the Chamber of Deputies, Senator Helga Thaler-Ausserhofer and MEP Michl Ebner paid a first visit to Federal Minister Ursula Plassnik and also met with the President of the National Council, Andreas Khol.
3.2. Development of Autonomy
The status of the South Tyrolean minority may be regarded as secure. In the past year, the European Commission made a formal request to the Italian government concerning the “declaration of membership of one of the three linguistic groups listed in the statute of autonomy” and the compatibility of this requirement with data protection regulations. Consequently, South Tyrol’s Governor Luis Durnwalder conducted negotiations with Minister for European Affairs Rocco Buttiglione and Regional Affairs Minister Enrico La Loggia, and the key points of a framework solution were agreed upon. The details were negotiated in the Commission of Six and a solution was agreed in December, which was subsequently approved by the Italian data protection commissioner.
A major issue was the consultations of the Italian Parliament on Italy’s constitutional reform, which aims at far-reaching restructuring of Italy’s institutions. As parts of the first drafts prepared in the Chamber would have entailed a substantial loss of autonomy for South Tyrol, an intensive round of negotiations was required to work out provisions acceptable to South Tyrol and to adapt the final text, which was adopted by the Chamber in mid- October. The draft reform is now due for a second reading in the Chamber and the Senate. The South Tyrolean People’s Party continues to assume a critical position on the content of the constitutional reform.
4. Nuclear Safety
Protection of the population and the environment, and the related safety requirements, especially of nuclear power plants (NPP) near borders, are an issue of the highest priority for the Federal Government. Another matter of central concern in 2004 was the implementation on schedule of the Conclusions of the Melk Process and Follow-Up, an agreement concluded with the Czech Republic on 29 November 2001 regarding the Temelin NPP . Both sides adhered strictly to the agreements and worked constructively and intensively towards their implementation. Thus, the final workshop and the 99 regular bilateral experts’ meeting in November completed the technical part of the Brussels road map. Both parties found the entire process a good example of confidence-building measures that has contributed significantly to improving relations between the two countries. A final political evaluation will be undertaken as soon as Austria’s last expert reports are available. The zero variant is still not an option for the Czech Republic; however, alternatives to the Temelin NPP are being discussed by a scientific working group on a sustainable energy policy for Europe.
Within the framework of the Bilateral Agreement between the government of Austria and the government of the Czech Republic on Issues of Common Interest in the field of nuclear safety and radiation protection, the Czech Nuclear Supervisory Authority and the Austrian Federal Ministry for Agriculture, Forestry, Environment and Water Management signed a bilateral agreement in March concerning the exchange of the data and information used as a basis for decision-making by each country when assessing the consequences of serious nuclear incidents. This exchange of information has been taking place since the end of the year and will be supplemented by regular exercises.
The nuclear expert meetings held in the context of the nuclear information agreements with the neighbouring states for the timely exchange of information and experience on the safety of nuclear power plants, radiation protection and cross-border consequences of radiological dangers and their effects were continued as planned. Particular attention was paid to emergency protection planning, radiation protection and measured data. Bilateral exchanges of data recorded by the Austrian radiation early warning system and similar networks in neighbouring countries were expanded through the start-up of a data exchange programme with Hungary. Germany and Switzerland also expressed their willingness to join this bilateral data exchange system. With Switzerland, the conducting of a joint emergency exercise in 2005 was agreed within the framework of the bilateral expert talks. The problem of intermediate and final storage again featured prominently on this year’s discussion agenda.
5. Alpine Convention
In the second year of its existence, the Permanent Secretariat of the Alpine Convention essentially completed the important setting-up phase. Basically, it is now fully staffed. At the 8 th Alpine Conference chaired by Germany in Garmisch-Partenkirchen in November, the financial and staff regimes, which had been completed under Austria’s presidency and which are crucial to the operability of the Permanent Secretariat, were adopted. However, no agreement was reached regarding the nomination of a future Secretary- 100 General; Noel Lebel of France was appointed interim Secretary-General, albeit only for the period preceding the 8 th Alpine Conference.
The main issues on the agenda of the 8 th Alpine Conference were a ministerial declaration regarding traffic and transport in the Alps with particular reference to the situation on the Brenner, where a marked increase in traffic volume has been recorded in the past few years; the decision to draft a report on the state of the Alps; and the agreement on a long-term working programme. The basic concept for a future ministerial declaration on the important issue of population and culture was adopted. After several meetings, the monitoring committee agreed on a standard for the implementation reports, which the parties to the Convention are requested to use for the reports to be completed by autumn 2005. On the basis of these reports the Review Committee will then be responsible for evaluating the implementation by the individual parties to the Convention.
By resolution of the 8 th Alpine Conference, the presidency of the Alpine Convention was handed over to Austria, which means that Austria will thus also preside over the Permanent Committee and the review committee in the period 2005/2006.
6. Cooperation in the Danube Region
6.1. Danube Co-operation Process
The Danube Co-operation Process was launched in Vienna on 27 May 2002 by the Foreign Ministers of the 13 countries of the Danube basin, the European Commission and the Stability Pact for South Eastern Europe. It is designed to give the Danube region a broad political forum in order to intensify cooperation in the region, to orient the diverse regional activities and organisations towards regional focal points, and to contribute to the economic and political stabilisation of this – in many respects – very heterogeneous region.
The most important event was the Second Ministerial Conference in Bucharest on 14 July. In the run-up to this conference several preparatory meetings at public officials’ level were held, including a meeting in Vienna on 5 March. In Bucharest, the Ministers adopted a substantial final document entitled “The Danube as a European Lifeline”, which sets out the future common goals within the six dimensions, i.e. the environment, the economy, transport/navigation, tourism, culture and regional cooperation.
At the Second Ministerial Conference, the Austria-sponsored website of the Process, the Danube Portal at www.danubecooperation.org , was also 101 introduced as a special contribution by Austria to Danube cooperation. In parallel with the Ministerial Conference in Bucharest – and within the context of the Danube Co-operation Process – a successful meeting of business people and a number of other institutions was organised.
6.2. Danube Navigation
The pontoon bridge in Novi Sad continues to hinder the free passage of ships . It is not expected to be dismantled before July 2005 after the completion of the Sloboda motorway bridge. The Danube Commission’s sixth extraordinary session in March merely succeeded in ensuring that the opening charges will be lowered and the frequency of opening times raised.
The organisation’s problems that had become manifest at the 61 st annual session of the Danube Commission in April 2003 persisted. Austria provided the Director-General from 1990 until 2002 and subsequently held the presidency. It had a decisive influence on the Danube Commission’s fortunes and strengthened the organisation during the period of political and economic transition in the region, orienting its commitment in particular towards a revision of the Belgrade Convention . In the light of the changing framework of economic and integration policy, the renewal of the Danube Commission as a modern, international organisation will help to create the basis for a competitive means of transport in a European network of inland waterways. The working groups on navigation issues chaired by Romania and on institutional and legal questions headed by Austria, which had been established by the Preparatory Committee in Budapest in October 2003, both succeeded in completing their work in less than a year in Vienna at the end of September. However, a few questions that are crucial if the modernisation of the Danube Commission is to be effective remained unresolved. The Diplomatic Conference in Belgrade is expected to sign a protocol amending the Convention.
6.3. Danube River Protection Convention
To celebrating the tenth anniversary of the signing of the Danube River Protection Convention, which laid the foundation stone for the Vienna-based International Commission for the Protection of the Danube River (ICPDR) and which has been in existence since 1998, the Commission’s Seventh Ordinary Meeting at the level of Environmental Ministers took place at the Vienna International Centre (VIC) in December. The Ministers agreed on a substantial Declaration entitled “The Danube Basin – Rivers in the Heart of Europe (Danube Declaration)” . The document states that significant progress had been made during the first decade of this cooperation, including, not least, the adoption of binding objectives and joint monitoring of the water quality, and the commitment to apply the EU Water Framework Directive in the whole
102 Danube basin. In wide areas of the Danube basin, water quality has demonstrably improved. The Declaration also contains a list of problem areas that remain to be resolved and concrete objectives for the Commission’s future actions.
A very comprehensive, analytical “Roof Report” that addresses the ecological situation of the Danube river system was agreed at the December meeting and is regarded as a particular success by the Member States.
Responding to the disastrous floods of the summer of 2002, the Commission also elaborated a Joint Action Programme for Sustainable Flood Protection in the Danube catchment area.
To increase public awareness and basic solidarity of all Danube countries, “Danube Day” was organised for the first time in June with a large number of activities in the various states and is to become a regular event in the future.
103 C. The Legal and Consular Dimension of Austrian Foreign Policy
I. General Legal and Consular Issues
Among the most important functions of the Federal Ministry for Foreign Affairs are its services to Austrian nationals permanently resident in or visiting a foreign country, be it for private or for business reasons, who get into serious difficulties while abroad. This applies not only to consular assistance in individual cases, including support to Austrian citizens who are in custody abroad, but also to measures for the protection of Austrians in times of crisis or disaster.
Assistance is usually provided through the local Austrian Embassy, Consulate General or Honorary Consulate, with the competent authorities of the country in question being called in if necessary. If there is no Austrian diplomatic or consular representation or authority in a particular country, the local representation/permanent mission of another EU Member State is contacted in urgent cases (consular cooperation between EU Member States and the obligation to render mutual assistance to citizens of the Union pursuant to Article 20 of the EC Treaty).
1. Citizens’ Service
In view of the worldwide terrorist attacks and natural disasters and the ensuing insecurity among travellers, the Citizens’ Service of the Federal Ministry for Foreign Affairs, and in particular the travel notes on its www.aussenministerium.at , have proved very useful as an objective source of information for those travelling to foreign countries. The details are continuously updated, with special emphasis on crisis situations, and the website has in the meantime become well-known. In addition, employees of the Federal Ministry for Foreign Affairs can be reached around the clock at the phone number +43 50 11 50 ext. 4411 in cases of consular emergencies abroad and to obtain travel information. Up to 1,000 callers per day enquired about the security situation in their destination countries or requested general travel information and consular details regarding visas, citizenship issues, the procurement of documents, certifications and official procedures.
In order to respond better to crises, cooperation between Austrian representations and the authorities of the respective country and other EU Member States has been intensified. Several Austrian embassies invited expatriate Austrians to information sessions or supplied them with written information about the necessary precautionary measures and possibilities of support in times of crisis.
104
In cooperation with the Austrian representations abroad, the Citizens’ Service offered consular assistance in emergencies occurring in foreign countries: including the repatriation of victims of an accident, assistance in cases of death, and support or repatriation of mentally unstable or sick Austrians in 2,113 cases. (Not included in this figure is the assistance given in connection with the submarine earthquake disaster in South-East Asia and East Africa.) In 2004 the financial assistance made available for such emergencies amounted to 150,000 euros.
In the autumn, some severe whirlwinds, especially Hurricane Ivan, caused considerable damage to property and claimed several human lives on a number of Caribbean islands and the south coast of the USA. These whirlwinds also created great problems for Austrian citizens in the affected region: they were assisted by the Citizens’ Service on their homeward journey and given financial support. Due to violent unrest in Côte d’Ivoire in November, the Citizens’ Service – as part of a coordinated EU evacuation plan organised with France, Germany and the Netherlands – also arranged for the evacuation of Austrian nationals from Abidjan, the capital of the West African country affected by the crisis.
For the tsunami disaster in South-East Asia and East Africa see Chapter D.
2. Assistance in Civil and Criminal Matters
Legal assistance was provided in a total of 1,914 cases.
3. New Treaties
The Agreement between the Austrian Federal Government and the Council of Ministers of Serbia and Montenegro on The Readmission of Persons Residing Illegally on their Territories (Readmission Agreement), including a Protocol on Implementation, entered into force on 29 April.
On 12 November, the Agreement between the Austrian Federal Government and the Czech Republic on The Readmission of Persons Residing Illegally on their Territories (Readmission Agreement) was signed in Prague.
The Agreement on Police Cooperation between the Austrian Federal Government and the Government of the Republic of Latvia (Police Cooperation Agreement) was signed in Riga on 20 January and entered into force on 1 April.
105
On 13 February, the Treaty on Police Cooperation between the Republic of Austria and the Slovak Republic was signed in Vienna.
The Treaty on Cooperation in Preventing and Combating Cross-Border Crime signed on 6 June at Heiligenbrunn by the Republic of Austria and the Republic of Hungary (Treaty on Police Cooperation) should take effect in 2005.
11 November saw the signing in Vienna of the Agreement between the Ministry of the Interior of the Republic of Austria and the Ministry of the Interior of the Republic of Montenegro on Police Cooperation, and the Agreement between the Ministry of the Interior of the Republic of Austria and the Ministry of the Interior of the Republic of Serbia on Cooperation in Combating International Organised Crime, International Illegal Narcotics Trafficking and International Terrorism (Police Cooperation Agreement).
Negotiations on the Treaty between the Republic of Austria and the Czech Republic on Police Cooperation and the Second Amendment to the European Convention on Mutual Assistance in Criminal Matters of 20 April 1959 were successfully concluded. The final Treaty is scheduled for signature in the spring of 2005.
On 1 December, the Agreement on Police Cooperation between the Austrian Federal Government and the Government of the Republic of South Africa became effective.
Negotiations concerning additional treaties to the Extradition Treaty between the Government of the Republic of Austria and the Government of the United States of America, and to the Treaty between the Government of the Republic of Austria and the Government of the United States of America on Mutual Legal Assistance in Criminal Matters were started with the United States of America.
Negotiations are planned between the Republic of Austria and the Republic of Italy regarding an Agreement on Administrative and Legal Assistance in Administrative Matters.
4. Consular Cooperation
Discussion in the EU Working Group on Consular Affairs centred on the development of crisis precautions, including, in particular, the exchange of information on travel advice and intensified cooperation in cases of evacuation.
106 For the tsunami disaster in South-East Asia and East Africa see Chapter D.
II. Tourist and Cross-Border Traffic
1. Visas
Austrian foreign missions issued 390,590 visas – 54,699 or 12.28 per cent fewer than in the previous year. The Austrian representations abroad also received and processed 54,300 applications for residence permits and delivered temporary and permanent residence permits that were issued by the competent domestic authorities.
Austrian nationals holding a regular or machine-readable passport are free to enter, without a visa, 101 states including the EEA countries and all neighbouring states, Canada, Japan, New Zealand and the USA, most Latin American countries and Brunei, Hong Kong and Macao.
Within the EU the existing legislation was further developed. In this context, the following resolutions were adopted by the Justice and Home Affairs Council: by decision of 8 June the basis for a common visa information system (VIS) was established, and a Council Recommendation facilitating the admission of researchers and scientists was adopted; the Hague Programme was agreed at the Summit of The Hague on 4 and 5 November in order to establish a basis for intensified cooperation on visa policies. Finally, on 13 December, the Council Regulation on standards for security features and biometrics in EU Member States passports was agreed, providing, within a period of 18 months, for the integration in passports of a chip to store the passport data and an electronic photograph, which will be complemented by fingerprints a further 18 months later.
Based on a unilateral act, Serbia and Montenegro have been permitting bearers of an Austrian passport to enter their territory without a visa since 31 May 2003. In 2004, negotiations on a visa agreement for official and diplomatic passports were largely completed and the agreement should be signed in the near future.
The Agreement between the Republic of Austria and the Republic of Malta on the representation of the Republic of Malta by Austrian consular authorities for granting visas for transit and short stays was signed in Valletta on 7 May and forwarded for parliamentary procedure.
107
2. Border Crossing Points
A draft treaty between the Czech Republic and the Republic of Austria relating to border crossings on tourist routes and border crossings in special cases, as well as a draft agreement on crossing points alongside common state borders, was coordinated by experts at a meeting in Prague on 8 and 9 November. It was further agreed that the Schöneben crossing should be open all year round as from 1 December, and that the range of users will be extended to include pedestrians and cyclists, motorcycles, motorcars, heavy goods vehicles up to 3.5 tonnes and buses.
3. Border Traffic
The fourth regular session of the Joint Austro-Hungarian Committee on border traffic was organised with Hungary on 24 and 25 June in Vienna.
The Agreement between the Government of the Republic of Italy, the Austrian Federal Government and the Government of Slovenia on cooperation at the Thoerl-Maglern police centre was signed on 14 September by representatives of the three participating countries.
In order to accelerate border crossings a joint border control was introduced in the course of the year at nearly all crossing points where frontier checks are still performed.
4. Border Treaties
The Treaty between the Republic of Austria and the Czech Republic which amends and supplements the Treaty between the Republic of Austria and the Czechoslovak Republic on the common state border of 21 December 1973, and the Treaty between the Republic of Austria and the Czech Republic concerning changes to the line of the common state border were ratified in Vienna on 24 May and entered into force on 23 July and 1 August, respectively.
The Border Treaty between the Republic of Austria and the Federal Republic of Germany on the line of the common state border (Salzach/Scheibelberg- Bodensee/Innwinkel) was ratified in Berlin on 17 September and took effect on 1 December.
108 III. Social, Labour and Health Policy
The Supplementary Convention amending the Convention between the Republic of the Philippines and the Republic of Austria in the field of Social Security came into force on 1 July. Talks regarding bilateral agreements on social security were conducted or planned with several Eastern European countries and overseas states.
IV. Austrians Abroad
Support and services for expatriate Austrians are important functions of the Austrian embassies and consulates (general) abroad. Like the Foreign Ministry’s Austrians Abroad website (www.AuslandsoesterreicherInnen.at ), they form an important link with the native country. For Austrians living abroad, they are a first point of contact, a general service facility and a useful source of information, as well as providing effective crisis (or precautionary) coordination services and assistance with the organisation or arrangement of Austria-related events.
As there is no obligation to officially register one’s permanent abode abroad, the figures concerning Austrians living abroad are mostly estimates, and documented figures do not reflect the actual number of Austrians living in foreign countries. Austrian embassies and consulates (general) hold current address records for more than 350,000 expatriate Austrians, the majority of them residing in Germany (180,000), Switzerland (25,000), Australia (15,000), Argentina (10,200), Italy (9,700), the USA (9,500), and the UK, Brazil and France (6,000 to 7,000, respectively).
The number of “Austrians at heart” (those who feel especially attached to Austria thanks to their former Austrian citizenship, ancestors or other relatives) can only be estimated and comprises several hundred thousand persons.
1. Organisations representing Austrians Abroad
Links with Austria are maintained for the most part through associations of Austrians abroad and other Austria-related societies in foreign countries. There are about 450 associations in approximately 50 countries worldwide, a list of which can be found on the website www.AuslandsoesterreicherInnen.at (under “AuslandsösterreicherInnen/Vereinigungen”).
109 Since 1 January 2003, the Vienna-based Auslandsösterreicher-Weltbund (AÖWB) , the World Confederation of Austrians Abroad, has been active as an umbrella organisation, interest group and service platform for Austrian associations and individual Austrians living abroad. The AÖWB was formed by merging the predecessor organisations, Weltbund der Österreicher im Ausland, in existence since 1952, and the Auslandsösterreicherwerk, which was founded in 1955 and includes Austrian Central Europe Round Tables and the Austrian-American Councils in North America. It took over the functions of both institutions. In mid-2004 Fritz Molden was succeeded by Gustav Chlestil as president of the AÖWB. Irmgard Helperstorfer holds the office of Secretary-General. The Confederation operates its own website (www.weltbund.at ) and publishes the quarterly magazine “ROT-WEISS- ROT”. This year’s annual meeting of Austrians abroad was held in Linz from 2 to 5 September and attended by several hundred delegates from associations of expatriate Austrians from all over the world. In 2004, the AÖWB received a subsidy of 177,000 euros from the Federal Ministry for Foreign Affairs.
The Burgenländische Gemeinschaft , or Burgenland Community, is the umbrella association of all natives of Burgenland who live abroad. It aims to preserve and reinforce the ties of Austrians from Burgenland all over the world with their origins. To this end, it also publishes a periodical magazine, “Die burgenländische Gemeinschaft”. The President of the Burgenländische Gemeinschaft is Walter Dujmovits.
2. Support for Austrian Citizens Abroad
Since 1967, the Fund for the Support of Austrian Citizens Abroad has been assisting Austrians living abroad who get into difficulties. Financed by subsidies from the Federal Ministry for Foreign Affairs and the nine federal provinces, in 2004 it provided assistance totalling 630,000 euros to 920 needy Austrian in 61 countries. The chairman of the board of trustees appointed by the Federal Government is former Ambassador Georg Hohenberg, and the managing director is Birgit Ruby.
In the course of its Christmas Campaign , which the Federal Ministry for Foreign Affairs organises every year for needy Austrians living abroad, in 2004 donations in cash and in kind worth 63,500 euros were allocated from the Federal Ministry for Foreign Affairs’ funds to assist 646 needy Austrians in 61 countries.
For Austrians living abroad who are aged, or severely physically or mentally ill and are unable to care for themselves, the Federal Ministry for Foreign Affairs can arrange for repatriation and accommodation in hospitals or nursing homes if they cannot be helped by relatives or local organisations, 110 provided their condition allows them to undertake the journey and their personal permission is obtained. In 2004, eight Austrians were brought home from Germany, Greece, Italy, Spain, South Africa, Thailand and Turkey and found accommodation in Austrian care institutions.
3. Participation by Austrians Abroad in Elections in Austria and the European Union
Since 1990, Austrians residing in other countries – and also those temporarily abroad on election dates – have had the right to vote in Austrian parliamentary and presidential elections and in nationwide referendums. Expatriate Austrians – and non-Austrian citizens of the European Union having their main residence in Austria – are also entitled to vote in elections for Austrian Members to the EP. Voting is subject to registration with the register of European electors, which remains valid for a maximum of ten years, and voters must also apply for a voting card for every election. Details and all the necessary forms can be found on the election website www.wahlinfo-bmaa.at . In 2004, approximately 66,000 expatriate Austrians were listed on electoral rolls and 54,000 expatriate Austrians on registers of European electors. So far, Austrians living abroad have been able to vote in five parliamentary elections, three presidential elections (four ballots), the EU referendum and three separate elections of Austrian Members to the EP. Approximately 20,000 expatriates voted in the 2004 presidential election and 15,000 in the elections to the European Parliament in that same year.
Possibilities for simplifying postal voting from abroad and e-voting were also discussed by the Austria Convention, among others. The issue of e-voting was dealt with by two working groups, one was established by the Federal Ministry and the other, to which Austria also contributed actively, was set up by the Council of Europe. The second regional partnership seminar organised by Austria in Vienna on 6 and 7 December dealt with current voting (rights) issues, including voting from abroad, EP elections and e-voting.
111 D. The Tsunami Disaster in South-East Asia and East Africa
On 26 December, a submarine earthquake off the Indonesian island of Sumatra triggered a gigantic flood wave (tsunami) that caused large-scale devastation in the entire region surrounding the Indian Ocean. More than 290,000 people were killed, with approximately 230,000 fatalities in Indonesia, 36,000 in Sri Lanka, 18,000 in India and 8,000 in Thailand. A further 1.6 million people in the coastal regions lost their homes. While the consequences for the national economies of the affected countries are difficult to gauge, the damage is estimated to run to billions of euros. Foreign nationals from 50 countries were also among the victims. By the end of June 2005, 75 Austrians had been identified dead and 15 missing. The process of identifying the victims is still continuing with the help of Austrian experts.
As soon as the enormous extent of the natural disaster in South-East Asia became apparent, a crisis management team was immediately convened in the early morning of 26 December under the chairmanship of the Federal Ministry for Foreign Affairs. Before midday the crisis hotline numbers at the Federal Ministry for Foreign Affairs and the Federal Chancellery for calls from victims and their relatives were published in the media and on the Federal Ministry for Foreign Affairs’ homepage. The staffing of the round-the-clock crisis hotlines and the entry in a database of all Austrian citizens reported missing were assured by the immediate deployment of employees of the Federal Ministry for Foreign Affairs and of the Austrian Federal Army. In the first two days alone, the staff from the Federal Ministry for Foreign Affairs dealt with approximately 30,000 calls.
Based on the details of persons reported missing received via the crisis hotlines, the passenger lists of tour operators, airlines and information gained from the diplomatic representations abroad, as well as from local authorities and hospitals, a database was compiled of Austrians who were known to be in the region at the time of the crisis. The data were then continuously updated through constant contact with the local diplomatic representations and by follow-up calls to the affected relatives.
Staff from the Austrian embassies in Bangkok and New Delhi were dispatched to Phuket, Colombo and Malé to care for those injured or affected by the disaster and to provide coordinative support in the search for missing persons. Employees and experts from the Federal Ministry for Foreign Affairs, the Federal Chancellery, the Federal Ministry of the Interior and the Federal Ministry of Defence, as well as staff from the Austrian Red Cross, were also deployed in the disaster zones. The employees of the Federal Ministry for Foreign Affairs and four “Austrian Rescue Teams” composed of staff from the above-mentioned ministries, together with doctors, psychologists and forensic pathologists, supported the local diplomatic representations in searching for 112 injured and missing Austrians. They also made the necessary arrangements for injured Austrians wishing to return home, organised repatriation, issued passports and emergency travel documents, provided emergency financial assistance, organised lodging, food and clothing, and provided medical and psychological care. Up to 231 Austrian staff were deployed in the crisis region.
Besides making use of free capacities on existing AUA/Lauda Air scheduled flights, the Federal Ministry for Foreign Affairs also organised three special flights in cooperation with the two airlines to bring affected Austrians home. With support from the Federal Ministry for Health and Women one of these extra flights was specially equipped for the repatriation of injured Austrians. All in all, around 1,700 people, including a large number of citizens of other EU Member States, were successfully repatriated from the crisis zones on 31 AUA/Lauda Air flights. In agreement with the bereaved families, the Federal Ministry for Foreign Affairs also organised the repatriation of the mortal remains of the Austrian victims identified on the spot.
In April 2005, a commemorative flight to Thailand was arranged to give the relatives of deceased Austrians or of persons still missing the opportunity to say farewell to the tsunami victims in a symbolic ceremony.
The unique global dimension of this natural disaster and the large number of European tourists affected in the crisis region confronted the crisis management teams of the Federal Ministry for Foreign Affairs and other Austrian and European institutions with a hitherto unprecedented challenge. For this reason, coordination and cooperation procedures for future use in the event of disasters of similar dimensions abroad are being strengthened and expanded on an ongoing basis, both with the competent national authorities and with Austria's EU partners. For instance, a uniform data management system has been developed for all institutions involved, and a dedicated call centre set up, where specially trained staff of the Federal Ministry for Foreign Affairs can receive and enter information on persons reported missing. Furthermore, in the event of a disaster, a response team comprising volunteer staff from the Federal Ministry for Foreign Affairs can be dispatched to the crisis region at any time. This team will also have improved technical equipment at its disposal to support the affected diplomatic representations abroad. In addition, Austria proposed the establishment of joint crisis response teams at EU level. Last but not least, the evaluation and monitoring of potential crisis regions is carried out on an ongoing basis to enhance preparations for potential crisis scenarios and to thus provide improved support facilities for Austrians affected by disasters abroad.
Austria contributed comprehensive aid in the wake of the tsunami disaster in South-East Asia and East Africa. In the immediate aftermath of the submarine earthquake, the Federal Government made 1 million euros available to
113 Austrian aid organisations for emergency humanitarian relief measures in the crisis zone. In agreement with the regional and local authorities it subsequently adopted a comprehensive reconstruction programme amounting to 49 million euros over a period of three years, comprising 33 million euros from the federal budget, 10 million euros from the federal provinces and 6 million euros from the cities and municipalities. In addition, the “Nachbar in Not” (“Neighbour in Need”) appeal and other fund-raising initiatives raised private donations totalling more than 37 million euros for projects in the crisis regions.
Under the leadership of the federal ministries, federal provinces, and the cities and municipalities, concrete reconstruction projects will be implemented in twelve priority areas: cooperation between schools, national reconciliation, protection of women and children, reconstruction of villages, environmental protection, mine clearance, water treatment, infrastructure development, economic invigoration, training and tourism. To ensure the coherence, transparency and efficiency of the Austrian relief measures, a central coordination unit was set up under former federal minister Ernst Strasser.
The Federal Ministry for Foreign Affairs is contributing to the total federal aid package earmarked for South-East Asia and East Africa with co-financing totalling 2.1 million euros from the Austrian Development Cooperation budget.
In the wake of the tsunami, the Federal Government passed a resolution on the establishment of a Relief Fund for International Disasters, which will be used to finance damage alleviation and reconstruction measures, and to provide humanitarian aid in connection with disasters abroad. The Fund will be endowed through contributions from the federal budget, from regional and local authorities and from other public and private donors. In the event of disasters, the Federal Government will decide how the funds are to be used on a case-by-case basis.
114 E. Austrian Development Cooperation and Cooperation with Eastern Europe (ADC)
I. Introduction
Combating poverty , ensuring peace and preserving the environment are the central concepts of ADC. All its programmes and projects are based on the principles of partnership with the people involved, the use of appropriate technologies, regard for the cultural dimension of development, and equality between women and men. In this context, Austria’s efforts are centred mainly on underprivileged population groups, especially in the least developed countries (LDCs) of Africa, Asia and Latin America.
1. International Background
In September 2000, the UN Member States adopted eight basic Millennium Development Goals (MDGs) to fight global poverty and its consequences in a more effective and coordinated manner, to promote human dignity and equality, and to achieve peace, democracy and ecological sustainability. The combined efforts of all nations will be necessary if these goals are to be attained by the target date of 2015. Industrial countries face a challenge in four main areas: relieving the debt burden of the poorest countries; improving access to new technologies and innovations for developing countries; reducing unfair trade barriers and tariffs; and increasing economic support and development spending.
2. Additional Budget for Development Cooperation
At the International Conference on Financing for Development in Monterrey in 2002, an increase in development assistance was discussed, as well as possibilities for stimulating economic growth in the developing countries. Even before the conference, the European Union had already announced its plan to raise the average EU development assistance to 0.39 per cent of gross national income (GNI) by 2006, and all EU Member States made a commitment to raise their official development assistance to at least 33 per cent of GNI individually by 2006.
In 2002, Austria invested 0.26 per cent of its GNI in development cooperation. In 2003, this dropped to 0.20 per cent because development loans were redeemed prematurely and debt cancellations were not effected for reasons beyond Austria’s control. In 2004, for the first time in many years, there was a substantial increase in the funds budgeted for bilateral development 115 cooperation by the Federal Ministry for Foreign Affairs. According to the preliminary data reported to the Organisation for Economic Co-operation and Development (OECD), Austrian development financing amounted to 0.24 per cent of GNI in 2004.
3. Sustainable Development
The long-term success of development cooperation is contingent on the strengthening of institutional competences and capacities in the partner countries. Austria supports its partner countries in the preparation and implementation of appropriate policies and strategies (for example, in the water and wastewater sector, good governance, judicial reform, and food and basic social services). ADC also traditionally pursues a decentralised approach since strengthening decentralised and local development programmes fosters democratic processes, improves services and promotes the sustainable use of resources – all of which are important prerequisites for the success of the ADC programmes to reduce poverty.
4. Legal Basis
The basis for a coherent Austrian development policy is the Development Cooperation Act passed by the National Council in February 2002. It contains a specific package of objectives defining the development policy criteria for the entire Austrian federal administration, coordinated by the Federal Ministry for Foreign Affairs.
An Amendment to the Development Cooperation Act adopted in 2003 provided for the transfer of the operational tasks to the Austrian Development Agency GmbH (ADA), which started work on 1 January. The strategic framework for the ADA’s activities was established by the Directorate-General for Development Cooperation and Cooperation with Eastern Europe in the Federal Ministry for Foreign Affairs.
116 II. Bilateral Development Cooperation and Cooperation with Eastern Europe
1. Bilateral Development Cooperation
1.1. Key Region Central America (Nicaragua, Guatemala, El Salvador)
The social situation of the population of Central America continues to be characterised by a very unequal distribution of income, high rates of unemployment, growing crime rates and the effects of the continuing crisis in the coffee trade.
At the beginning of the year, Nicaragua was able to reduce its foreign debt by approximately 65 per cent under the Heavily Indebted Poor Countries (HIPC) Initiative, but its domestic debt rose. Weak economic growth and a large increase in population in the past few years have resulted in real income loss. In addition to fostering rural development and micro, small and medium- sized enterprises, ADC thus continued its efforts primarily in the social sector, for example by building a decentralised, self-sustaining health care service. Assistance was further provided for measures devoted to raising awareness about and promoting the equality of women and men, and for programmes for the prevention of HIV/AIDS. Since 2004, Nicaragua has been a pilot country under the Harmonisation and Alignment Initiative (alignment of the donor countries with the needs and priorities of the recipient countries) launched by the Development Assistance Committee (DAC) within the OECD.
In Guatemala , legal uncertainty and the social consequences of the unbalanced distribution of land are a major problem. ADC therefore concentrated its efforts on social measures, including legal assistance to the indigenous population, and continued to support rural development and a water supply project that had already been successfully launched.
El Salvador is among the most stable countries of the region as far as the political situation is concerned. Small-scale ADC loan programmes were provided to support the integration of small producers into economic development. Improved market access for alternative agricultural produce and diverse training projects with special emphasis on women are designed to accelerate rural development.
1.2. Key Region West Africa (Burkina Faso, Cape Verde, Senegal)
The political and economic climate in the West African region was characterised by the unstable political situation in Sierra Leone, Liberia, Guinea and Guinea-Bissau, and the severe crisis in Côte d’Ivoire. In the light
117 of these developments, ADC contributed to conflict prevention through projects under the CREAF (European and African Conflict Prevention Centre) and the PASPA (Strategic Partnership for Peace).
In Burkina Faso the decentralisation policy gained new momentum through a decision taken by the constitutional court. The first nationwide elections at municipal level will be held in 2005. ADC work continued to prioritise rural development, education and vocational training, and the establishment of small enterprises. Since 2004, ADC has paid particular attention to aligning its activities with national priorities in the fight against poverty.
In Cape Verde the plague of locusts and an extremely unfavourable rainy season further decreased the minimal harvest. The modernisation and diversification of the agricultural sector were therefore a major concern of the government, which presented a new strategic programme for the period 2005- 2008. ADC supports this programme in the areas of education, decentralisation and water supply. In addition, an annual budget of 800,000 euros will be made available for the period 2003-2005 to assure the food supply.
Senegal qualified as one of the 16 possible recipient countries of funds from the Millennium Challenge Account sponsored by the US Government. Within the framework of the country sector programme, which is already in operation, ADC supported sustainable rural development. Projects in the fields of agriculture, trades and crafts, food security and the protection of the environment were carried out in this context. In addition, continued support for building professional organisations and cooperation with NGOs and local authorities served to strengthen the Senegalese civil society and thus contributed to democratisation and peacekeeping.
1.3. Key Region East Africa (Ethiopia, Uganda, Rwanda, Burundi, Kenya, Tanzania)
The first East African Customs Union (EACU) was set up in March by Kenya, Uganda and Tanzania. The East African community is to be transformed into a political federation by the target year of 2013. Nevertheless, regional conflicts in Rwanda, Burundi and the Democratic Republic of Congo continued.
Partner country Ethiopia succeeded in reaching the defined “completion point” (meeting the criteria for debt relief) under the HIPC Debt Initiative in May. This led to a massive debt reduction of nearly two billion US dollars. In addition to its measures for food security, health, energy supply, gender issues and democracy, ADC for the first time undertook activities in the economy and development segment.
118 Uganda is considered to be a leading reform country in Africa thanks to its major accomplishments in the fight against poverty, decentralisation and the largely transparent handling of its budget. ADC concentrated its efforts on the fields of water supply, good governance and the development of private sectors. The dramatic situation engendered by the violent conflict in the north of the country prompted it to develop a North Uganda Strategy under which it started projects devoted to the reconstruction of the social structure and in support of refugees and child soldiers.
Rwanda commemorated the genocide of ten years ago in a quiet, albeit tense, atmosphere. In the interests of national unity and security, civil liberties were still very restricted. The priorities were water supply and settlement sanitation, decentralisation and democracy building. Special support was lent to the area of justice in its judicial appraisal of the genocide.
In Burundi , the year 2004 saw the implementation of the Arusha Peace and Reconciliation Agreement. The government drafted Poverty Reduction Strategy Papers (PRSP) as it plans to meet the “decision point” (satisfaction of the requirements for eligibility and qualification for assistance) under the HIPC Debt Initiative. In 2004, ADC again focused on water supply, settlement sanitation, democracy and human rights. Austria pledged to gradually increase its assistance if Burundi’s democratic development is successful.
In Kenya , ADC carried on its work in the areas of water supply and good governance. In addition to continuing the National Civil Education Programme (NCEP), there are plans for increased cooperation in the fields of good governance, justice and security. In Tanzania , decentralisation and economic development – especially food processing – were the key areas where ADC offered assistance.
1.4. Key Region Southern Africa (Mozambique, Zimbabwe, Namibia, South Africa)
At the beginning of July, the EU and seven SADC countries started negotiations for an economic partnership agreement on the promotion and liberalisation of trade and on regional integration. The major contributory factor to the decline in the indicators of human development in the region is, however, HIV/AIDS, which reduces average life expectancy in many countries south of the Sahara to 40 years or even less.
While Mozambique is currently one of the economically most successful countries in sub-Saharan Africa, its economy is still not self-sustaining. The focal points of ADC were decentralisation and rural development in the Province of Sofala.
119 In Zimbabwe , the population continued to be threatened by famine. The governing party did not admit any humanitarian aid into the country. The economy has shrunk by 40 per cent in the past five years. All bilateral cooperation has been suspended because of the EU sanctions. However, civil society projects for democratisation were still supported, with emphasis on the frontier zones with Mozambique and South Africa.
The primary goals of ADC in Namibia were democratisation and peacekeeping measures. There have been considerable advances in these areas since independence. Improvements in the legal sector are urgently required if the consolidation process is to be continued. ADC supported these reforms by contributing to the establishment of local structures and judicial and penal system models adapted to the country.
South Africa still needed international assistance to eliminate the consequences of apartheid, to modernise the state and to integrate its economy into the world markets. ADC devoted its efforts to the promotion of democracy through the development of local structures, decentralisation of the state administration, providing access to the legal system, and asserting the rights of the population.
1.5. Key Region Himalaya/Hindu Kush (Bhutan, Nepal, Pakistan)
The region was politically unstable on account of conflicts within and between the states, which also left its mark on ADC. Support was still continued for trans-national rural development projects.
Partner country Bhutan has reported progress in the past few years in developing its infrastructure, health care and educational system. ADC contributed substantially to the successful development in the energy, rural development, tourism and cultural sectors. The Basochhu hydro-power plant, one of the largest ADC projects, will be fully operational by March 2005.
Partner country Nepal still suffers from the armed conflict with Maoist rebels. Although economic growth of around 3.6 per cent was achieved, the potential was not fully exploited. The tourist industry, in particular, has been severely hit by the conflict. ADC thus concentrated its cooperation with local and Austrian organisations on rural development, the promotion of soft tourism and the preservation of the Bhutanese cultural heritage.
In Pakistan , ADC continued its cooperation with the NGO Frontier Primary Health Care (FPHC) in the north-western region of the country and supported Afghan refugees by providing basic health care services. A pilot project to strengthen the role and rights of women and girls was also launched.
120 2. Bilateral Cooperation with Eastern Europe
2.1. Key Region South East Europe
The discrepancies in economic, social and society developments in South East Europe and the related danger of further political instability remained the central challenges faced by Austrian Cooperation with Eastern Europe. ADC promoted economic development, democratisation and regional cooperation across nations with a view to strengthening the region as a whole. Austrian Cooperation with Eastern Europe focused particularly on vocational training measures aimed at creating jobs, generating income and mitigating social tensions.
After years of war in the Western Balkans, the Stability Pact and the Association Agreements with the EU play a prominent role in political, economic and social development. For the countries of the Western Balkans, the perspective of EU membership remains a vital instrument for stabilisation and promotion of the rule of law (see Chapters A.I. and A.IV.3.2.).
Reforms in Albania made only slow progress. Medium-term economic growth and poverty reduction were jeopardised by political instability. The business environment was unfavourable and therefore offered few incentives for investments. The evaluation of cooperation with Albania as part of Austrian Cooperation with Eastern Europe, which was begun in 2004, will serve as the basis for a new bilateral cooperation programme. In 2004, Cooperation with Eastern Europe continued to prioritise the areas of education, economy and employment, preservation of the environment, and water and energy supply. The Shkodra water supply programme, which has been particularly successful, received a boost through a new contract worth over 1.2 billion euros, which was signed in December.
Stabilisation and the reconstruction of a multi-ethnic society remained the primary ADC concerns in Bosnia and Herzegovina . Apart from the return of refugees, the priorities lay in the area of water supply, higher education, and the promotion of small and medium-sized enterprises, with a view to strengthening the weak economy and improving the standard of living.
ADC in Croatia concentrated on the economic sector and employment. A tourism project was launched to provide an initial boost to the economy in eastern Slavonia. In the field of education, the vocational schooling system will be modernised as part of a trans-regional project. Mock companies were set up in Croatian business schools for this purpose.
In Macedonia , the central political topic was, and still is, decentralisation. Continuing ethnic tensions slowed down the process of social transformation. 121 The establishment of a well-functioning rule of law system is a prerequisite for political and social stability. In order to improve the economic situation, Cooperation with Eastern Europe implemented two projects: one for economic policy analysis and strategy development, and another for the establishment of an agency for investment promotion.
Austrian cooperation with Serbia and Montenegro (including Kosovo ) saw a year of reorganisation: the Belgrade coordination office underwent complete re-staffing, and is no longer responsible for Bulgaria, Moldova and Romania. Regarding the programmes, ADC focused in the past year on education, water and energy supply, protection of the environment, and economy and employment. These projects should help improve the dramatic situation in the labour market and ensure social stability.
Moldova , Europe’s poorest nation, has been a new priority country under the Austrian Cooperation with Eastern Europe programme since 2004. The cooperation prioritises the social sector, where a comprehensive child and youth protection programme was launched.
Bulgaria experienced an economic upswing and posted a growth rate of 4 per cent. In the environmental sector, the third phase of the assistance programme for Bulgarian environmental institutions was successfully launched. Experts from Austria’s Federal Environment Agency provided advice and supported the setting up of environmental networks and electronic data evaluation. Starting in 2005, Bulgaria’s Environment Agency will thus be able to offer better and more user-friendly public access to environmental data on the Internet. To promote economic development, business start-ups were offered consulting, networking and financing assistance.
ADC with Romania was gradually cut back as the country made progress in the EU integration process. It concentrated on the environmental rehabilitation project in Baia Borsa. Thanks to Austrian financial assistance, the overdue rehabilitation of the Novat tailings dam at the Baia Borsa mine was completed in November, ending the high risk of accidents. An eco-profit project for the Temesvar region was agreed with the municipality of Temesvar and will be implemented from 2005 onwards.
2.2. Eastern Europe and Central Asia
As in the past few years, only selected efforts targeting education and the rule of law were possible in the region of Eastern Europe and Central Asia because of the need to concentrate funds. A new instrument was developed for co- financing projects with ADC partner countries in South East Europe and Central Asia. Additional projects could thus be carried out, which include the following focuses: conflict prevention, human rights education, the
122 improvement of social services, especially for the disabled, and combating the spread of HIV/AIDS. Austrian Cooperation with Eastern Europe continued its support of a number of administrative cooperation projects between Austria and the region via the Know-how Transfer Centre run by the Association of Austrian Cities and Towns, and of scholarship programmes conducted by the Vienna Diplomatic Academy.
3. Special Programmes
3.1. Special Programme Country Palestine
The ongoing, violent conflict continues to overshadow the whole region. After a short-term recovery, the economic situation in the Palestinian territories deteriorated again. In its cooperation with Palestine, ADC pursued a mix of direct assistance and regular development projects, such as the centre for the treatment of chronic illnesses. Capacity building, conflict prevention and peacekeeping measures were also carried out.
3.2. Afghanistan
After the elections in Afghanistan in October the support of the international community was especially vital for the development and democratisation of the country. Austria contributed to the international efforts for reconstruction through measures in the fields of mine clearance, drug control and the promotion of women, for example by supporting minesweeping teams in cooperation with the UN Mine Action Service in southern Afghanistan, or by collaborating with the UN Office on Drugs and Crime (UNODC) in setting up border controls and a functioning judicial system to contain drug trafficking.
The main emphasis in bilateral projects was on reconstruction and the promotion of women. With Austrian aid, kindergartens in Kabul und Jalalabad were built, as well as schools and a hospital in the province of Nangahar. In the north of the country, a comprehensive programme in support of women was launched.
3.3. Iraq
At the Madrid Conference immediately after the end of the war in Iraq, Austria pledged to provide humanitarian aid of 1.7 million euros. These funds were primarily intended for children who had been particularly affected by the war. In addition to offering medical care to children, ADC renovated a hospital in Shatra, thus ensuring basic health care services in the south of the country. Jointly with Slovenia, a project for the psycho-social care of traumatised children and their parents was implemented. 123
4. Themes and Sectors
The primary objective of ADC is the reduction of global poverty in all its economic, social, cultural and political dimensions. This basic goal was further pursued in the international donor forums under the DAC Network on Poverty Reduction (DAC POVNET), the European Commission and the World Bank. A documentation and indicator system, which is required in this context, was further developed on the basis of specific country programmes for Senegal, Burkina Faso and Tanzania, respectively.
Austria has recognised know-how in the field of rural development , which was employed to make an essential contribution to the reduction of poverty in the partner countries. The majority of the poor population live in rural areas, where the infrastructure is poor and access to basic services is scarce. The living conditions of the rural population have been improved by application of appropriate technologies, knowledge transfer and infrastructure building. In addition to the activities targeting African countries, an integrative regional project in northern Albania was launched. At the same time, ADC helped people in the partner countries to organise themselves and take their fate into their own hands. The ADC strategy in support of the decentralisation processes in eastern and southern Africa was updated.
In the field of democratisation, the rule of law, human rights and good governance ADC supported an International Conference on the Great Lakes Region in East Africa, the peace process in Sri Lanka and a conflict early warning system. In West and East Africa training seminars for peacekeeping and conflict prevention were carried out and network building was fostered. In South East Europe regional workshops provided information about the use of the Human Rights Manual prepared by the Human Security Network. Particular attention was focused on the protection of children in armed conflicts in Iraq, South East Europe and northern Uganda. This especially sensitive area will remain an important priority, as will the fields of women, minorities and the disabled.
Equality between women and men is an essential principle followed by ADC. All bilateral and most multilateral projects underwent a review for compliance with gender criteria. At international level, ADC participated in the DAC Network on Gender Equality (GENDERNET).
The promotion of micro, small and medium-sized enterprises (MSMEs) is designed to increase competitiveness and national income. Attention continued to focus on the development of local value chains from production to marketing. In addition, instruments to spur the economy in developing countries and South East Europe were further developed to enhance the 124 service quality of financial institutions and government agencies for the benefit of neglected target groups.
The working division for “ Private Sector and Development ” was set up and enlarged. It brought its expertise in private sector development to bear in the regional and country programmes, on the one hand, while promoting projects in cooperation with domestic businesses within the ADC programme, on the other. The goal was to strengthen economic development in partner countries while exploiting the private sector’s potential for development. The instruments for cooperation with the domestic business sector were further developed and divided into “Business Partnerships” (i.e. business-to-business projects) and “Development Partnerships” between public and private partners.
Sustainable development cannot be secured without education and training . As regards education, ADC particularly promotes programmes for vocational training and further training, as well as actions at basic education level. Assistance in the building of institutional and personnel capacities in the partner countries also continued. Following a programme development phase, in 2004 the North-South dialogue scholarship programme shifted its focus more towards ADC partner countries and development-related aspects.
In the energy sector, ADC concentrated on developing power supply services in rural zones, particularly in Bhutan and Ethiopia. Apart from investments in adequate infrastructure, central concerns included the training of local employees and the setting up of local companies to ensure the professional operation of power supply facilities. The preparations for stepping-up Austria’s assistance in the field of solar thermal technology in Albania, Bhutan and Macedonia were essentially completed. A project was also launched for improved biomass stoves in Bhutan. Within the EU, ADC played a leading role in the Energy Initiative for Poverty Eradication and Sustainable Development. A new financing instrument is used by Austria together with other EU Member States to help partner countries prepare sustainable energy development concepts. The first joint project was a study for the economic development of wind power plants connected to the grid in Ethiopia.
One of the focal points in the water sector lay in the review of activities by the United Nations Commission for Sustainable Development (CSD) with a view to complying with the Millennium Development Goals. The ADC South Western Towns Water and Sanitation project in Uganda received international recognition as an example of best practices for regional water management. Austria intensified its commitment within the EU Water Initiative and developed a communication and information system. The bilateral ADC programmes in the priority regions in Uganda, Mozambique, Rwanda, Palestine and Cape Verde were further developed and integrated into the
125 national water-sector activities of the partner countries. In the future, the decentralised utility systems in these countries are expected to be concentrated in umbrella organisations.
As regards the global protection of the environment , the ADC national and international networking endeavours bore fruit. Country-specific strategic environmental analyses were prepared, and a procedure for environmental impact analysis is being developed. ADC evaluated international experiences in implementing the Convention on Biological Diversity and followed the progress of clean development mechanisms (CDM). Consequently, a first CDM pilot project in cooperation with ADC will be initiated in Bhutan. About half of the funds were earmarked for preserving the environment in the broadest sense, and approximately 15 per cent were specifically aimed at improving the environmental situation at the regional or global level.
5. Co-financing
A significant share of Austria’s programme and project aid was managed by Austrian NGOs. This included schemes on the NGOs’ own initiative that were financed by them as well as funding provided by ADC. Nine Austrian NGOs were awarded framework agreements and carried out more than 80 projects in the field of training and education, rural development and health. The instrument of framework agreements was evaluated by external consultants. Under the co-financing scheme for projects carried out by NGOs in developing countries, 23 projects amounting to 675,658 euros were supported.
The possibility of co-financing NGO projects in South East Europe, Eastern Europe and Central Asia was offered for the first time. Altogether, 15 projects totalling 733,234 euros were admitted. ADC pledged additional financing for eleven programmes set up by Austrian development organisations and co- financed by the EU amounting to 2,523,480 euros.
6. Evaluation
In 2004, evaluations were undertaken of the country programme for Mozambique, and of the cooperation undertaken by ADC with NGOs in the health and rural development sectors in Nicaragua. An evaluation of the ten- year cooperation with Albania was also prepared, and a preliminary study concerning the evaluation of Austria’s efforts to preserve Bhutan’s cultural heritage, which is scheduled for 2005, was conducted. During an exchange of information in Tirana, ADC’s evaluation knowledge was passed on to the Albanian partner organisations. The basis for the future evaluation of the
126 Development Cooperation and Cooperation with Eastern Europe will be a new evaluation concept elaborated in 2004.
III. Multilateral Development Cooperation
Since the adoption of the Millennium Declaration and its goals, the development strategies of the multilateral development cooperation organisations, in particular, have been progressively directed towards achieving these goals. Globalisation has also led to a change in international development policy. Increasing priority is being given to the integration of developing countries into the global economy by strengthening production capacities and abolishing restrictions of access to international markets. Intensified international efforts are likewise necessary if the further spread of HIV/AIDS is to be effectively contained. All these developments have made the coordination of development policy in international organisations and institutions increasingly important. Multilateral development cooperation is a key element in the overall Austrian development policy concept. Its 2004 budget amounted to 261.67 million euros, of which 21.08 million went to the UN, 160.86 million to the EU, and 79.73 million to international financial institutions and other organisations.
1. United Nations
Being the leading programme in the UN’s coordination and financing of technological development and assistance measures, the United Nations Development Programme (UNDP) is gaining increasing importance within the UN system. It played an essential role in the international reconstruction activities in Afghanistan, for instance, and in the demand analyses undertaken after the Iraq war. Based on the Multi-Year Funding Framework 2004-2007 adopted in 2003, UNDP will concentrate more strongly than hitherto on five strategic goals: democratisation, poverty reduction, energy and environmental protection with a view to sustainable development, crisis prevention and reconstruction, and the campaign against HIV/AIDS. The protracted reform of UNDP was essentially completed with the transfer of operational activities to the country offices.
In addition to making payments to the UNDP core budget, Austria also contributes to the Thematic Trust Funds on Energy and Environment, Democratic Governance and HIV/AIDS, respectively, and regularly sends junior professional officers (JPOs) to these organisations. In 2004, Austria further supported UNDP programmes in South East Europe.
127 The United Nations Population Fund (UNFPA) is a relatively small and decentralised UN programme which supports programmes for monitoring demographic developments. Since the United Nations International Conference on Population and Development (Cairo 1994), UNFPA has increasingly concentrated on reproductive health, focusing on the role of girls and women, especially in the fields of family planning, medical care and universal primary education. In this context, the prevention of HIV/AIDS is also becoming an increasingly important field of action for UNFPA. Taking this circumstance into account, Austria raised its contributions to UNFPA’s core budget by 200,000 euros to 550,000 euros in explicit recognition of the Fund’s achievements. It supported UNFPA by paying contributions to the budget and by financing projects in Afghanistan, Nepal and Ethiopia. UNFPA’s activities, especially in the fight against HIV/AIDS, were at the centre of the talks held with Thoraya Obaid, UNFPA’s Executive Director, in Vienna in January.
The United Nations International Children’s Emergency Fund (UNICEF) has increasingly been focusing on the prevention of HIV/AIDS, especially in Africa. The priorities are combating mother-to-child transmission, caring for orphans, and protecting children and young people from infection. UNICEF further concentrates on immunisation, health and hygiene. It is also a pioneer in child protection and the child rights approach, which basically considers children as subjects with rights to be protected within the general framework of human rights. Austria contributed to the regular budget of the organisation and funded UNICEF projects in Afghanistan, such as the Accelerated Learning Program for Girls, and a project to fight the spread of HIV/AIDS among children and young people in Ethiopia.
The United Nations JPO Programme gives young graduates the opportunity to serve on a training assignment in an international organisation for a period of two years. The Ministry for Foreign Affairs covers all costs of the duty tour of Austrian JPOs. The JPO Programme provides support to the respective UN organisation while at the same time helping to enhance Austrian know-how. Funding was made available for JPO positions in Kenya, Afghanistan, South Africa, Burundi, Cape Verde, Malaysia, Zimbabwe, Liberia, the Palestinian territories, Brussels and the UN headquarters in New York and Geneva.
The United Nations Industrial Development Organization (UNIDO) has specialised in fostering the establishment of sustainable small and medium- sized enterprises in industry. Particular attention is paid to environmental concerns and the environmental compatibility of industrial output. UNIDO has stepped up its efforts to integrate developing countries into the global trading system, supporting them by assuring quality standards and developing production capacities. On 23 September, a Cooperation Agreement was signed between UNIDO and UNPD concerning the future of cooperation
128 at the country level to ensure better representation of UNIDO in the recipient countries. UNIDO strives for close cooperation with the European Commission. Austria is a Member State and currently holds the Vice- Presidency of UNIDO’s Industrial Development Board and the Programme and Budget Committee. With a high level of voluntary contributions, Austria is currently UNIDO’s seventh-largest donor. Austria’s funds were mainly devoted to strengthening the production capacities of small and medium-sized enterprises in developing countries and to promoting environmentally sound production by means of cleaner production centres. These facilities are designed to build national capacities in the respective countries for gradually implementing cleaner production. Austria finances or co-finances ten of the 31 centres that were established by UNIDO and has invested some 8.2 million euros in UNIDO’s cleaner production programme since 1994. At the interface of environment and industry, UNIDO also acts as executing agency for the Global Environmental Facility (GEF). Its operations in this capacity include work on waste management in the field of persistent organic pollutants (POPs).
United Nations Conference on Trade and Development (UNCTAD): The main event was the eleventh ministerial-level conference of UNCTAD in São Paulo (Brazil) from 13 to 18 June, which adopted a conference document with a framework for UNCTAD’s work in the next four years and a Ministerial Declaration. UNCTAD-XI also acknowledged the importance of South-South cooperation and trade as a means of integration of LDCs. At the same time, the third round of negotiations on the Global System of Trade Preferences among Developing Countries (GSTP), which is designed to enhance South-South trade by tariff reduction among the developing countries, was launched in São Paulo. With Austrian assistance, the Technology Fair of the Future, a joint forum on technology trends organised by UNCTAD and UNIDO, was presented during UNCTAD-XI. The forum encompasses 140 innovative firms active in research and development, including six Austrian companies, and research institutes from 26 countries.
United Nations Human Settlements Programme (UN-Habitat) : after the status of the United Nations Centre for Human Settlements (UNCHS) was enhanced to that of a Programme in 2002, UN-Habitat acquired a new image under Executive Director Anna Tibaijuka. As one of the Goals of the UN Millennium Declaration, improving the livelihood of slum dwellers represents one of UN-Habitat’s central concerns. The cross-sector problem area of water, sanitation and settlement planning is a priority focus in its work. In addition to its normative function, it also carried out a number of concrete settlement projects in Iraq, Afghanistan and the Balkans, among others. It organised the Second World Urban Forum in Barcelona from 13 to 17 September, where 4,000 participants representing governments, cities, towns, NGOs and experts
129 gathered, thus establishing the World Urban Forum as a global forum for settlement experts.
2. European Union
The main focuses covered internal EU policy domains such as the coherence of development policy with other policies like trade and security, and the efficiency of Community assistance. The latter includes, for example, intensified harmonisation of procedures and programmes and an initial review of draft regulations submitted by the Commission on external relations instruments within the Financial Perspective of the Union for the period 2007- 2013. In the light of its role as the world’s biggest donor, the EU concentrated on reinforcing its efforts to meet the MDGs in selected, targeted fields. Against this backdrop, the European Commission and the Member States, after substantial debate, adopted a common reporting format on the progress made in attaining the MDGs, in addition to the agreed European Commission monitoring of the achievement of the Monterrey targets on financing for development. The European Commission was mandated to prepare an EU Synthesis Report.
The Council also decided, at the beginning of the coming year, to look into the possibilities for defining a new interim target for additional EU official development assistance beyond the currently agreed 0.33 per cent of GNI and for investigating innovative sources of financing. This should also provide a strong impetus from the EU to third-party donors in the lead-up to next year’s UN MDG review conference.
As regards sectors, the EU, in line with Austria’s interests, concentrated especially on making progress in fulfilling the Johannesburg Agenda on Sustainable Development (WSSD) and the Cairo Agenda on Population and Development (ICPD). An initial 250 million euros were allocated for setting up an EU Water Facility for ACP countries, and intensified endeavours in the field of sustainable energy management in developing countries were called for. In this context, the Commission submitted a proposal for setting up an EU Energy Facility to the Council, which is modelled on the water facility.
Regarding the negative findings in respect of the global fight against HIV/AIDS and poverty-related diseases such as malaria and tuberculosis, the EU responded by passing a resolution for a comprehensive EU action plan and by allocating the necessary financial means. Likewise, the Sexual Reproductive Health and Rights, as elaborated under the Cairo Agenda, constitute a “tacit” MDG, whose relevance is increasingly to be taken into account.
130 The EU also started negotiations with the ACP countries to revise the Cotonou Agreement that had been set up as a framework for the ACP-EU Partnership. An understanding has already been reached on most of the political, structural and technical amendments, and the first round of negotiations was completed. In addition, it was agreed with the ACP countries that resources from the European Development Fund be used to create an African Peace Facility . Support for peace-building measures by the AU in Sudan and Somalia is already offered by this instrument.
Mention should also be made of the progress made in the coordination, harmonisation and alignment of the European Union’s external assistance actions , which have been urged for some time by the OECD and the partner countries. With a view to the preparations for the OECD High-Level Forum II in Paris in 2005, the relevant possibilities were examined and recommendations made, their implementation being agreed by the Council in November.
Efforts to improve cooperation between the Community and the UN field system also continued. A Memorandum of Understanding was concluded between the European Commission and UNDP in April and implementation has already begun. The European Commission is negotiating additional strategic partnerships with the World Health Organization (WHO), the International Labour Organization (ILO), the Food and Agriculture Organization of the United Nations (FAO), UNCTAD, the Office of the United Nations High Commissioner for Refugees (UNHCR), the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), the World Food Programme (WFP), the United Nations Children’s Fund (UNICEF) and UNIDO.
In the context of the WTO Negotiations on Agriculture and the Doha Development Agenda, the Union adopted an Action Plan on Agricultural Commodity Chains . Here, the EU provides for a number of support measures, in particular to cushion the effects of the reform of the Generalised System of Preferences on those developing countries that are most dependent on commodity trade, and to improve the integration of developing countries into world trade.
IV. Humanitarian Aid and Disaster Relief and International Humanitarian Organisations
Austria is responding to the increasing importance of the humanitarian dimension in international relations and the need for joint responsibility. With a view to making an effective contribution in line with the relief efforts of the international community, Austria’s activities are modelled on EU guidelines,
131 international conventions, and good humanitarian donorship principles, and its country-specific humanitarian aid interventions are coordinated with the international community.
1. Humanitarian Aid and Disaster Relief
Humanitarian aid is normally financed by extraordinary funds upon submission to the Council of Ministers under the heading of “exceptional measures to be taken by the Federal Government abroad”. Thus, an additional amount of 1 million euros was allocated to support victims of the fighting in Darfur , which were paid either to the ICRC through the ADA or by way of “Nachbar in Not” (a fund-raising campaign organised by the Austrian public broadcasting corporation) to Austrian NGOs in the field. The amount of 200,000 euros from the regular Development Cooperation budget had already been spent previously through the WFP and UNHCR to provide initial relief for refugees from Darfur.
For ADC priority and cooperation countries, urgent humanitarian aid can be provided through the newly established ADA under its country programmes. For example, 400,000 euros were contributed in the autumn to an FAO campaign to combat the locust plague in Senegal so as to prevent severe crop failure.
Further humanitarian aid was provided by the Federal Ministry of the Interior and by the Federal Ministry of Defence to support victims of the terrorist attack on a school in the North Ossetian town of Beslan . At Russia’s request, an aircraft with medical supplies was sent on 8 September. The Federal Government made a contribution of 290,000 euros for the training of specialists for post-traumatic stress care in North Ossetia.
Last year’s medical evacuation campaign for Iraqi children was completed, except for two patients who need to undergo follow-up treatment in Graz following major surgery.
The Federal Ministry for Agriculture, Forestry, Environment and Water Management is the entity in Austria responsible for implementing the 1999 International Food Aid Convention. Recipients are selected by the Federal Ministry for Foreign Affairs. The amount of 1.49 million euros was divided between Cape Verde (800,000 euros), and humanitarian aid to northern Uganda (390,000 euros) and the Democratic People’s Republic of Korea (300,000 euros).
The Federal Government also provides humanitarian aid on a worldwide scale through the European Commission’s Humanitarian Aid Office (ECHO) . The 132 ECHO’s budget in 2004 amounted to some 500 million euros, of which Austria paid 2.6 per cent.
In Morocco , a major disaster relief operation was carried out after the earthquake by Austria’s disaster relief forces with the participation of the Austrian Armed Forces and experienced Austrian emergency organisation personnel.
For the tsunami disaster in South-East Asia and East Africa see Chapter D.
1.1. Austrian Anti-personnel Mine Campaigns
In addition to its important humanitarian, security and disarmament components, the mine action programme of the Federal Ministry of Foreign Affairs is an essential part of ADC and is designed in coherence with the respective country programmes. It comprises mine clearance projects, awareness building, support to mine victims and landmine destruction. Together with other states, Austria drafted a concept to make South East Europe a mine-free region by 2009. Alongside South-East Africa, this is the geographical focus of these projects with a total spending of 1 million euros.
2. International Humanitarian Organisations
2.1. Office for the Coordination of Humanitarian Affairs (OCHA)
Since its founding in 1998, the OCHA has acted as partner and coordinator of humanitarian players (states, international organisations, other parts of the UN system, NGOs and individuals). As only about 11 per cent of the OCHA’s financial needs are covered by the regular UN budget, the rest is raised by voluntary payments by the Member States, including Austria.
Austria continued to hold its traditional chairmanship of the Consultative Group of the Military and Civil Defence Unit (MCDU) . As part of the UN Civil Military Coordination (UN-CMCoord) training programme, nine courses were held under the direction of a former Austrian army officer, half of the participants being civilian, the other half military experts. One of the courses took place in Vienna from 13 to 17 December at the invitation of the Federal Ministry of Defence and was also attended by a representative from the Federal Ministry of the Interior and a representative from the Federal Ministry for Foreign Affairs.
Austria allocated 40,000 euros for strengthening the OCHA’s coordination functions. In addition, it funded a legal expert from the Inter-Agency Internal Displacement Division set up on 1 July, reaffirming its commitment to the 133 protection of internally displaced persons. According to estimates, some 25 million persons were internally displaced worldwide as a result of armed conflicts, more than double the number of refugees. Including persons displaced by natural disasters and infrastructure projects, the total number of IDPs is about 50 million.
On 18 May, the Under-Secretary-General Jan Egeland , Director of the New York Office of the OCHA, paid a visit to Vienna and met with representatives of Parliament, the Government and the media.
2.2. Office of the United Nations High Commissioner for Refugees (UNHCR)
Approximately 17 million needy people were covered by UNHCR’s mandate by the end of the year. With 6,100 employees in 121 countries, UNHCR – alongside the WFP and UNICEF – is one of the largest relief organisations operating on all continents. Austria contributed 1,295,189 US dollars to its annual budget of approximately 1 billion US dollars and climbed to rank 29 among donors. Of this amount, 291,000 euros were voluntary payments, the rest went into project financing.
The Convention Plus initiative launched in 2002 by the High Commissioner for Refugees, Ruud Lubbers, was continued. It will amend the 1951 Geneva Convention relating to the Status of Refugees and the Additional Protocols of 1977 to allow for current refugee problems by offering the possibility of bilateral, trilateral or multilateral framework agreements covering the various aspects of the refugee problem. The Canadian initiative for the resettlement of refugees in third countries was completed with the presentation of a multilateral agreement framework for resettlement in third countries. Work for refugees and on development and irregular secondary movements continued.
The 55 th session of the UNHCR Executive Committee , held on 4 and 8 October in Geneva, dealt with the return of more than 2 million refugees to their native countries – especially to Afghanistan – and a decrease in asylum applications in most (EU Member) States. At the same time, new refugee movements were registered in the past year, of which the migration wave from Darfur into neighbouring Chad probably attracted the greatest attention.
2.3. The International Committee of the Red Cross (ICRC)
Austria supported the operations of the ICRC in Sudan through a contribution of 400,000 euros, which served to provide clean water and adequate sanitary facilities for up to 500,000 people. Other ICRC and ADA projects were carried out in Ethiopia (landmine programme) and in Iraq (emergency relief).
134 Commitments were made to provide 699,500 euros dedicated to northern Uganda, Iraq and a mine action programme in Albania. Austria contributed 470,000 euros to the ICRC headquarters budget.
135 F. Global Cooperation – The United Nations
I. Introduction
The debate on the United Nations’ role in international relations continued following the crisis triggered last year by the war in Iraq. However, the UN demonstrated its growing importance for the promotion of peace and security in the world through the large number of peace-keeping operations it conducted. In terms of substance, UN activities focused on the conflicts in Africa, in particular the political and humanitarian crisis in the Darfur region of the Sudan, on the situation in post-war Iraq and in the Middle East, on the fight against hunger and poverty and on combating terrorism. UN Secretary- General Kofi Annan pushed forward work on a fundamental reform of the organisation . The Panel of Eminent Persons (High-level Panel on Threats, Challenges and Change) he had convened, held a substantive meeting in early summer in Baden and completed its report on UN reform which the Secretary- General submitted to the United Nations General Assembly on 2 December. The Panel’s report is based on a broad and comprehensive concept of collective security and makes proposals for managing the global threats of the twenty-first century (poverty, infectious diseases, environmental degradation, terrorism, trans-national organised crime, nuclear, radiological, chemical and biological weapons, and internal and inter-State conflicts) and also includes concrete recommendations for institutional reforms.
II. The United Nations General Assembly (UNGA)
1. Procedural matters
The Fifty-ninth Session of the United Nations General Assembly was opened on 14 September and the Minister of Foreign Affairs of Gabon, Jean Ping, was elected its President. The Austrian delegation was headed by Federal Minister Benita Ferrero-Waldner, who was in New York from 22 to 24 September. In the statement she delivered in the General Debate, Ferrero-Waldner placed special emphasis on the fight against terrorism, the reform of the United Nations, international security, human rights and the situation in the Middle East, Kosovo and Darfur. The Foreign Minister recalled Austria’s candidature for a non-permanent seat on the Security Council for the period 2009-2010 and referred in this connection to Austria’s active and committed contributions to the various areas of UN activities, particularly in the field of peacekeeping operations. Ferrero-Waldner stressed the importance of human security, pointing out that Austria was chairing the First Review Conference of the Antipersonnel Mine Ban Convention held in Nairobi. The Foreign Minister also informed the delegates that Austria was increasing its budget for
136 development cooperation by 35 per cent. During the annual ministerial week the Federal Minister participated in meetings at the EU foreign minister level and held bilateral meetings with the Secretary-General, as well as with the Foreign Ministers of Egypt, Jordan, South Korea, Tunisia and Ukraine. Ferrero-Waldner also had bilateral talks with the Foreign Minister of the Palestinian National Authority, Nabil Sha’ath and representatives of numerous Jewish organisations. During her stay in New York the Minister for Foreign Affairs participated in a lunch organised and hosted by Canada for the members of the Human Security Network.
2. Political Affairs
2.1. Middle East
On 6 May a resolution on the Status of the Occupied Palestinian Territory, including East Jerusalem, was adopted by a vote of 140 to six, with eleven abstentions. Together with the EU, Austria voted in favour of the resolution, which affirmed the Palestinians’ right to self-determination, Israel’s duties and obligations as an occupying power under the Fourth Geneva Convention (relative to the Protection of Civilian Persons in Time of War, of 12 August 1949), the Regulations annexed to the Hague Convention IV (respecting the Laws and Customs of War on Land) and the two-State solution based on the pre-1967 borders. On 20 July the Tenth Emergency Special Session adopted by a vote of 150 to six, with ten abstentions, a resolution on the Advisory Opinion of the International Court of Justice on the Legal Consequences of the Construction of a Wall in the Occupied Palestinian Territory, including in and around East Jerusalem (the “security wall” being built by Israel), it had commissioned last year. The EU Member States voted unanimously in favour of this resolution. The enlarged EU also adopted a common voting policy regarding the 19 annual resolutions on the Middle East, with the exception of the resolution on the Committee on the Exercise of the Inalienable Rights of the Palestinian People and the resolution on a Division for Palestinian Rights of the Secretariat. Unlike the other EU Member States, which abstained from voting, Malta and Cyprus, which are on the above committee, voted in favour of these resolutions.
2.2. Disarmament and International Security
This year the First Committee started to adopt a modified approach in its consultations with a view to enhancing the efficiency of its working procedures and also considered further reforms. In the year prior to the 2005 Review Conference of the Parties to the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) the discussions on nuclear matters were again characterised by the diverging views held by the nuclear-weapon States, 137 which emphasised the importance of the NPT provisions on non-proliferation, and the Non-Aligned Movement (NAM) and states in the New Agenda Coalition (NAC), which placed the emphasis on disarmament obligations under the NPT and the right to the peaceful use of nuclear energy. The NAC (composed of Brazil, Egypt, Ireland, Mexico, New Zealand, South Africa and Sweden) introduced the resolution on Accelerating the Implementation of Nuclear Disarmament Commitments. A large number of the proposals made by Austria last year were included in its wording. As in previous years, Austria again co-sponsored this resolution. Regarding the resolution on the Comprehensive Nuclear-Test-Ban Treaty (CTBT), which had remained unchanged from last year, the USA again called for a vote and declared that it would not support the CTBT and had no intention of becoming a party to the treaty. The resolution was adopted by a large majority.
One of the central topics discussed at this year’s session was the issue of verification measures in the field of disarmament and non-proliferation commitments. A panel of government experts will be established in 2006 following the adoption of a Canadian resolution, co-sponsored by Austria, on Verification in all its Aspects, including the Role of the United Nations in the Field of Verification. The goal is to analyse regimes that are already in place, identify shortfalls in the system and elaborate proposals. Explicit mention was made of the relevance of the experience of the United Nations Monitoring, Verification and Inspection Commission (UNMOVIC) in the field of biological weapons and their means of delivery. The resolution was adopted by consensus.
For the first time a draft resolution was introduced on The Hague Code of Conduct against Ballistic Missile Proliferation (HCOC). As a result of the lobbying of a group of interested states (including Austria) led by the HCOC chair Chile, this important instrument in the fight against the proliferation of means of delivery was embedded for the first time in a UN context. The large number of co-sponsors (119) and votes in favour (137) of this resolution are particularly noteworthy. A new resolution on MANPADS was adopted by consensus. This resolution addresses a topic of increasing relevance to civil aviation: the protection against attacks by man-portable missile systems. The resolution on the implementation of the international landmine convention was supported by a record number of co-sponsors (158). As chair of the First Review Conference of the Antipersonnel Mine Ban Convention in Nairobi (the Nairobi Summit on a Mine-Free World), Austria delivered a statement on the preparations for and the importance of this conference. A total of 52 resolutions and three decisions were adopted, 33 by consensus. However, no progress was made with respect to the common EU voting policy and diverging views remained, particularly with respect to nuclear matters.
138 2.3. Small Arms and Light Weapons
The issue of small arms and light weapons (SALW) took up an important part of the discussions on conventional arms. Deliberations focused on an agreement aimed at regulating the identification, marking and tracing of small arms and light weapons, including the legal framework for brokering. Being one of the main actors in this field, the EU made a number of successful proposals for improving the resolution on the Illicit Trade in Small Arms and Light Weapons in All its Aspects, which had been adopted by a large majority.
3. Economic, Development and Environmental Affairs
Deliberations in the Second Committee focused on innovative forms of development funding to fight hunger and poverty, the report on the significance of the private sector in development and the report of the Commission on the Social Dimension of Globalization.
With respect to economic affairs, the progress made in the WTO Doha Round trade negotiations was generally welcomed and the Committee’s deliberations focused on the impact of agricultural subsidies on developing countries and market access issues. Particular importance was attached to the role of a functioning private sector in sustainable economic development and employment in developing countries. The three-yearly review of the United Nations development activities, which addresses the strategic orientation of funds, programmes and specialised organisations, focused on improved cooperation in the field, the role of developing countries in determining development priorities and the transition from crisis management to development policy following conflicts or disasters. The proclamation of the year 2005 as the International Year of Microcredit is designed to raise awareness and promote understanding of the significance of very small credits and access to financial services for sections of the population affected by extreme poverty and to encourage wider use of this development instrument. Because of the progress made by Cap Verde and the Maldives, these countries were removed from the list of LDCs.
In the environmental sector discussions focused on the ratification of the Kyoto Protocol by Russia, the forthcoming January 2005 Conference on Small Island Developing States in Mauritius and the World Conference on Disaster Reduction to be held in Kobe (Japan), also in January 2005. Work continued on the resolution on the reduction of vulnerability to natural disasters and extreme weather events, which was adopted for the first time last year, and more substance was added to the wording. Apart from the traditional resolutions on conventions on climate change, biodiversity and desertification, the General Assembly adopted the annual resolutions on the United Nations 139 Environment Programme (UNEP) and on UN-Habitat and a resolution following up on the International Decade for Action proclaimed in 2004, “Water for Life” 2005-2015.
4. Human Rights
See Chapter H.III.
5. Drug Control and Crime Prevention
See Chapters I.II. and I.III.
6. Social Policy
All resolutions on social issues were adopted by consensus by both the Third Committee and the Plenary of the United Nations General Assembly. Progress should be made in 2005 in the elaboration of a Comprehensive and Integral International Convention on the Protection and Promotion of the Rights and Dignity of Persons with Disabilities. The cooperation between the Office of the United Nations High Commissioner for Human Rights and the UN Secretariat in helping to elaborate the Convention was emphasised.
On 6 December the plenary session of the General Assembly held a celebration to observe the tenth anniversary of the International Year of the Family. In his address the UN Secretary-General referred to the worldwide shift from extended families to increasingly nuclear units. The Executive Director of UNFPA, Thoraya Obaid, issued a call for strengthening families by giving women and couples the freedom of choice and the means to make their own informed decisions about the number, timing and spacing of their children. The EU successfully brought about the inclusion of human rights, equal treatment, employment and environmental aspects in a resolution on the implementation of the Copenhagen Declaration. A declaration on the evaluation of the Copenhagen Declaration will be adopted on the occasion of the tenth anniversary of the World Summit for Social Development in February 2005. Following the adoption of a resolution introduced by Portugal, youth NGOs will have the opportunity to participate in UN events celebrating the tenth anniversary of the World Programme of Action for Youth in autumn 2005. This year a reference to the Report on Achieving the Universal Primary Education Goal of the Millennium Declaration, prepared by the Austrian Doris Bertrand in her capacity as Inspector of the United Nations Joint Inspection Unit (JIU), was included in the resolution on the UN Literacy Decade, which is
140 introduced every two years. The deliberations on an agreement on the elimination of all forms of discrimination against people with disabilities were continued in two sessions in May/June and in August/September.
7. International Women’s Affairs
See Chapters H.III.2 and H.III.3.
8. Refugee Issues
In his statement to the Third Committee on 9 November, United Nations High Commissioner for Refugees Ruud Lubbers highlighted the importance of intensified inter-agency cooperation between the UNHCR and the Departments of Political Affairs (DPA) and Peacekeeping Operations (DPKO) but also with NGOs. Increased donor support and sound financial management both contributed to the UNHCR’s greater budgetary stability in 2004. Lubbers proposed the creation of the post of Assistant High Commissioner for the Protection of Refugees in order to strengthen the right to asylum.
9. Peaceful Uses of Outer Space
The meetings of the Scientific and Technical Subcommittee and the Outer Space Committee were dominated by preparatory work for the consultations to be held in New York on the Vienna conference on the review and appraisal of the implementation of the recommendations five years after the Third United Nations Conference on the Exploration and Peaceful Uses of Outer Space (“UNISPACE III+5 Review”). The agenda item “space and water” suggested by Austria was discussed in detail both in the Outer Space Committee and then at the traditional Graz Space Symposium. It was also on the agenda of the International Conference Space and Water: Towards Sustainable Development and Human Security held in Santiago de Chile and at the conference on Space Technologies for Water Resources Management in Africa held in Pretoria. A surprising 95 pilot projects on the use of space technology for water resources management were submitted at the workshop in Pretoria organised by the European Space Agency ESA, highlighting the enormous potential space technology can offer to the development and use of increasingly scarce water resources.
The United Nations enhanced the visibility of space technologies at the consultations held in the UN General Assembly plenary session and in a panel
141 chaired by Austria involving the Presidents of the UN General Assembly, the ECOSOC and UN, French and Malaysian space experts. The consultations in New York focused on stressing the importance of space technology for economic, social and ecological development. Austria’s contribution to the plenary session addressed the institutional dimension of improved integration of space technology in implementing the Global Agenda.
10. Administrative and Budgetary Affairs
The debate in the Fifth Committee was dominated by the decision-taking process on A Strengthened and Unified Security Management System for the United Nations. An improved security infrastructure, including the related construction measures at UN facilities and a significant increase in the number of security personnel at UN headquarters and field locations were deemed more than necessary – particularly in the light of the attack on the UN facilities in Iraq. Within the UN Secretariat, a new Directorate of Security was established which is responsible for security and safety services at all headquarters and security coordination in the field between the UN and the funds and programmes. Because of the heightened safety and security measures, the rising number of special political missions, particularly in Iraq, Afghanistan and the Sudan, and the development of exchange rates, the budget for the biennium 2004-2005 rose to 3.6 billion US dollars. The annual budget for peacekeeping missions carried out between July 2004 and June 2005 has already grown to a record sum of 3.8 billion US dollars and could increase even further to over 4 billion with the expansion of the scope of MONUC, the United Nations Organization Mission in the Democratic Republic of the Congo, and the establishment of an operation in the Sudan and other current developments. Regarding the general rehabilitation plan for the UN headquarters in New York, there is still disagreement on the funding modalities and administrative hurdles to be overcome with respect to alternative premises. However, the relevant decisions must be taken by the end of 2005 to avoid costly delays.
11. International Law The work of the Sixth Committee (International Law Committee) focused inter alia on the ban on reproductive cloning of human beings and the debate on the report presented by the International Law Commission during International Law Week. After decades of discussions the United Nations Convention on jurisdictional immunities of States and their property was adopted with Austria leading the negotiations. Other topics discussed by the Committee related to the extension of protection for UN and associated personnel, the elaboration of a convention on global and nuclear terrorism, the work of the
142 United Nations Commission on International Trade Law (UNCITRAL) and the relationship between the UN and the United States of America as the host country of one of the UN headquarters.
11.1. Ban on the Cloning of Human Beings
As last year, two alternative draft resolutions on a mandate for the elaboration of a convention on the cloning of human beings were submitted to the Sixth Committee (International Law). The draft resolution prepared by Costa Rica and introduced by 59 states called for a convention that would seek to impose an absolute global ban on the cloning of human embryos. A second group of 22 member Governments led by Belgium supported a different proposal for a draft resolution, which would call for an international ban on human reproductive cloning, but would not ban cloning for “therapeutic” purposes provided that it is strictly regulated through national legislation. Since it became apparent in the course of the debate that there was no prospect of achieving a consensus on the preparation of a convention, the debate focused on a potential compromise in the form of a UN General Assembly declaration. Belgium prepared an informal draft calling upon states to ban any attempts aimed at creating human beings through cloning processes. As no agreement on a common position could be reached even after the committee’s meeting had been extended by a week, Italy, a co-sponsor of the Costa Rica proposal, at the end of the meeting introduced a draft resolution for a UN General Assembly declaration with an identical text to the Belgian draft except that the term “human beings” was replaced by “human life”. However, the group led by Belgium could not accept this proposal since they regarded this wording as being tantamount to an absolute ban on cloning. By way of a compromise, a working group was established to finalise the text of a UN General Assembly declaration on human cloning on the basis of the Italian draft resolution. The working group will meet in February 2005.
11.2. International Law Week
International Law Week, named after an Austrian proposal, was held from 1 to 5 November and brought together legal advisers from the capitals of UN Member States to discuss international law issues in the Sixth Committee. As every year, the top item on the meeting’s agenda was the debate on the report prepared by the International Law Commission, which dealt with a number of topical issues such as diplomatic protection, international liability for injurious consequences arising out of acts not prohibited by international law, responsibility of international organisations, reservation to treaties, shared natural resources, unilateral acts of States and fragmentation of international law. After last year’s success, Austria and Sweden followed up on their initiative to revitalise the debate in the Sixth Committee under which a discussion with special rapporteurs of the International Law Commission took
143 place. In order to stimulate the debate on current topics between experts from the fields of theory and practice, the Permanent Mission of Austria to the United Nations and the Institute for International Law and Justice of the New York University School of Law, organised a panel discussion entitled “The Security Council as World Legislator? Theoretical and practical aspects of law- making by the Security Council”. With more than 170 participants, including 60 ambassadors, this panel discussion was one of the best attended side-events of the 59 th UN General Assembly. It also represented the kick-off for a series of events on the Security Council’s role and function in strengthening a rules- based international system that Austria is planning to organise over the next three years.
11.3. UN Convention on Jurisdictional Immunities of States
The UN General Assembly adopted the United Nations Convention on jurisdictional immunities of States and their property, elaborated by the Sixth Committee, by consensus on 2 December and called upon all states to become parties to it (resolution 59/38). This marked the successful completion of work that had occupied the United Nations for more than 30 years. Austria chaired the meeting in which the draft prepared in 1991 by the International Law Commission was revised and finalised as a convention. The leading role Austria had taken in the elaboration of this revised draft was internationally recognised. The UN Convention represents a codification of the existing international customary law regarding the immunities of states in the field of civil law and is the first universal multilateral treaty on this matter. It will be open for signature in New York for a period of two years and enter into force following the deposit of the 30 th instrument of ratification.
III. The Security Council (SC)
1. Introduction
Membership of the Security Council in 2004 consisted of the five permanent members (China, France, the Russian Federation, the United Kingdom and the United States of America) and the elected members Angola, Algeria, Benin, Brazil, Chile, Germany, Pakistan, the Philippines, Romania and Spain. To replace Angola, Chile, Germany, Pakistan and Spain which retired at the end of 2004, the 59 th United Nations General Assembly elected Argentina, Denmark, Greece, Japan and Tanzania for the period 2005-2006. The trend towards enhanced transparency in the Security Council’s working procedures continued in 2004. The Annual Report on the Council’s activities now contains a brief analytical section. The large number of open debates enabled the EU Presidency to maintain the EU’s visibility in the Security Council. Austria contributed actively to the open debates. In a statement on the topic of “justice 144 and the rule of law: the United Nations’ role”, Austria emphasised the important role played by law in international relations and the benefits of cooperation between the Security Council and the International Criminal Court. Austria also made a statement on “non-proliferation of weapons of mass destruction”, advocating the adoption of a resolution on this issue and referring to the interrelation between non-proliferation and disarmament of weapons of mass destruction. In keeping with its active role as a UN Member State Austria is standing for a non-permanent seat on the Security Council for the period 2009-2010. SR)
2. Activities of the Security Council
2.1. Iraq
On 23 February the United Nations Secretary-General transmitted to the Security Council the report on the fact-finding mission to Iraq led by Special Adviser Lakhdar Brahimi. The report stated that it was technically impossible to hold free and fair elections prior to 30 June, as had been originally planned, pointing out that the earliest possible date for such elections would be the end of 2004/beginning of 2005. The caucus-style system for the formation of an interim Iraqi government scheduled for the end of 2004 and provided for in the agreement concluded on 15 November 2003 between the occupation authority and the Iraqi Governing Council was not practicable. The United Nations declared to “stand ready to do their utmost to contribute to finding an appropriate transition mechanism”. In his accompanying letter to the President of the Security Council the UN Secretary-General again emphasised that a successful UN engagement in Iraq required the full support of a united Security Council and the creation of a safe and secure environment. On 24 March the Security Council welcomed the renewed dispatch of Special Adviser to the Secretary-General Lakhdar Brahimi to Iraq to assist in the formation of an interim government and the preparations for elections. The Interim Government of Iraq was formed on 1 June. In response to the exchange of letters between US Secretary of State Colin Powell and the new Iraqi Prime Minister Iyad Allawi in which the latter had stated that the continued presence of the multinational forces was required, the Security Council adopted resolution 1564 by consensus on 8 June. In this resolution it endorsed the formation of a sovereign interim government and welcomed the fact that it would assume full responsibility and authority for governing Iraq following the end of occupation on 30 June. The further timetable for the political transition process in Iraq provides for holding elections by 31 January 2005 at the latest. The Iraqi Transitional National Assembly thus elected will be mandated to elaborate a constitution on the basis of which a new government will be elected by 31 December 2005. The United Nations Assistance Mission to Iraq (UNAMI) is mandated to assist, to the extent 145 permitted by circumstances, in the formation of a consultative council that is to assist the interim government in the preparation of the elections and to give support in the elaboration of a draft constitution, in preparing for the elections and in supporting the elaboration of a draft constitution. The multinational forces are empowered to take all measures necessary in order to maintain safety and security in their partnership with the Iraqi authorities. The mandate of the multinational forces will expire by 31 December 2005 at the latest provided that the Iraqi government does not ask for an earlier termination. UNAMI will be protected by a separate protection force which would be a distinct entity under unified command of the multinational force. Security Council resolution 1557 was adopted unanimously on 11 August thus extending UNAMI’s mandate by twelve months. In their quarterly reports to the Security Council both the Secretary-General and his Special Representative for Iraq, Ashraf Jehangir Qazi, who was appointed on 13 July, stressed that the continued poor security situation could not be improved by military means alone but required a broadening of the political dialogue which must also include opposition groups. On 30 November the Security Council requested that the UN Secretary-General establish a trust fund to financially support a United Nations protection force in Iraq and called upon member states to support UNAMI and the protection force.
In April the Secretary-General appointed former chairman of the Board of Governors of the Federal Reserve System Paul Volcker to head an independent inquiry committee charged with clarifying alleged manipulation of the UN Food-for-Oil Programme. The Security Council called upon the occupation authority, Iraq and all UN member states to cooperate with the committee.
2.2. Middle East
The Security Council was kept informed of the situation in the Middle East by the monthly reports of either the UN Secretariat or UN Special Coordinator for the Middle East Peace Process, Terje Roed-Larsen. Following the targeted killing of Hamas leaders Sheikh Ahmed Yassin and Abdel Aziz al-Rantisi by Israel, the members of the Council held consultations and an open debate on 23 March and 29 April in which the vast majority of speakers condemned Israel’s action. On 25 March a draft resolution condemning the killing of Sheikh Ahmed Yassin was vetoed by the United States of America, while Germany, the United Kingdom and Romania abstained from voting. In response to the Israeli army’s action in the Gaza Strip the Council adopted resolution 1544 by 14 votes, with the USA abstaining. The resolution calls on Israel to respect its obligations under international humanitarian law and to refrain from demolishing residential buildings. Another draft resolution against Israeli military action in the Gaza Strip was thwarted by the veto of the USA. Germany, the United Kingdom and Romania abstained from voting.
146 2.3. Afghanistan
Security Council resolution 1536 extended the mandate of the United Nations Assistance Mission in Afghanistan (UNAMA) for a further 12 months and endorsed the Secretary-General’s proposal to establish an election preparation unit under the mission. On 17 September the Council also decided in resolution 1536 to extend the mandate of the International Security Assistance Force (ISAF) for a period of 12 months leaving the content of the mandate unchanged. It nevertheless acknowledged the need to strengthen ISAF and called on member states to make troops and equipment available to ISAF. Following the Afghan presidential elections the Council released a press statement welcoming the confirmation by the election authority of Hamid Karzai’s victory and declared its continued readiness to support the Afghani government in its fight against drugs and in improving the security situation in the country.
2.4. Cyprus
Secretary-General Kofi Annan launched a new initiative in February aimed at enabling a resolution of the Cyprus issue before the country’s accession to the EU on 1 May. He convinced both parties to agree to a detailed timetable providing for a completion of the peace plan by the Secretary-General himself and the holding of simultaneous referendums in both parts of the country in the event that the negotiations at the end of April failed. However, the Annan Plan was thwarted on 24 April by the negative outcome of the referendum held in the Greek part of Cyprus. On 11 June the Security Council decided to extend the mandate of the United Nations Peace Keeping Force in Cyrus (UNFICYP) for a further six months and welcomed the Secretary-General’s intention to conduct a review of the Mission’s mandate, inter alia “in the light of the referendums of 24 April”. Security Council resolution 1568 (2004) reduced the strength of the UNFICYP troops from 1,224 to 860 persons and further extended the mandate of UNFICYP until 15 June 2004.
2.5. Bosnia and Herzegovina
After the EU had taken over the police mission in Bosnia and Herzegovina (European Union Police Mission, EUPM) last year, the Security Council on 22 November adopted resolution 1575 (2004) mandating the EU-led peacekeeping force in Bosnia and Herzegovina (operation EUFOR-ALTHEA see Chapter A.IV.1.2.1) to also take over the peace stabilisation role in the military field from the multinational NATO Stabilization Force (SFOR). Alongside the EU-led operation, which was granted a mandate for an initial period of twelve months, NATO will continue to maintain a presence to contribute to the fight against terrorism, track down persons charged by the ICTY and support defence reform. A topic that featured in many Security
147 Council debates was the local police certification process conducted earlier by the International Police Task Force (IPTF). Numerous Bosnian officials who had been dismissed because of the results of the process have launched appeals citing inadequate conduct of the certification process. The UN Secretariat declared that it was no longer the competent body for Bosnian police matters and refused to review the process.
2.6. Serbia and Montenegro/Kosovo
The violence that erupted in March also made the conflicting interests within the international community regarding further action in Kosovo increasingly apparent. While the USA, Germany and the United Kingdom favoured a review of the implementation of the standards by the middle of 2005 and, in the event of a positive outcome, the start of a process to clarify the status issue, Russia stressed the need for a formal decision by the Security Council before such a process could be started. At his last address to the Council in an open briefing on 11 May 2004, Harri Holkeri, the Special Representative of the Secretary-General and Head of UNMIK, presented a very pessimistic view pointing out that any stagnation of the process could lead to a new outburst of violence. On 19 November the Secretary-General transmitted recommendations on the further procedure to the Security Council in which he proposed that further competence be handed over to the Kosovo interim government while at the same time creating a more effective control and sanction mechanism for the United Nations Interim Administration Mission in Kosovo (UNMIK). The new Special Representative in Kosovo and Head of UNMIK, Søren Jessen-Petersen, called on the EU to play a more substantial role in rebuilding the economy in Kosovo.
2.7. Timor-Leste
The United Nations Mission of Support in East Timor (UNMISET) continued to chart the development of new institutions and the creation of infrastructure in Timor-Leste. The Security Council extended the mandate of UNMISET for a period of six months, with a view to subsequently extending it for a further and final period of six months until 20 May 2005. In spite of the positive trends and the progress made in the process of nation-building it was clear that the country would still require assistance after the end of the UNMISET presence. UNMISET was therefore mandated to focus in the last phase of its presence on transferring operational functions to the East Timorese authorities and/or to other international organisations.
2.8. Africa
Two trends of the last few years continued. On the one hand the conflicts on the African continent played an increasingly important role in the Security
148 Council’s work. Approximately half of all resolutions and declarations dealt with Africa and more than 80 per cent of all soldiers and police officers serving in peacekeeping missions are based in Africa . Both the Security Council’s trips were to Africa. On the other hand the Security Council increasingly saw its role as being complementary to that played by regional organisations (such as the AU, ECOWAS and IGAD) and assisting in resolving conflicts through regional mediators. For the time being the mandated AU mission to the Sudan (Darfur) represents the preliminary highlight of this development. On the initiative of the USA, the Security Council met in Nairobi in November to give a new impetus to the peace process in the Sudan and to emphasise its close institutional cooperation with the AU and other regional organisations.
The central topic on this year’s agenda was the conflict in the Darfur region of the Sudan. In spring fighting between government troops and allied militia and two rebel groups escalated at the border with the Chad. The African Union brokered a ceasefire agreement which was signed in April in N’Djamena and was to be monitored by a commission. In the light of the non- observance of this ceasefire, increasingly large flows of refugees and continued reports of massive and systematic human rights violations, the Security Council adopted resolution 1556 on 30 July in which it called for the observance of the ceasefire, the protection of civilians, the disarmament of the militia and the prosecution of human rights violations and imposed an arms embargo on all non-governmental entities and individuals. Sanctions were threatened in the event of non-compliance with the obligations. The Sudanese government subsequently lifted access restrictions it had imposed on humanitarian organisations and agreed to a substantially extended AU monitoring mission. In its resolution adopted on 18 September the Security Council welcomed the AU’s intention to enhance and augment its monitoring mission and decided to establish an international commission of inquiry to immediately investigate and determine whether or not acts of genocide had occurred. On 9 November talks between the parties to the conflict in Abuja initiated by the AU led to the signing of two protocols on humanitarian and security issues. In resolution 1547 (2004) of 11 June 2004, the Security Council authorised the deployment of a special political mission to undertake preparatory work in the perspective of a more complex peacekeeping operation, the United Nations Mission in the Sudan (UNMISUD), after the signing of a comprehensive peace agreement for the South Sudan. With resolution 1574, adopted on 19 November, the Security Council extended the mandate of the United Nations Advance Mission in the Sudan (UNAMIS) until 10 March 2005 and called on the parties to the conflict to reach a comprehensive peace agreement before the end of 2004.
In the Democratic Republic of Congo progress in the transition process was jeopardized by the instable situation in the east of the country. In June unrest
149 in the Kivu regions unleashed a wave of refugees to neighbouring Burundi. Because the situation remained critical the Security Council decided by resolution 1565, adopted in October, to extend the mandate of the United Nations Organization Mission in the Democratic Republic of the Congo (MONUC) by six months and authorised an increase in the strength of MONUC by 5,900 personnel. Although preparatory work for the elections scheduled for 2005 continued, the security situation in the country hardly improved. In December Rwanda threatened to invade the Democratic Republic of Congo unless the paramilitary troops in the east of the country were disarmed.
In the Burundi peace process progress was made on the road towards elections scheduled for 2005. By resolution 1545, adopted in May, the Security Council established the United Nations Operation in Burundi (ONUB) and extended its mandate for a period of six months in December. However, the FNL-Rwasa rebels continued to remain outside of the peace process and were responsible for numerous acts of violence against civilians. In the worst of these attacks, for which the FNL-Rwasa claimed responsibility, more than 150 Congolese Banyamulenge refugees (ethnic Tutsis) were killed in a massacre at a UNHCR transit camp for Congolese refugees at the town of Gatumba .
The first International Conference on the Great Lakes Region was held at Dar es Salaam in November with the support of the United Nations and the EU. The summit represented a broadly based approach to tackling the region’s problems and resulted in the signing of a declaration of principle on good neighbourly relations and regional cooperation which is to be further supplemented and implemented in 2005.
The conflicts in West Africa continue to impact one another. With a view to supporting the peace process in Côte d’Ivoire , the Security Council adopted resolution 1528 turning its political mission the United Nations Mission in Côte d’Ivoire (MINUCI), into a peacekeeping mission: the United Nations Operation in Côte d’Ivoire (UNOCI). At the beginning of November, however, government air raids on rebel positions led to renewed escalations and the killing of nine soldiers of the French Licorne forces, who support UNOCI. In response to this event, the Security Council unanimously adopted resolution 1572 on 15 November imposing an immediate arms embargo on Côte d’Ivoire and targeted sanctions against individuals and groups who undermined the peace process.
The situation in Liberia remained instable. Although more than 70,000 former combatants were disarmed, the transition government lacked resources. In September the Security Council extended the mandate of the United Nations Mission
150 in Liberia (UNMIL) until 17 September 2005. The crisis in Côte d’Ivoire and the subsequent flow of refugees caused renewed instability in the border regions.
By contrast, the situation in Sierra Leone continued to improve. The United Nations Mission in Sierra Leone (UNAMSIL) could be gradually reduced and was extended for a last time until 30 June 2005. On 30 June, the Council unanimously adopted resolution 1610 (2005), by which it extended the mandate of UNAMSIL for a final period of six months, until 31 December 2005. By that date the orderly handing over of functions to the authorities of Sierra Leone or the UN Country Team will have been completed.
In East Africa no progress was achieved in the peace process between Ethiopia and Eritrea . By resolution 1560 the Security Council extended the mandate of the United Nations Mission in Ethiopia and Eritrea (UNMEE) until 15 March 2004 but at the same time decided to reduce the mission’s presence and operations.
There was no progress either in the conflict in Western Sahara , since some of the parties to the conflict still refused to agree to the peace plan proposed by James Baker. The mandate of the United Nations Mission for the Referendum in Western Sahara (MINURSO) was extended.
3. UN Peacekeeping Operations (PKO)
At the beginning of the year there were 17 UN peacekeeping operations in place for which 94 states contributed personnel. In the course of the year the Security Council established peacekeeping operations in Burundi (ONUB) and Haiti (MINUSTAH).
The MINUCI operation authorised by the Security Council in 2003 was considerably expanded under the new UNOCI mandate. By the end of the year 2004 the total troops’ strength , comprising the military and police personnel dispatched, amounted to 64,720 personnel (31 December 2003: 45,815). The largest operations were UNMIL (15,788 personnel), MONUC (12,646 personnel), UNOCI (6,215 personnel) and UNAMSIL (4,274 personnel). As has been the case in the last few years, the Asian and African states contributed the largest numbers of personnel. Demand for armed troops equipped with the necessary protective equipment is still high particularly for the peacekeeping operations in Africa. Judging from the current situation it will be necessary to increase the number of peacekeeping operations in Africa (the Sudan) in the course of 2005.
151 The agenda of the Special Committee on Peacekeeping Operations was largely concerned with stepping up UN capacities for peacekeeping operations, strengthening the African capacities for peacekeeping operations and ensuring the security of UN personnel. This aspect was the topic of intensive deliberations, not least because of the terrorist attack on the UN headquarters in Baghdad on 29 August 2003. The demand for recognition of the need for capabilities to analyse the results of investigations both at the UN Secretariat and in the missions, and for the Secretariat’s right to be informed by and demand information from Member States was blocked because of resistance by the NAM states. Austria continued to urge that police personnel charged with executive tasks and armed military personnel in peacekeeping operations be granted the same legal status.
In 2003 a total of 1,985 Austrians participated in peacekeeping operations authorised by the United Nations Security Council. As of 31 December 418 Austrians (377 soldiers, twelve military observers and 29 police officers) were serving in eight UN peacekeeping operations and 528 soldiers in the KFOR operation in Kosovo authorised by the Security Council. Three Austrians participated in the ISAF operation authorised by the Security Council in Afghanistan, and 279 in the EU-led EUFOR-ALTHEA operation in Bosnia and Herzegovina. Of all EU Member States Austria contributed the fifth-largest number of personnel (following Poland, France, the United Kingdom and Ireland) to UN-led missions and peacekeeping operations, thus occupying rank 29 among the 103 troop-contributing UN member countries. During the Austrian chair, international cooperation continued under the Standby Forces High Readiness Brigade (SHIRBRIG) project for the swift provision of personnel for UN-led peacekeeping operations, which Austria had co- founded. For the third time since 2000 the importance of this cooperation project was underlined by the fact that part of the SHIRBRIG brigade command was deployed with the UN preparatory mission in the Sudan. Austria has been a full member of this multinational brigade since 1997. Other members are Canada, Denmark, Finland, Ireland, Italy, Lithuania, the Netherlands, Norway, Poland, Romania, Slovenia, Spain, Sweden and since 2004 Hungary.
IV. The Economic and Social Council (ECOSOC)
1. General
This year, the substantive session of the Economic and Social Council was held from 28 June to 30 July at the UN headquarters in New York. The top item on the agenda of the high-level segment was mobilising resources and enabling an environment for poverty eradication in the context of the implementation of the Programme of Action for the Least Developed 152 Countries for the Decade 2001-2010. Various aspects of resources were discussed, including local development of the private sector, the role of microcredits, foreign direct investments, trade preferences and capacity building. In the high-level segment, ILO presented the Report of the World Commission on the Social Dimension of Globalization. The Coordination Segment was devoted to two themes this year: a coordinated and integrated United Nations system approach to promoting rural development in developing countries – with due consideration of least developed countries – for poverty eradication and sustainable development on the one hand and the review and appraisal of the system-wide implementation of the ECOSOC’s conclusions on gender mainstreaming (integrating the gender perspective into all policies and programmes in the United Nations system) on the other. The main topic of the ECOSOC Operational Activities Segment was the report on the triennial comprehensive policy review of operational activities for development of the United Nations system. The Humanitarian Affairs Segment dealt with the topic of strengthening the coordination of United Nations humanitarian assistance and covered the issues of transition from relief to development, access of humanitarian relief personnel to people in crisis situations and the safety and security of humanitarian staff in higher-risk environments. The Humanitarian Affairs Segment also addressed the issue of response to natural disasters and its improvement by enhanced capacity building and emergency planning. Finally, in the ECOSOC General Segment the mandates for the Ad Hoc Advisory Groups on Burundi and Guinea-Bissau were extended until 2005 and the Ad Hoc Advisory Group on Haiti was reactivated. The mandate of the Ad Hoc Open-ended Working Group on Informatics, the Improvement of the Secretariat’s ICT Infrastructure and Access to Information was also extended for a period of one year. The General Segment also endorsed the Report of the United Nations Group of Experts on Geographical Names (UNGEGN) and the recommendation it included to hold the group’s 2006 meeting in Vienna.
2. United Nations Economic Commission for Europe (UNECE)
As one of the five regional commissions of the United Nations, the 55-member Geneva-based UNECE focuses primarily on forging stronger ties between the economically weaker countries, particularly countries in transition and Central Asian countries, and the rest of Europe. The main areas of UNECE’s cooperation activities in this context include transport, environment, energy, human settlements, facilitating trade and company development. In this context the UNECE carries out valuable analyses of the economic development in the UNECE region. It is also a forum for the elaboration of international standards and the exchange of views and experience between national experts. After successfully adapting to the new political and economic realities following the end of the Cold War, the Commission has more recently 153 been exposed to new challenges, notably through the enlargement of the European Union.
At the Annual Session in February, Austria once again took over the UNECE chair it had already held between 2000 and 2002. While holding the chair Austria focused particularly on initiating an external evaluation study on UNECE’s role and tasks, which is expected to be launched at the beginning of 2005 – with financial support from Austria – and which should then lay the groundwork for a discussion on the future of the UNECE. Austria also played a mediating role in formalising the cooperation between the UNECE and the OSCE. At the global level the UNECE also makes a substantial contribution to the implementation and review of the outcome of international conferences, by drawing on its specific regional dimension. With a view to implementing the results of the ICPD held in Cairo, for instance, it organised the European Population Forum on current demographic development issues in January. Under the UNECE regional strategy for the implementation of the International Plan of Action on Ageing adopted at the Second UN World Assembly on Ageing held in Madrid in April 2002, a cooperation project initiated and co-funded by Austria was launched by UNECE in collaboration with the Vienna-based European Centre for Social Welfare Policy and Research. At the World Summit on Sustainable Development in Johannesburg 2002, the UNECE was called upon to integrate the issue of sustainable development more strongly into its working programme. In response to that call the UNECE held the First Regional Implementation Forum on Sustainable Development in Geneva. In view of the special attention the City of Vienna is paying to this topic, Austria participated actively in the panel on human settlements. Subsequently, in November, the UNECE together with the City of Vienna organised a symposium on social housing in Vienna. As a follow-up to the Fourth World Conference on Women in Beijing in 1995, the UNECE held a Regional Preparatory Meeting for the 10-year Review of the Implementation of the Beijing Platform for Action (Beijing plus 10) in Geneva in December to prepare for the New York review conference scheduled for the beginning of 2005.
V. Specialised Agencies and Organisations Affiliated with the UN
1. Food and Agriculture Organization of the United Nations (FAO)
Austria has been a member of the FAO since 1947. Austrian interests within the FAO are generally represented by the Federal Ministry for Agriculture, Forestry, Environment and Water Management, unless foreign policy or international law issues require representation by the Federal Ministry for Foreign Affairs. At the Eighteenth Session of the FAO Committee on Agriculture on 9 and 10 February in Rome, follow-up measures to the Report 154 of the Joint WHO/FAO Expert Consultation on Diet, Nutrition and the Prevention of Chronic Diseases were discussed. Deliberations also focused on the growing world-wide problem of nutrition-related diseases. The agenda of the 33 rd session of the European Commission on Agriculture (ECA) held in Rome on 1 and 2 March was dominated by technical preparation for the Twenty-fourth Regional Conference for Europe in Montpellier from 4 to 8 May. The main item on the agenda was “The Follow-up to the World Food Summit and World Food Summit: fyl” (five years later). With respect to food safety and quality in Europe, the importance of consumer information and participation was stressed. The importance of quality parameters including the regional-geographic designation of origin were underscored, as were the concept of traceability in food safety and responsibility for safe food production. Austria offered to host the 26 th Regional Conference for Europe in Innsbruck in May 2008. The 17 th expert meeting of the ECA Working Party on Women, which the Federal Ministry for Agriculture, Forestry, Environment and Water Management had organised jointly with the FAO in Salzburg from 14 to 18 June, focused on the role of women in rural areas and contributed to cross-border networking among participants. The Twelfth Session of the Working Party on Women and the Family in Rural Development, held in Nitra (Slovakia) from 18 to 21 October, dealt with institutional capacity building with a view to helping empower rural women.
The Tenth Regular Session of the Commission on Genetic Resources for Food and Agriculture (CGRFA) dealt with plant genetic resources for food and agriculture, animal genetic resources, cooperation with the Convention on Biological Diversity, the Draft Code of Conduct on Biotechnology and the commission’s future work. African countries expressed their concern about the import of genetically modified organisms in connection with food aid, the unintentional gene flows and the unclear liability issues that these involved. At its thirtieth session from 20 to 23 September in Rome, the Committee on World Food Security (CFS) reported an increase in the number of undernourished people, but the adoption of Voluntary Guidelines for the Right to Food by the 127 th session of the FAO Council in Rome from 22 to 27 November represented a landmark success in the Committee’s work. The objective of these voluntary guidelines is not to set out new obligations but to realise and ensure the human right to safe and nutritious food for the long term. In collaboration with NGOs, Austria contributed substantially to the entire elaboration process. The member states are responsible for the implementation of the guidelines and the FAO’s Director-General is charged with ensuring their dissemination among all relevant UN bodies. In this connection it was decided to organise a special forum on the 2006 mid-term review of progress toward achievement of the World Food Summit target. Prior to this meeting the CFS will organise a Multi-Stakeholder Dialogue (a forum for discussion between representatives of various civil society interest groups, governments and international organisations) on this topic in 2005.
155 Moreover, it was decided to commission an independent external audit of the FAO, the terms of reference of which are to be defined by the time the FAO Council meets in November 2005 at the latest.
On the occasion of the FAO World Food Day (WFD), the Federal Ministry for Agriculture, Forestry, Environment and Water Management together with the Austrian Development Cooperation and the Ecosocial Forum Austria invited Austrian and international experts to discuss possible approaches to reducing hunger worldwide. In their contributions senior FAO and WFP representatives stressed the importance of biodiversity and the active involvement of women in ensuring food safety, pointing out that the central role women in rural areas played in ensuring food safety and development in rural regions was not limited to developing countries.
2. International Labour Organization (ILO)
In February, the World Commission on the Social Dimension of Globalization , set up by ILO in November 2003, submitted its report, which was elaborated by a total of 26 high-level contributors. The World Commission’s task had been to prepare an objective analysis of globalisation with a view to its economic, social and ecological implications, involving public and private players at the international, regional and national levels. The report contains a number of recommendations for a fairer distribution of the benefits and advantages of globalisation. At its 92 nd session the International Labour Conference adopted Recommendation 195 concerning human resources development, an action plan on migrant workers and a resolution on gender equality. With the elaboration of new international instruments being planned for the next session of the International Labour Conference, working conditions in the fishing industry were a particular focus. The instruments adopted at the International Labour Conference 2002 – the Protocol to the Occupational Safety and Health Convention, Recommendation 194 concerning the list of occupational diseases and the recording and notification of occupational accidents and diseases, and Recommendation 193 concerning the promotion of cooperatives – were taken note of by the National Council (the Lower House of the Austrian Parliament) in April. The ratification of the Maternity Protection Convention (C183) was registered with the International Labour Office on 30 April. The convention will enter into force in Austria one year later. At the session of the Administrative Council held in November, the group of Industrialized Market Economy Countries (IMEC) was expanded to include the new EU Member States, thereby contributing to strengthen the EU’s position in this influential group of like-minded states among the ILO members.
156 3. International Telecommunications Union (ITU)
The Geneva-based ITU is a specialized UN agency which brings together representatives from governments and industry with a view to jointly coordinating the establishment and operation of global telecommunications networks and services. The ITU is responsible for standardising, coordinating and developing international telecommunications and harmonising national policies. It defines and sets standards regulating the terrestrial and outer space use of the radio frequency spectrum and the satellite orbit. Its activities are subdivided into three sectors charged with the development of standards for the worldwide interconnection of telecommunications systems.
Together with other UN organisations the ITU initiated the World Summit on the Information Society (WSIS) , which is under the patronage of the United Nations Secretary-General. The first phase of the WSIS was held in Geneva in December 2003 and the second will be held in Tunis in November 2005. The goal of phase one was to address the multitude of new technological and social challenges and opportunities inherent to the development of an information society by involving civil society and private industry with a view to arriving at a common understanding of the social effects of information and communication technologies. In this spirit the summit adopted a political declaration of principle and a strategic action plan. The main problem areas identified included regulation of the Internet, network security, the role of the media, human rights, intellectual property, and last but not least the funding of the envisaged measures. In the second phase of the World Summit in Tunis the focus will be on following up on the items left open in Geneva regarding the future administration of the Internet and the funding mechanisms to be used with a view to enabling developing countries to take advantage of the modern opportunities offered by information technologies. Another item on the agenda will be a review and evaluation of the progress made since the end of 2003. Austria participated and contributed actively to the first preparatory meeting for the second phase held in Hammamet (Tunisia) in June. On the margins of the preparatory commission’s consultations the Austrian delegation sought to incorporate the international WSIS Contributory Conference on ICT & Creativity, to be held in Vienna in June 2005, in the preparations for the World Summit. Austrian delegates also discussed with their Tunisian hosts ways of ensuring that the presentation of the World Summit Award, which will be prepared by the Salzburg International Centre for New Media, features prominently on the WSIS agenda. At the International Global ICT Summit Symposium in Hong Kong Austria presented a paper on ICT and the Evolution of Pluri-Identity Societies (international communications technologies and the evolution of societies with a variety of different identities including persons with multiple identities).
157 4. International Fund for Agricultural Development (IFAD)
Through its membership in the IFAD, Austria makes an important contribution to improving the living conditions of the poorest rural population groups and thus contributes to achieving the Millennium Development Goals (MDGs). The IFAD promotes and provides assistance for the poorest rural population groups in developing countries by supplying loans at very favourable conditions and non-repayable grants. As a comparatively small international financial institution the IFAD supports the creation of an Enabling Microenvironment for the Poor. The essential elements of this strategy include creating easier access to small loans, technology, fair markets, the necessary minimum infrastructure (rural roads), health care and primary education for the poor rural population. Established in 1978, IFAD had granted a total volume of assistance loans worth USD 7.94 billion by the end of 2003, with Africa receiving the major share of these funds.
5. International Civil Aviation Organization (ICAO)
The International Civil Aviation Organization (ICAO) held its 35 th General Assembly at the organisation’s headquarters in Montreal from 28 September to 8 October 2004. The area of security, safety and environment protection (airline noise standards and emissions) were at the centre of the work undertaken. In the core area of security, resolutions aimed at strengthening and enhancing the transparency of the international security programmes were adopted and a number of long-term action plans confirmed. The importance of the ICAO Universal Safety Oversight Audit Programme (USOAP) including audits of airport safety oversight systems was underlined. Since 1999 such safety oversight audits have been conducted by 181 Contracting States. In future airports, air surveillance and other key areas will also be subject to this comprehensive audit system. With respect to challenges to security posed by external factors the issue of eliminating the threat posed to civil aviation by MANPADS was given considerable attention. Regarding the reduction of airline emissions, delegates agreed on elaborating guidelines for potential measures by the next general assembly in 2007.
As a candidate from the group of ABIS States (Austria, Benelux, Ireland and Switzerland), Austria stood for a seat on the ICAO Council for the first time and was elected by an overwhelming majority for the period 2004 - 2007. Following its enlargement in 2003, the Council, which is the permanent governing body of ICAO, is now composed of 36 members. It is responsible for examining and approving all technical and economic guidelines and recommendations. The results of the Council’s work are reflected in standards and recommended practices.
158
6. United Nations Educational, Scientific and Cultural Organisation (UNESCO)
The implementation of the ambitious goals set in the field of international standards at the 32 nd session of the UNESCO General Conference commenced with the preparation of drafts for a Convention on the Protection of the Diversity of Cultural Contents, an International Convention against Doping in Sports and a Universal Declaration on Bioethics and Human Rights.
The elaboration of a Convention on the Protection of the Diversity of Cultural Contents received particular international attention. The group of experts set up by UNESCO Director-General Koichiro Matsuura at the end of 2003 prepared a draft by the middle of the year, on the basis of which the scheduled consultations between UNESCO and the World Trade Organisation (WTO), the World Intellectual Property Organization (WIPO) and the United Nations Conference on Trade and Development (UNCTAD) were taken up. At an initial conference of government experts this draft was then discussed with civil society representatives in Paris from 20 to 24 September. In view of the many overlaps with EU competences in the fields of trade and business, the Council on Education, Youth and Culture authorised the EU in November to participate in the future conferences. In Mid-November the EU Member States communicated a joint written statement to UNESCO.
Government experts held intergovernmental meetings in Paris in January and May in connection with the work on a draft Convention against Doping in Sports. Preparatory work for the Declaration on Bioethics and Human Rights, which will build on the International Declaration on Human Genetic Data of 2003, also progressed. The 28 th Session of the World Heritage Committee Meeting took place in Suzhou (China) from 28 June to 7 July. A total of 29 new sites of cultural and five sites of natural properties were inscribed on the World Heritage List bringing the number of sites to a record 788 including eight Austrian properties: the historic centre of the City of Salzburg (1997), Palace and Gardens of Schönbrunn (1997), the Hallstadt-Dachstein Salzkammergut Cultural landscape (1998), Semmering railway (1999), City of Graz (2000) Wachau Cultural landscape (2001), historic centre of Vienna (2002) and the cultural landscape of Ferto-Neusiedlersee (2002).
In the field of communication UNESCO has launched measures to promote the implementation of the 2003 WSIS Action Plan (training of teachers in the field of ICT and the use of this technology in education policy) and was involved in the preparations of the second summit (see Chapter F.V.3.). UNESCO continued its efforts to reconstruct Afghanistan. In this context Austria funded a mission headed by University Professor Deborah Klimburg- Salter to explore the possibilities for reconstructing the museum of Kabul. 159 UNESCO activities in Iraq were coordinated by its newly established office in Amman in cooperation with the offices in Beirut and Cairo. UNESCO provides support to Iraq in the field of higher education and in the development of a National Water Resources Master Plan to optimise the country’s water resources. In May, University Professor Helga Trenkwalder took part in the First Plenary Session of the International Coordination Committee for the Safeguarding of the Cultural Heritage of Iraq. The committee was set up to devise programmes in cooperation with local authorities to safeguard Iraq’s cultural heritage.
The USA’s rejoining UNESCO brought the share of Austria’s contribution to the organization’s overall budget down to 0.864 per cent in 2004. Austria contributed 26,426 US dollars to the Fund for the Protection of the World Cultural and Natural Heritage of Outstanding Universal Value (the World Heritage Fund). This year too, Austria provided voluntary contributions for the International Council of Monuments and Sites (ICOMOS), the Voluntary Fund for the Development of the Knowledge of Human Rights, the International Institute for Educational Planning (IIEP), which focuses on the education and training of education planers from developing countries and the Association for the Development of Education in Africa (ADEA).
7. World Health Organization (WHO)
The Fifty-seventh World Health Assembly met in Geneva from 17 –22 May and was dominated by the topic of combating HIV/AIDS . This issue was also discussed in four Round Tables in which Federal Minister Maria Rauch-Kallat participated. The issue of granting observer status to Taiwan again featured prominently on the agenda, and 133 states, including all 25 EU Member States voted for continuing the one-China policy. The resolution on the health situation of Palestinians traditionally introduced by a number of Arab states was also adopted. Although the wording of the draft was comparatively moderate, it was not possible to reach a uniform EU position – mainly due to the objection raised by Germany. In the end, twelve EU Member States (including Austria) voted for the resolution and 13 abstained. The resolution on Reproductive Health was also adopted by consensus despite resistance from the USA. Discussion of the sensitive issue of policy relations with non- governmental organisations was postponed for decision taking.
The 2004 World Health Report entitled “Changing History” also focused on the biggest challenge the public health sector is facing today, combating HIV/AIDS. The WHO presented the most ambitious project it has ever launched: the 3 by 5 Initiative , which is aimed at providing three million people living with HIV/AIDS with life-prolonging antiretroviral treatment (ART) by the end of 2005. Moreover, deliberations on the Revisions to the 160 International Health Regulations (IHR) were held with a view to not restricting their scope to cholera, yellow fever and plague but expanding it to include all kinds of health crises. The Fourth Ministerial Conference on Environment and Health held in Budapest from 23 to 25 June was dedicated to The Future for our Children and brought together ministers for health and environment affairs from the 52 countries of the WHO European Region. Under the Austrian chair, a Children's Environment and Health Action Plan for Europe (CEHAPE) was negotiated and subsequently adopted by the conference. The Austrian delegation in Budapest was headed by the Federal Ministers Maria Rauch-Kallat and Josef Pröll. At the Fifty-fourth session of the WHO Regional Committee for Europe held in Copenhagen from 6 to 9 September, follow-up measures to the Budapest conference were discussed and the elaboration of a European strategy on noncommunicable diseases was adopted.
As an independent funding mechanism, the Global Fund to Fight Aids, Tuberculosis and Malaria ( GFATM) which is governed by a 23-member Board is responsible for making available the funds for effectively combating these three diseases in the long term. The fund which has been operational unrestrictedly since 2003 succeeded in increasing its funds from 1.7 to 5.6 billion US dollars between January 2002 and December 2004. Nevertheless, new resources will have to be mobilised in order to continue the ambitious programmes adopted during the first three years and to successfully tackle the growing number of tasks.
8. International Atomic Energy Agency (IAEA)
The IAEA, which was established in 1957, is based in Vienna and currently employs 2,200 staff members. Alongside the IAEA Secretariat which is headquartered at the Vienna International Centre (VIC) its official seat also includes the laboratories in Vienna and Seibersdorf (Lower Austria). The Agency’s principal task is to promote research and development of the peaceful use of nuclear energy and its many practical applications worldwide and to verify observance of the commitments under the Nuclear Non- Proliferation Treaty (NPT). Within the IAEA, Austria contributes particularly to the fields of nuclear safety, nuclear radiation protection and the IAEA safeguards system for the non-proliferation of nuclear weapons. Austria attaches particular importance to the Joint Convention on the Safety of Spent Fuel Management and on the Safety of Radioactive Waste. Periodic review meetings are held every three years to thoroughly examine compliance with these two conventions. The next meeting on the Nuclear Safety Convention will be held in April 2005. Austria continued to strongly support the development of a new IAEA safeguards system. A decisive role is played in this respect by the Additional Protocols to Safeguards Agreements, which 161 require states to make available more comprehensive information and provide prompt and unhindered access to all the requested locations, including sensitive nuclear installations, sites and facilities. This will allow the IAEA to gain a more detailed insight into all its members’ nuclear activities. So far 96 Member States of the European Atomic Energy Community (EURATOM) have signed such additional protocols with the IAEA. After all EU Member States had finalised their national ratification procedures their additional protocols entered into force on 1 May.
On 17 March 2003 the USA called on the IAEA to withdraw its inspectors from Iraq. Since then the Agency has not been in a position to resume its activities in spite of its valid UN mandate. No progress could be made either with the Democratic People's Republic of Korea (DPRK). The government in Pyongyang has not allowed any inspections of its nuclear installations since it forced the IAEA inspectors to leave in December 2002. Iran’s large-scale nuclear programme featured prominently in the deliberations of both the IAEA and its Board of Governors. The Agency actually succeeded in gaining detailed insight into Iran’s nuclear activities but a number of crucial issues have still to be clarified. Some countries therefore continue to have serious doubts regarding the exclusively peaceful nature of the Iranian nuclear programme.
As a result of the doubts relating to the observance of the commitments under the Non-Proliferation Treaty (NPT) by some NPT contracting states the 48 th IAEA General Conference held in Vienna from 20 to 24 September dealt in great detail with strengthening the Agency’s verification system and measures to enhance protection against nuclear terrorism. Against this background Austria again highlighted the importance of safeguards and – as in earlier years – prepared a resolution on this topic on behalf of the EU. This draft resolution was adopted by consensus after very difficult consultations. The second top item on Austria’s agenda was again the issue of nuclear safety. Austria welcomed the headway made so far by the IAEA, but at the same time continued to strongly advocate enhanced international efforts to strengthen the Agency. In 2004 the IAEA’s budget totalled around 268.5 million US dollars. The target for contributions to be pledged to the Technical Cooperation Fund was set at 75.75 million US dollars.
9. World Tourism Organization (WTO/OMT)
The World Tourism Organization (WTO/OMT) is the leading international organisation in the field of travel and tourism. It serves as a global forum for tourism policy issues and a practical source of tourism know-how and statistics. The WTO/OMT is an international intergovernmental organisation headquartered in Madrid. At its Fifteenth General Assembly in October 2003 162 the WTO/OMT adopted the decision to transform into a UN specialized agency . The UN General Assembly agreed to this transformation in November 2003. In 2004 membership of the WTO/OMT comprised 144 countries, seven territories (Associated Members) and more than 300 Affiliate Members representing the private sector, educational institutions, tourism associations and local tourism authorities. Austria has been as member of the WTO/OMU since 1975 and of its Programme Committee since 1995. Austria took over the Committee’s chair in September 1999.
The Second WTO Forum on Sustainable Tourism – Eliminating Poverty ( ST- EP ) took place in March. In 2002 the ST-EP initiative was launched jointly by the OMT/WTO and UNCTAD at the World Summit on Sustainable Development. The programme focuses on developing sustainable tourism to make it a driving force in eliminating poverty. In January the First World Conference on Tourism Communications ( TOURCOM) was organised in Madrid. Discussions dealt with TOURCOM conferences and working sessions (inter alia on offering and providing basic training on public relations, e- communication, communication in crisis situations, advertising), the Tourism Enriches campaign (a global communications campaign promoting the positive impacts of tourism) and the TOURCOM network of communications experts (establishing a network composed of tourism communications experts set up as an informal consultative group).
10. Universal Postal Union (UPU)
The 23 rd World Congress of the Universal Postal Union took place in Bucharest from 15 September to 5 October. One of the most substantial decisions taken was the adoption of the Bucharest World Postal Strategy , which outlines the development of postal services for the next four years. A resolution was adopted defining minimum quality objectives for the universal postal service for international letter-post items. This resolution sets out a worldwide standard of J+5 for priority letter-post items (priority treatment and most rapid transport) between member states, with 50 per cent as the minimum that must meet these standards. From 2008 on, 65 per cent of such priority letter- post items will have to be delivered at the latest within the fifth working day following posting. It was also agreed to establish a cost accounting and settlement system to cover the costs for national delivery of international mail. From 2014 on, a system based on actual cost and service quality will be applicable in all Union member countries. Edouard Dayan of France was elected Director General of the UPU International Bureau.
163 VI. Other United Nations Institutions
United Nations University (UNU)
The Tokyo-based UNU was founded in 1972 to contribute to the resolution of global problems through research and capacity development. It offers its students a global network in the fields of peace policy and governance, development, science, technology, social issues and ecology. Besides its headquarters, UNU has two offices in New York and Paris and 13 Research and Training Centres and Programmes around the world. The recently opened UNU Institute for Environment and Human Security (UNU-EHS) in Bonn focuses on researching natural disasters and their impact and is charged with developing measures to protect people affected by such disasters and strategies for preventing damage.
164
G. Global Disarmament, Arms Control and Non- Proliferation of Weapons of Mass Destruction and their Means of Delivery
The strengthening and further development of international disarmament, arms control and non-proliferation of weapons of mass destruction (WMD) and their means of delivery are clear objectives of Austrian foreign policy. In this spirit Austria seeks to contribute to a joint EU position in the various multilateral fora. Austria has thus contributed pro-actively to the implementation of the EU Strategy and the Action Plan on the Non- Proliferation of WMD of December 2003 and particularly to the universalisation and reinforcement of multilateral treaties and agreements in the field of non-proliferation of weapons of mass destruction and means of delivery. Austria also supported resolution 1540 (2004), adopted by the UN Security Council in April, on the Non-Proliferation of Weapons of Mass Destruction with a view to preventing the proliferation of such weapons and means of delivery, in particular for terrorist purposes. Against this background, efforts aimed at strengthening Vienna’s position as a centre for international arms control and verification were continued. Austria’s committed efforts in the field of non-proliferation were also geared towards the prevention of the unchecked spread and proliferation of conventional arms and weapons. This was also reflected in Austria’s active contribution to shaping the Ottawa process and in the fact that Austria chaired the 2004 Nairobi Review Conference.
I. Arms Control and Disarmament in the Field of Weapons of Mass Destruction
1. Nuclear Weapons
For many years the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) has been the cornerstone of all nuclear disarmament and non- proliferation activities. With 189 states being party to the treaty, the NPT is almost universally applicable – with only Israel, India and Pakistan still refusing to accede to it.
The third session of the Preparatory Committee for the Review Conference of the Parties to the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) scheduled for May 2005 was held in New York from 26 April to 7 May 2004. The content of the debates did not differ much from that of the 2002 and 2003 meetings. Discussions again focused first and foremost on the issue of non- proliferation and on measures to prevent the proliferation of nuclear weapons
165 more effectively than in the past. Numerous delegations, including Austria, also ensured that the commitment to disarmament undertaken by the five official nuclear weapon States pursuant to Article VI of the NPT was given due attention. The efforts by the Vienna-based IAEA to develop an improved verification system which will permit the detection of undeclared nuclear activities were welcomed. Moreover, a call was issued for strengthening export control regimes and putting an end to the illicit trafficking in nuclear material – particularly in the light of the threat posed by acts of terrorism involving nuclear weapons.
2. Comprehensive Nuclear-Test-Ban Treaty (CTBT)
The Comprehensive Nuclear-Test-Ban Treaty provides for a comprehensive ban on Nuclear Weapon Tests in the Atmosphere, in Outer Space and Under Water and the related nuclear chain reactions and seeks to achieve the discontinuance of all test explosions of nuclear weapons for all time. So far 174 states have signed the CTBT and 120 have ratified the Treaty including 33 of the 44 key States whose ratification is necessary for the CTBT to enter into force. Although the number of ratifications is constantly rising (twelve states ratified the CTBT in 2004), ratification by the key States is progressing slowly (only the Democratic Republic of Congo ratified in 2004). Austria ratified the Treaty on 13 March 1998. At the 59 th UN General Assembly the USA again declared that they would not ratify the CTBT.
The Vienna-based Provisional Technical Secretariat (PTS) of the CTBT Preparatory Commission ( PrepCom ) started working in March 1997 and employs some 270 staff members. Its main task is to develop the verification system provided for in the Treaty. The International Monitoring System consists of 321 monitoring facilities, 16 radionuclide laboratories and an International Data Centre (IDC) in Vienna. Completion of the entire system is scheduled for 2007.
Austria has supported the rapid establishment of the verification and monitoring system within the CTBT PrepCom. The radionuclide laboratory in Seibersdorf is the only IMS installation planned on Austrian territory and is responsible for inspecting “suspicious” radionuclide samples. The Seibersdorf facility is the first of a total of 16 laboratories worldwide to be certified by PTS and officially started operations in December 2001.
166 3. Geneva Conference on Disarmament (CD)
The CD, which is composed of 66 member states (Austria since 1996), is undergoing a deep crisis. As in previous years members could not reach a consensus on a working programme so as to be able to start up the long overdue negotiations on a treaty banning the production of fissile material for nuclear weapons or other explosive devices (Fissile Material Cut-off Treaty, FMCT). The CD was mainly dominated by the USA’s internal “policy review” of the Conference and specifically of the FMCT, whose findings were presented in summer. In August the USA stated that verification measures could not be incorporated in the negotiations on an FMCT because it was not possible to satisfactorily verify the production of fissile material. This position represents a clear departure from the consensus decision (Shannon Mandate) that had been the basis for negotiations since 1995 and explicitly declares the need for effective verification. The position now adopted by the USA thus meets with much resistance from the majority of the CD members, and also within the EU. As matters stand it is therefore highly improbable that the CD member states will reach agreement on a working programme in 2005.
4. Convention on the Prohibition of the Development, Production, Stockpiling and Use of Chemical Weapons and on Their Destruction (CWC)
The Chemical Weapons Convention which entered into force in 1997 introduced a prohibition of all chemical weapons and made violations a criminal offence. It calls for the phased destruction of all existing chemical weapons by 2007 or 2012 respectively, with a possibility of an extension of the deadline until April 2012, a provision that has already been used by Russia. The civilian chemical industry is also subject to routine inspections in order to prevent any new production of chemical weapons.
In 2004 the Organization for the Prohibition of Chemical Weapons (OPCW) was given a fresh impetus by the adoption of a joint action launched by the EU with a view to promoting the OPCW by providing financial support for its activities for the first time. Further stimulus was created by the adoption of resolution 1540 by the UN Security Council raising the status of the CWC, which is currently composed of 167 States parties, to a convention of international importance. In spite of this progress, some major Middle Eastern countries (Egypt, Syria, Israel, Lebanon) and the Democratic People’s Republic of Korea have so far refused to become parties to the Convention. Libya recently joined the OPCW, bringing the number of chemical weapons states to a total of six (USA, Russian Federation, Libya, Albania, Republic of Korea and India).
167
Austria has been a very active member of the OPWC. The International Vienna Seminar on Challenge Inspections (dealing with ad-hoc inspections in the event of specific problems) in June and a special meeting, also in Vienna, of international Protection Network experts in April on the role of qualified experts in investigations of alleged use (IAUs) of chemical weapons received international acclaim.
The OPCW inspected three Austrian chemical companies in 2004 and registered no unusual occurrences or violations of the convention.
5. Biological Weapons Convention (BWC)
The BWC, signed in 1972, covers the prohibition of the development, production and stockpiling of bacteriological (biological) and toxin weapons and their destruction. Attempts to strengthen the BWC were abandoned in August 2001. Because of the critical attitude, particularly by the USA, towards the verification protocol, activities under the convention are largely restricted to the exchange of information. The Meeting of States Parties to the Biological Weapons Convention held in December focused on strengthening and broadening existing mechanisms for the surveillance, detection, diagnosis and combating of potential risks such as infectious diseases and epidemics and enhancing international capabilities for responding to future risks. Tajikistan ratified the Convention in December.
6. Ballistic Missiles
At the end of December 2004 membership in The Hague Code of Conduct against Ballistic Missile Proliferation ( HCOC ) consisted of 119 Subscribing States. The HCOC’s Executive Secretariat is headquartered in Austria (Immediate Central Contact: Disarmament Department at the Federal Ministry for Foreign Affairs). The Code of Conduct was enshrined in the UN system for the first time through the adoption of the first resolution on the HCOC (161:2:15 votes) at the 59 th UN General Assembly.
II. Restriction and Control of Conventional Arms and Weapons
1. Anti-Personnel Mines
From 29 November to 3 December Austria, represented by Ambassador Wolfgang Petritsch, chaired the First Review Conference in Nairobi on the Implementation of the Convention on the Prohibition of the Use, Stockpiling, 168 Production and Transfer of Anti-Personnel Mines and on Their Destruction. By the end of 2004 152 states had signed and 144 had ratified this Mine Ban Treaty, also known as the Ottawa Convention. The Nairobi Summit on a Mine Free World was the most important international event on landmines organised since the signing of the Ottawa Convention in 1997. More than 1,300 delegates from 135 states within the UN System, regional organisations and numerous representatives of NGOs participated in the summit. A largely positive stock was taken of the implementation of the total ban on anti- personnel mines in the previous five years. The main focus was on the Nairobi Action Plan 2005-2009, adopted by the Conference.
With a view to protecting civilians, who are most severely affected by the effects of anti-personnel mines, the Federal Ministry for Foreign Affairs under its Mine Action Programme provided 1.7 million euros in funding for mine clearance and destruction measures, awareness-raising and victim assistance programmes and measures to strengthen the Ottawa Convention. Following an evaluation process the Mine Action Programme will be streamlined and adapted to specific priorities in order to enhance both the effectiveness of the funds invested and Austria’s visibility. The programme focuses on two key regions: South East Europe (Bosnia and Herzegovina, Croatia, Albania, Serbia and Montenegro) and South-Eastern Africa (Mozambique).
2. Excessively Injurious Arms and Weapons
Austria strongly supports the implementation of the commitments and the further development of the Convention on Prohibitions or Restrictions on the Use of Certain Conventional Weapons which may be deemed to be Excessively Injurious or to Have Indiscriminate Effects ( CCWC ) of 1980. At the Second Review Conference of the States Parties to the Convention on Certain Conventional Weapons in 2001 it was agreed to extend the scope of the Convention and its Protocols to include non-international conflicts and to focus on the further development of the two priorities “explosive remnants of war” and “mines that are not antipersonnel mines” in order to raise general awareness of this humanitarian problem. In 2003 deliberations on a protocol on explosive remnants of war were successfully completed. The protocol will enter into force as soon as it has been ratified by 20 States parties to the Convention.
3. Small Arms and Light Weapons (SALW)
Under the Open Ended Working Group on Marking and Tracing of Small Arms and Light Weapons set up within the UN in December 2003, discussions
169 are currently under way in New York on the preparation of an international instrument on the identification (marking) and tracing of illicit SALW. Provided that agreement can be reached in two further rounds of sessions the instrument will be submitted for adoption at the forthcoming biennial meeting on the implementation of the UN Action Programme against the Illicit Trade in Small Arms and Light Weapons in All its Aspects in July 2005. Austria has set her geographic focus for the support of SALW projects in South East Europe.
4. Export Controls on Conventional Arms and Weapons
In Austria, arms exports are governed by the 1995 Federal Law on the Imports, Exports and Transit of Goods ( Foreign Trade Act of 9 March 1995, Federal Law Gazette 172/1995) as amended and the Federal Law on Imports, Exports and Transit of War Material, Federal Law Gazette 540/1977, as amended by Federal Law Gazette 125/2001 ( War Material Act ). Amendments to these laws were reviewed in 2004.
The EU Code of Conduct on arms exports , which defines politically binding joint criteria for the approval of conventional arms export, was strengthened by the accession of ten new EU Member States.
III. Multilateral Export Control Regimes
The primary objective of the currently five control regimes is to coordinate national export controls to prevent sensitive technology and know-how from falling into the hands of states that could use them to pursue military aims. The main instruments under these regimes are lists of the relevant goods and/or substances and guidelines governing the export to non-member states. Austria is a member of all five regimes. The national implementation of these instruments is covered for the most part by the foreign trade act. Nuclear- related exports are covered by the Zangger Committee (ZC) and nuclear and nuclear-related dual-use exports by the Nuclear Suppliers Group (NSG). The regime applicable to chemical and biological weapon-related exports is the Australia Group (AG) while the Missile Technology Control Regime (MTCR) was set up to prevent the proliferation of missiles of all kinds, including ballistic missiles.
The export of conventional weapons, dual-use items and the technology required to produce such weapons is covered by the Vienna-based Wassenaar Arrangement (WA) , which Austria will chair in 2005. The WA was expanded for the first time through the accession of Slovenia in December. Talks will be initiated with Israel next year and discussions continued with those countries 170 (China, Brazil and South Africa) whose accession is desired by the current WA member states. Efforts aimed at inviting all new EU Member States to join all five export control regimes have to date led to their accession to two regimes (NSG and AG).
171 H. The International Protection of Human Rights
I. Introduction
In 2004, Austria once again devoted considerable attention to the worldwide implementation of international human rights standards. Main focuses were the abolition of the death penalty, protection of minorities, the rights of women and children, particularly in armed conflicts, the situation of displaced persons, the prohibition of trafficking in human beings, the effective combating of racism and xenophobia, human rights education and the promotion of democratisation and good governance. Austria made an important contribution to the EU human rights committees, in international organisations such as the UN, Council of Europe and OSCE, and in bilateral political dialogue with governments throughout the world. It also strongly advocated the strengthening of civil society and of NGOs working in the field of human rights.
II. Human Rights in the EU
1. EU Human Rights Policy
The EU’s Common Foreign and Security Policy sets itself the task of developing and consolidating democracy and the rule of law and of protecting human rights and basic freedoms. Questions arising out of the EU’s human rights policy are dealt with by the EU human rights directors in the Council Working Group on Human Rights (COHOM) and in cooperation with Geographic Working Groups and the Human Rights and Democracy Committee chaired by the European Commission. Austria was involved in particular in the implementation of EU guidelines regarding children in armed conflicts, the drafting of guidelines for the protection and promotion of human rights defenders and the preparations for the establishment of a European Human Rights Agency. Within the EU Austria also participated actively in discussions on the issues dealt with by the Commission on Human Rights, the United Nations General Assembly and in EU country initiatives.
An action plan was adopted in December to implement the Guidelines on Children and Armed Conflict established in December 2003 on the initiative of Austria to strengthen EU efforts in this area. The implementation of the Guidelines on Human Rights Defenders was a focus in the 2004 EU human rights agenda. The aim of the EU guidelines is to improve practical measures by the EU and its Member States for the protection and promotion of human rights defenders.
172 The sixth EU Human Rights Forum , a platform for the exchange of experiences between EU Member States, the Union’s institutions and representatives of civil society, was held in December in The Hague. The Forum was devoted to the practical implementation of the EU Guidelines on Human Rights Defenders and aimed at creating a manual for EU foreign missions containing detailed recommendations on the practical protection and promotion of human rights defenders.
The worldwide abolition of the death penalty remains a priority issue in the human rights policies of Austria and its partners in the EU. This aim is pursued through general measures, through specific actions based on the Guidelines on EU policy towards third countries on the death penalty and through an increased focus on this issue in regional and international committees. At the 60 th Session of the United Nations Commission on Human Rights the resolution on the death penalty – traditionally introduced by the EU – was adopted with the highest number of co-sponsors. Among other things, the resolution expresses concern at the recent lifting of existing moratoria on executions in several countries. The Second World Congress against the Death Penalty organised by prominent NGOs was held in Montreal from 5 to 9 October. Austria participated with a welcome message from Federal Minister Benita Ferrero-Waldner. On 12 January, Austria ratified Protocol No. 13 to the Convention for the Protection of Human Rights and Fundamental Freedoms, concerning the abolition of the death penalty in all circumstances. The Protocol entered into force in Austria on 1 May.
The prevention of torture is a further priority in EU human rights policy with regard to third states, and a Guideline was adopted in April 2001 to implement this policy. In compliance with this Guideline, the EU takes diplomatic measures against third states and also intervenes in individual cases of torture or abuse. In 2004 19 million euros were made available to the European Commission’s human rights programme, the European Initiative for Democracy and Human Rights (EIDHR), for projects to combat torture and to assist victims of torture. On 23 November, the Austrian human rights expert Manfred Nowak was appointed by the Chairman of the United Nations Commission on Human Rights as Special Rapporteur on torture and other cruel, inhuman or degrading treatment or punishment. The Special Rapporteur travels to countries to investigate the situation locally, transmits appeals from individuals who are threatened with torture, and reports annually to the Commission on Human Rights and the United Nations General Assembly. The Committee for the Prevention of Torture (CPT) set up in compliance with the European Convention for the Prevention of Torture and Inhuman or Degrading Treatment or Punishment visited Austria for the fourth time from 14 to 23 April.
173 The human rights country fact sheets – an Austrian initiative – were drafted locally by the heads of EU missions for the first time in autumn and will be updated annually.
The EU human rights projects and programmes are implemented with the aid of EIDHR funding amounting to 100 million euros, which is managed by the European Commission in consultation with the Member States. The majority of EIDHR projects are subject to public tender and carried out by NGOs. The main focuses are the abolition of the death penalty, democratisation / good governance / rule of law, combating racism and xenophobia, combating torture / impunity, and support of the International Criminal Court (ICC) and international tribunals.
The sixth EU Annual Report on Human Rights , which is co-written by all EU partners, was adopted in compliance with the Vienna Declaration of 10 December 1998. It covers the period from 1 July 2003 to 30 June 2004 and can be downloaded at http://ue.eu.int/uedocs/cmsUpload/ENHR2004.pdf.
EU election observation missions , organised by the European Commission, are an important component of the EU’s human rights policy. The EU has conducted 30 such missions since the year 2000. Training seminars are offered for election observers as part of the EU project “Network of Europeans for Electoral and Democracy Support” (NEEDS). Some of these seminars were held at the Austrian Study Center for Peace and Conflict Resolution (ASPR). In 2004, Austria took part in EU election observation missions in Afghanistan, Sri Lanka, Indonesia, Malawi, Mozambique and the West Bank/Gaza (election date 9 January 2005), with the involvement of between 30 and 40 Austrians.
The first steps towards implementation of the decision of the European Council in Brussels in December 2003 to enlarge the mandate of the Vienna- based European Monitoring Centre on Racism and Xenophobia (EUMC) and transform the centre into a European Human Rights Agency were undertaken in the second half of the year. In October, the European Commission published its preliminary ideas about the design of this agency and initiated a public consultation process lasting until the start of 2005 in which all stakeholders such as Member States, EU institutions, international organisations and civil society were able to present their ideas about the agency. In May 2005, the Commission will present a proposal for adaptation of the Council Regulation establishing the EUMC (No. 1035/97).
Since the establishment of a human rights agency is something that Austria has been calling for many years now, Austria has been actively involved in the preparations from the outset and set up a Task Force with representatives from all relevant Ministries, led by the Federal Ministry for Foreign Affairs and the Constitutional Service of the Federal Chancellery. The official Austrian
174 statement for the public consultation process addresses in particular the questions raised by the European Commission and describes specific areas of activity in which the agency could be involved. In Austria’s view, the future EU Human Rights Agency should primarily exercise a service and consultancy function, providing EU institutions with professional expertise and support for their political and legal tasks and decisions in the field of human rights. Systematic and comprehensive data collection and management and the objective analysis of human rights issues would contribute significantly to a preventive, strategic and hence coherent EU human rights policy. The Agency’s mandate as a consultative body for the Council, European Commission, European Parliament and other bodies should also include the drafting of analyses and recommendations involving third states. Because of the increasingly strong interaction between the various issues, Austria believes that it is not really possible to make a strict distinction between competence for activities that are purely internal in scope (restricted to the EU Member States) and those involving external aspects and that such a distinction would make the Agency’s daily work unnecessarily complex.
2. Structured Human Rights Dialogue
In December 2001 the EU adopted Guidelines on human rights dialogue containing criteria for the initiation, conduct and evaluation of dialogue with third countries on human rights. It identifies different forms of dialogue: structured human rights dialogue, ad hoc dialogue, dialogue on the basis of treaties (Cotonou and others) and consultations with like-minded states in preparation for major human rights events. As a supplement to these guidelines, COHOM agreed on a document to be reviewed every six months that provides a survey of the different types of human rights dialogue and consultation, the procedures and criteria for the initiation of such dialogue and a standard list defining the core issues in EU human rights dialogue.
2.1. China
The structured human rights dialogue that has been conducted between the EU and China since 1997 was continued in February and September at meetings of the EU Troika with representatives of the Chinese government. The talks were supplemented by an EU-China human rights network, which holds seminars for experts from the academic world, NGOs and other representatives of the EU and China on specific human rights issues connected with the two UN human rights packages. Seminars took place in 2004 on the ratification of the International Covenant on Civil and Political Rights (ICCPR), the right to health, the right to adequate defence and on corporate social responsibility (CSR).
175 The EU-China human rights dialogue also dealt with sensitive issues such as the prohibition of torture, the death penalty, Tibet, the unusually harsh persecution of supporters of democratic movements, religious groups and the Falun Gong movement, including specific individual cases.
Since the lack of tangible progress in the general human rights situation in China outside of the dialogue talks was increasingly criticised within the EU, the Council undertook an evaluation of the dialogue in October. It criticised the absence of progress, particularly regarding the death penalty and freedom of expression, but nevertheless concluded that the human rights dialogue was a valuable instrument and an important element of overall EU-China relations. A number of recommendations were made for pursuing the dialogue, including specific projects in China to foster a long-term improvement in the human rights situation there. For this reason, Austria supports a continuation of this dialogue.
2.2. Iran
Since the victory of the conservatives in the parliamentary elections in February, the human rights situation in Iran, which was already a cause of concern, stagnated and even deteriorated in a number of areas. This was also evident in the human rights dialogue that has been in progress since the end of 2002. The fourth round of talks took place in June in an atmosphere of extreme tension and little willingness to cooperate. Given the minimal progress made in the dialogue and the disappointing development, the comprehensive initial evaluation of the process to date by the Netherlands EU Presidency was also very critical. The EU remains committed to pursuing the dialogue and annual reviews of its effectiveness based on specific progress made. At the same time, the modalities of the dialogue should be reviewed with a view to improved and long-term scheduling and planning (and preparation) of issues, a measure that Austria has been calling for for some time. Austria attaches great importance in principle to human rights dialogue with Iran and supports its continuation on the basis of a demonstration of clear political commitment on the part of the Iranian authorities to improve the human rights situation and promote the rule of law.
III. Human Rights in the United Nations
The World Conference on Human Rights held in Vienna in 1993 provided the impetus for strengthening the UN’s operative human rights capacities. Austria supports in particular strategies to strengthen human security. Important instruments for promoting human rights, and also conflict prevention and the consolidation of peace include the establishment and strengthening of the rule of law, good governance, an active civil society and local human rights
176 structures as well as far-reaching measures in the field of human rights education at all levels of society.
The report published in December by the High Level Panel on Threats, Challenges and Change appointed by the United Nations General Assembly also recognised the protection of human rights as one of the UN’s central tasks, although according to the report, the effective capacity of the Commission on Human Rights to perform its work had been deeply undermined by eroding credibility and professionalism, double standards and the lack of ability and willingness by Member States to protect and promote human rights. One chapter of the report is devoted to recommendations for structural reforms which, because of their potential impact on the entire UN system, will be the object of an in-debth evaluation process lasting until early 2005.
The former chief prosecutor at the UN tribunals for former Yugoslavia and Rwanda and Canadian Supreme Court judge Louise Arbour, was appointed as the new High Commissioner for Human Rights by United Nations Secretary-General Kofi Annan early in 2004. Her intended focus on strengthening the rule of law is particularly welcomed by Austria, which is therefore also offering special financial support.
1. Commission on Human Rights (CHR)
The CHR is the driving and coordinating force within the global human rights field and has a political impact that should not be underestimated. Its work forms the basis for the human rights activities of the United Nations General Assembly.
The sixtieth session of the CHR took place in Geneva from 15 March to 23 April. In an environment that was seemingly calmer than in previous years, the cohesion of those states with a restrictive view of human rights nevertheless became stronger as they tried, among other things, to confine the work of the CHR to purely thematic issues – notably in the fields of racism and the right to development. United Nations Secretary-General Kofi Annan made special reference to the 10 th anniversary of the genocide in Rwanda . During the commemoration of this anniversary, the Secretary-General presented his Action Plan to Prevent Genocide , which includes the appointment of a Special Adviser on this issue. Juan Mendez, an acclaimed human rights lawyer and activist from Argentina and president of the International Center for Transitional Justice, was appointed to this office by the Secretary-General in July. During the discussions, reference was made on several occasions to the Secretary-General’s words of warning in connection with the tragic events in Darfur (Sudan). 177
As expected, the draft resolutions by the Western states on the country situations in Chechnya, Zimbabwe (both EU initiatives) and China (a US initiative) were not adopted. In fact the last two were not even put to the vote because of motions for non-action. Due to the increasing fundamental rejection of country resolutions by the African and Asian group on the grounds that they are “politically motivated actions by the West” practically the only resolutions on country situations to be adopted were those that affected states whose human rights situation is incontestably a matter of particular concern (such as the Democratic People’s Republic of Korea ) or states that could not mobilise sufficient resistance to or interest in the initiatives (such as Myanmar, Turkmenistan, Belarus and even Cuba ). Within the framework of technical cooperation, the texts on country situations (for example Sudan , Colombia , Cambodia , Liberia , Chad , Democratic Republic of the Congo and Sierra Leone ) that were adopted had either been negotiated with the countries concerned or were presented by the African group itself, with the result that they were adopted in some cases without a vote.
Apart from the foreseeable problem areas and known differences in positions, the central thematic resolutions in the field of civil political rights and in the areas of the rights of the child , women’s rights , the rights of special groups and individuals , of indigenous populations and even racism were discussed and adopted without any great problems. A welcome development was that the resolution initiated by the EU on the abolition of the death penalty, one of the EU’s core concerns, had even more co-sponsors and was adopted with the most successful result for the EU since the year 2000. In the Mexican resolution on Protection of human rights and fundamental freedoms while countering terrorism , which was adopted by consensus, it was agreed after difficult negotiations to mandate an independent expert . Robert Goldman, a renowned American university professor and expert in human rights and international humanitarian law, was subsequently appointed to this position.
Of the twelve resolutions on economic, social and cultural rights on the agenda, only those on “adequate housing”, “extreme poverty”, “right to education”, and “access to medication” were adopted by consensus, a fact that reflects the increasingly intense and conflictual discussion of economic, social and cultural rights in the CHR.
The EU was once again responsible for most of the major resolutions, particularly the country resolutions. It was generally more successful in achieving its objectives than in previous years, demonstrating coherence and solidarity in most cases. However, a credibility crisis arose in connection with the Cuban draft resolution that criticised the USA for the incidents in Guantanamo and was subsequently withdrawn by Cuba; and as a result of the
178 circumstance criticised by the High Commissioner and NGOs that for the first time no resolution regarding Iraq had been submitted.
For Austria , which was again a member of the Commission, the session was quite satisfactory since all three resolutions traditionally introduced by Austria were adopted without a vote. The Austrian resolution on Human rights in the administration of justice, in particular juvenile justice was adopted after a motion from the USA calling for a vote on the paragraph referring to the abolition of the death penalty for juvenile offenders. Consensus on the other two Austrian resolutions on Minorities (regarding the possible establishment of a special mechanism) and internally displaced persons (on the establishment of a new mandate for a Representative of the Secretary-General on internally displaced persons) could also be reached only after extremely difficult negotiations and concessions to critics of the text.
2. General Assembly
Discussion of thematic resolutions concerning human rights at the 59 th United Nations General Assembly was conducted in a comparatively calm atmosphere. Austria was able to assert its national interests successfully through the EU, especially in the areas of the rights of the child, racism, human rights education and gender equality. There were some difficulties, however, in the adoption of texts on specific human rights situations that were submitted exclusively by Western states (EU, USA, Canada). For the first time, for example, the adoption of resolutions on the human rights situations in Sudan, Zimbabwe and Belarus was thwarted through motions for adjournment which had the same effect as the no-action motions submitted in the CHR. Apart from its resolutions concerning Sudan and Zimbabwe, the EU also submitted resolutions on the human rights situation in Turkmenistan, the Democratic Republic of the Congo und Myanmar , all of which were adopted by both the Third Committee and, subsequently, the plenary session of the General Assembly. As in the previous year, Canada introduced a resolution on the human rights situation in Iran , which in contrast to the previous year was co-sponsored by all EU partners and was adopted by a solid majority. In the light of the unchanged critical human rights situation in this country, Austria supported the Canadian resolution from the very outset.
As for thematic initiatives, the EU together with a group of Latin American states introduced a resolution on the Rights of the child . A resolution, originally proposed by Ireland, on the Elimination of all forms of religious intolerance was introduced for the first time, which, in line with the relevant developments in the CHR and in contrast to the general nature of the original text, listed specific problem areas such as anti-Semitism, Islamophobia and Christianophobia. 179
On 10 December, the plenary session of the General Assembly celebrated International Human Rights Day . In 2004, partly at the request of Austria, the day was devoted to the United Nations Decade for Human Rights Education (1995-2004), which was coming to an end. As a further step, the General Assembly announced the World Programme for Human Rights Education , the first phase of which begins on 1 January 2005.
The focus in terms of international women’s issues was on the preparations for the 49 th session of the Commission on the Status of Women in early 2005 (tenth anniversary of the World Conference on Women in Beijing).
3. Commission on the Status of Women (CSW)
Following the unsuccessful outcome of last year’s session of the CSW due to an inability to agree on the issue of violence against women, this year’s session was marked by a strong determination on all sides to obtain results. This led to remarkable creativity in the last phase of the negotiations on the conclusions regarding women’s equal participation in conflict prevention, management and resolution and post-conflict peace-building and the role of men and boys in achieving gender equality.
The EU once again managed to have a resolution adopted by consensus on the Situation of women and girls in Afghanistan . The resolution traditionally submitted by the United Kingdom on Gender mainstreaming was co- sponsored by Bangladesh this year for the first time. A resolution by the African group on Women, the girl child and human immunodeficiency virus/acquired immunodeficiency syndrome (HIV/AIDS) attracted particular attention due to the focus that high-ranking speakers such as United Nations Secretary-General Kofi Annan and Queen Noor of Jordan had placed on this problem at the International Women’s Day.
IV. Human Rights in the OSCE
See Chapters B.II.3., H.VII.3. and H.VII.4.
V. Human Rights in the Council of Europe
The protection of human rights in the Council of Europe is based essentially on the European Convention on Human Rights and Fundamental Freedoms and the activities of the European Court of Human Rights (ECHR). The
180 increase in the number of Member States from 23 in 1989 to 46 in 2004, together with the direct access by individual applicants to the Court as well as the increased awareness as a result of the greater public impact of the human rights system, have resulted in a rapid rise in the number of applications. In 1989, some 4,000 individual applications were made, compared with around 40,000 in 2004. Of the applications registered with and under the jurisdiction of the Court, around 400 are currently pending against Austria. A number of reforms have become necessary to safeguard the functioning of this central body for the protection of human rights in Europe. At its 114 th session on 12 May, the Committee of Ministers of the Council of Europe therefore adopted Protocol No. 14 to the Convention on Human Rights and Fundamental Freedoms on changes to the Convention’s control system. Austria signed the Protocol on 10 November.
Alvaro Gil-Robles, the European Commissioner for Human Rights, continued his visits to CE Member States, travelling to Denmark, Sweden and Luxembourg among other countries. His task is to provide advice, to promote education in and awareness of human rights in Member States and to identify and draw the attention of Member States and the Committee of Ministers to possible shortcomings and problems within the system. After Protocol No. 14 enters into force, the Commissioner for Human Rights will also be able to submit comments to Chambers and to the Grand Chamber of the ECHR. A number of events also took place, including one on combating trafficking in children in Europe, one on religion, education and the promotion of tolerance, and a round table of national human rights institutions. Of particular note was the conference on the human rights situation in Chechnya, held in Grozny in September, which stressed the important role the respect of human rights played for the people of Chechnya.
VI. Human Security Network (HSN)
The HSN is a supraregional, interdisciplinary interest group of 13 states in which the Foreign Ministers of Austria, Canada, Chile, Greece, Ireland, Jordan, Mali, the Netherlands, Norway, Slovenia, Switzerland, Thailand and (observer) South Africa work together with representatives of the scientific community and civil society. Austria chaired the HSN from July 2002 to May 2003. Canada succeeded Mali as Chair in May.
The political concept of “human security” focuses on the security needs and requirements of the individual. Human rights, international humanitarian law and refugee law are essential components of human security. During its term as Chair of the HSN, Austria concentrated in particular on the issues of human rights education and children in armed conflicts. A number of fundamental documents on these issues were adopted, such as the Graz Declaration on
181 Principles of Human Rights Education and Human Security, the HSN Manual “Understanding Human Rights” on human rights education, a strategy paper in support of the rights of the child (“HSN Support Strategy for Children Affected by Armed Conflict”) and a child rights training curriculum. A medium-term work plan for the years 2003 to 2005 was also adopted.
The French, Spanish and German translations of the human rights manual developed and published (in English) at the initiative of Austria were presented at the Ministerial Meeting in Bamako, Mali, from 27 to 29 May at the conclusion of Mali’s term as Chair. By the end of the year, Arabic and Albanian translations were also completed. The Chinese and Russian versions should be presented in early 2005.
The Ministerial Meeting sent a message to the High Level Panel on Threats, Challenges and Change appointed by the United Nations General Assembly to express its support for the United Nations in implementing Security Council resolution 1539 (2004) on children in armed conflict. This resolution provides for the setting up of coordination centres in the affected crisis regions to engage the parties to cease recruiting and using child soldiers. Austria is carrying out a joint training project in Amman with HSN partner states Slovenia and Jordan for teachers and people who cater for the needs of war- traumatized Iraqi children.
An HSN declaration for the Nairobi Summit on a Mine-Free World was endorsed at the first meeting of representatives of HSN states at the ministerial level on 23 September, on the margins of the 59 th United Nations General Assembly in New York. In the declaration, the HSN states undertook to step up their commitment to combating anti-personnel mines. During the General Assembly, the HSN made a statement on human rights education on 10 December, Human Rights Day.
VII. Focuses
1. Women’s Rights
The sixth Austrian national report under the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW) was submitted to the UN Secretariat in autumn. This report was compiled by the Federal Ministry for Health and Women from contributions provided by all departments and responsible bodies in the federal provinces. The national audit is scheduled for 2007.
182 At the suggestion of the Swiss Foreign Minister, a meeting of foreign ministers on the subject of violence against women was held at the start of the 60 th session of the CHR. The meeting was attended by Federal Minister Benita Ferrero-Waldner. The Austrian statement also focused on this issue, with particular mention of Austria’s Protection against Domestic Violence Act, which is regarded internationally as a model.
2. Rights of the Child
The UN Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography was adopted by the National Council, with the requirement for special transformation, and entered into force for Austria under international law on 7 June. The provisions of the additional protocol have been fully integrated into national legislation. With the assistance of the Federal Ministry for National Defence, the Federal Ministry for Foreign Affairs drafted a first national report , implementing the Optional Protocol to the Convention on the Rights of the Child on Involvement of Children in Armed Conflicts, which entered into force for Austria in 2002. The report will be discussed during consideration of the second report on the implementation of the Convention on the Rights of the Child by the Committee on the Rights of the Child in Geneva in January 2005. The Federal Ministry for Foreign Affairs was actively involved in the thematic and organisational preparations for the consideration and discussion of the Convention at the meeting of the Committee in Geneva.
The issue of children in armed conflicts remained a priority focus of Austrian human rights policy. Austria has been working, for example, on the further development of a training curriculum for civil and military missions abroad. The curriculum is also to be used in Austrian Development Cooperation (Österreichische Entwicklungszusammenarbeit, OEZA) priority countries. Within the EU, Austria is actively involved in the implementation of the guidelines for the protection of children in armed conflicts.
Austria supports efforts in the UN to create systematic and coordinated reporting and monitoring mechanisms for children affected by armed conflicts, as called for in Security Council resolution 1539 of 22 April. Projects connected with the rights of the child were also carried out as part of Austria’s development cooperation activities, with financing devoted in particular to projects for the reintegration and rehabilitation of war-traumatized children in Iraq, the Balkans and Afghanistan. A project for the rehabilitation of former child soldiers in northern Uganda and children orphaned or otherwise traumatised by the civil war there was made possible through co-financing by the Austrian Development Cooperation scheme.
183 In compliance with the commitment undertaken at the Special Session of the UN General Assembly on Children in 2002, a National Plan of Action on the Rights of the Child (Young Rights Action Plan) was drafted and adopted. The Ministry of Foreign Affairs contributed to the elaboration of this action plan aimed at promoting the rights of children and adolescents.
3. Combating Racism
The OSCE drew attention to the significance of this issue with its Conference on Anti-Semitism in Berlin on 28 and 29 April, the OSCE Meeting on the Relationship between Racist, Xenophobic and anti-Semitic Propaganda on the Internet and Hate Crimes held in Paris on 16 and 17 June and the Conference on Tolerance and the Fight against Racism, Xenophobia and Discrimination in Brussels on 13 and 14 September. The presentation by Federal Minister Ernst Strasser at the Human Dimension Implementation Meeting on 12 October on training programmes for law-enforcement agencies that the Federal Ministry of the Interior conducts together with the Austrian branch of the Anti- Defamation League was received with interest. These seminars under the title “A World of Difference Training” (how to unlearn prejudices) are part of the basic training for police cadets and a component of in-service training.
Austria is a member of and actively contributes to a tighly-woven transnational network of monitoring mechanisms on the fight against racism. The Council of Europe’s European Commission against Racism and Intolerance visited Austria in 2004. The report and recommendations will be published in February 2005.
Austria answered an extensive questionnaire for the European Monitoring Centre on Racism and Xenophobia (EUMC), which dealt with issues relating to labour market and employment; education; legislative measures to combat racial discrimination; housing market and housing conditions; and racist, xenophobic, anti-Semitic and Islamophobic violence and crimes.
4. Protection of Minorities
Ethnic tensions remain one of the main causes of conflicts throughout the world. The protection of minorities is therefore a central concern of Austrian foreign and human rights policy. Austria once again sponsored a resolution adopted by the CHR on the protection and promotion of national, ethnic, religious and linguistic minorities. Although the resolution was once again adopted by consensus, the negotiations are becoming increasingly difficult since minority issues are usually also the object of sensitive national and
184 bilateral tensions and governments often do not want substantial changes in or the expansion of international observation and protection mechanisms. For these reasons, the project aimed at creating a mandate for a special rapporteur had to be abandoned for the time being.
In collaboration with Finland, Austria prepared the EU contribution on national minorities at the OSCE’s Human Dimension Implementation Meeting.
On 4 February, the Council of Europe’s Committee of Ministers adopted a final resolution on the first Austrian national report under the European Framework Convention for the Protection of National Minorities. The Committee of Experts of the European Charter for Regional or Minority Languages conducted a review of the first Austrian national report under this Charter.
In October, the Central European Initiative (CEI) officially celebrated the tenth anniversary of the Instrument for the Protection of Minority Rights, which has also been signed by Austria. Among other things, a publication entitled “Minorities and the Central European Initiative” was issued.
5. Internally Displaced Persons
The protection of internally displaced persons (IDPs) has been one of the priorities of Austrian human rights policy for over ten years now. Austria supports the mandate of the Secretary-General’s Representative on internally displaced persons, in particular by submitting resolutions to the CHR and UN General Assembly, and makes substantial contributions to promoting the further strengthening of the standard of protection for over 25 million IDPs worldwide. The Internal Displacement Unit in the OCHA, which is also supported by Austria, was upgraded to the Inter-Agency Internal Displacement Division in January in order to improve coordination with the UN agencies involved in the affairs of IDPs.
In September, Professor Walter Kälin , a Swiss expert on international law and human rights, was appointed Representative of the Secretary-General on the Internally Displaced Persons . He succeeds Professor Francis Deng, whose 12 years of work provided the basis for the international response to the urgent humanitarian and legal problems of IDPs. The topicality and critical nature of this issue was illustrated not only in connection with the events in Darfur, but also in the wake of the flood disaster in Southeast Asia. According to the UN Guiding Principles on Internal Displacement, persons who have been displaced from their homes as a result of natural disasters are also covered by the international protective standards. 185
6. Human Rights Education
At the end of the year, the Decade of Human Rights Education proclaimed by the UN General Assembly on 23 December 1994 came to a close. During the past decade a number of initiatives were launched throughout the world at all school levels, in adult education, civil society and the media. Measures undertaken by Austria include the establishment of a Service Centre for Human Rights Education by the Federal Ministry of Education, Science and Culture, and the Ludwig Boltzmann Institute of Human Rights in 1997.
On 1 December, as a follow-up to the Decade of Human Rights Education, the UN General Assembly proclaimed the World Programme for Human Rights Education . The first phase, from 2005 to 2007, will focus on human rights education in primary and secondary schools.
The Austrian manual on human rights education entitled “Understanding Human Rights” is an aid that can be used worldwide and provides stimuli for further development by users from all cultural backgrounds. The European Training and Research Centre for Human Rights and Democracy (ETC) conducted several train-the-trainer courses in Austria and other countries on the use and distribution of the manual, including a workshop in Budva (Serbia and Montenegro) for Serbian-speaking participants. The courses are financed by the Federal Ministry for Foreign Affairs. An ETC train-the-trainer workshop in Mali, also financed by the Federal Ministry for Foreign Affairs, is planned for February 2005. Another ETC project launched in December 2003 is devoted to the development of a university curriculum for human rights education and democratic citizenship in collaboration with the Human Rights Centre of the University of Zagreb.
VIII. International Humanitarian Law
On 5 May, Federal Minister Benita Ferrero-Waldner issued a sharp and immediate condemnation of the incidents of torture and abuse in US military prisons in Iraq and Afghanistan and called on the USA and its allies to observe the standards of international humanitarian law and human rights. At a meeting on 17 May, the EU General Affairs and External Relations Council expressed its abhorrence at the evidence of abuse of prisoners in Iraqi prisons. It welcomed the commitment by the US government to bring to justice any individuals responsible for such acts and to rectify any failure to adhere to international humanitarian law.
186
I. The Humanitarian Dimension in International Relations
I. Migration and Refugee Issues
1. Migration and Refugee Movements in and to Europe
In 2004, the UNHCR dealt with 17.1 million people (3.6 million fewer than in 2003) who had fled across international borders to escape war, persecution and massive human rights violations. The number of people fleeing within their own countries because of domestic armed conflicts is also increasing. Throughout the world, the UNHCR attended to 4.3 million of these internally displaced persons in 2004.
The number of asylum applications worldwide showed a marked decrease. In 2004, around 360,000 persons applied for asylum in industrialised countries, 23 per cent fewer than in the previous year. The number of asylum applications in the EU also dropped considerably to around 270,000 (19 per cent less). This trend is likely to have been offset by an increase in illegal migration. With a 23 per cent decrease to 25,100 applications Austria was slightly above average. Most asylum applicants in the industrialised countries came from Russia, the majority from Chechnya (around 29,000, minus 16 per cent), followed by Serbia and Montenegro (21,000, minus 15 per cent), Turkey (15,500, minus 35 per cent), China (11,300, minus 27 per cent) and Nigeria (9,400, minus 24 per cent).
2. Refugee and Migration Policy in Austria
In its refugee and migration policy, Austria places emphasis on a holistic approach, in which political, human rights and development aspects are all taken into account. In line with UNHCR recommendations, no deportations are made to Iraq and Afghanistan, and a number of other countries.
In 2004, around 25,000 people applied for asylum in Austria, 23 per cent less than in the previous year. Around 21,000 applications were dealt with, of which 4,530 were recognised, around 4,000 refused and the rest abandoned, withdrawn or no longer applicable. With account being taken of the legally binding refoulement decisions, this is equivalent to a recognition quota of 48.5 per cent.
Russia was the most common country of origin, followed by Serbia and Montenegro, India and Nigeria. An amendment to the Asylum Act adopted by the National Council on 23 October 2003 entered into force on 1 May. Some
187 aspects of this amendment had been influenced by comments by the Federal Ministry for Foreign Affairs, in particular the interpretation of the Geneva Refugee Convention, human rights and European law provisions, and the role of Austrian representations abroad in the asylum process. Of particular relevance to the work of the Austrian representative authorities abroad was the revised version of Article 16 of the Asylum Act, by which, from 1 May on, these authorities were no longer responsible for the receipt and forwarding of asylum and asylum extension applications but only for applications by family members of refugees and persons entitled to subsidiary protection in family reunification procedures in accordance with Article 10 of the Asylum Act. The activities of foreign representations in offering administrative assistance in asylum proceedings to the domestic asylum authorities remained unchanged.
3. International Organization for Migration (IOM)
The IOM, which was founded in 1951 by European states, is today the most important international non-governmental organisation for migration issues. In addition to its traditional tasks of registering and transporting refugees, it has taken on a number of new tasks connected with emergency and post- conflict situations in recent years. The IOM is also increasingly important as a platform for the political exchange of information on the development of long- term migration management, going beyond legislation on foreigners to include economic and humanitarian aspects, existing initiatives and their effective coordination. At the Special Session of the Council on 13 June 2003, Brunson McKinley (USA) was re-elected as Director General for a further five- year term. The IOM has had an office in Vienna since 1952, which has been responsible for regional functions in Central Europe since 1998. In 2004, Afghanistan, the Bahamas, Brazil, Estonia, Libya, Niger and Turkey joined the organisation, bringing membership to 109 states.
II. International Drug Control
Drug abuse remains a global threat, and the United Nations Office on Drugs and Crime (UNODC) combats all aspects (cultivation, production, trade and consumption) using a balanced set of measures designed to reduce supply and demand.
The main focus of the 47 th Session of the United Nations Commission on Narcotic Drugs (CND) from 15 to 19 March was demand reduction , particularly in the context of HIV/AIDS prevention . There was agreement on the significance of this problem, but opinions diverged on the question of harm reduction measures that are not aimed at abstinence. Although syringe
188 exchange and substitution programmes are in line with United Nations drugs conventions, some states wonder about their consequences. Projects for sustainable alternative development should be included in all bilateral and multilateral development programmes as a means of combating drug cultivation. The thematic debate was devoted this year to synthetic drugs (amphetamine-type stimulants or ATS) and precursors . The former are of growing importance since their abuse is on the increase, particularly among young people. Control of the spread of chemical precursors is vital as a way of reducing the production of a number of highly potent drugs including cocaine, heroin and Ecstasy.
With the aim of reducing supply , the UNODC publications provide background information to explain the global drug problem and to permit analysis of trends and developments. The studies show that drug cultivation is concentrated in a few countries – Afghanistan for opium poppy and certain Andean states for coca. Whereas significant reductions have been achieved in the cultivation of coca in the main growing countries of Colombia, Peru and Bolivia and in the cultivation of opium poppy in Laos and Myanmar, in Afghanistan the situation still deteriorated . In 2004, Afghanistan set a national and worldwide record in terms of the total area in which opium poppies were grown. The political stabilisation brought about by the presidential elections was put at risk by opium production, which is estimated to account for half of the Afghan economy.
With regard to drug abuse , cannabis products (hashish, marijuana) remain by far the most widely used drugs. Synthetic drugs (ATS) , including the designer drug Ecstasy, moved into second place worldwide, mainly through consumption by young people. The abuse of ATS continued to increase, albeit to a lesser extent than in previous years. Different types of ATS were manufactured mainly in South-East Asia, North America and Europe. The demand for cocaine and opiates (heroin, morphine, opium) also remained strong, although there were considerable regional deviations from the global trend. Cocaine abuse dominated in North and South America, while cannabis consumption was the most prevalent in Africa. As far as the health effects of drug abuse were concerned, the abuse of opiates produced the greatest demand for therapy, but in Europe the number of patients undergoing therapy for cannabis consumption also increased.
A CND resolution on the structural activity of the UNODC called on Executive Director Antonio Maria Costa to draft a medium- to long-term strategy to give the work of the office a greater strategic orientation. For this, however, the organisation would need to be provided with more freely available funds in comparison to earmarked contributions from Member States in the medium term.
189 At the beginning of July, the UNODC took over the chairmanship of the Committee of Co-sponsoring Organisations within the Joint United Nations Programme on HIV/AIDS (UNAIDS) for a year. Intravenous drug abuse (through the sharing of infested needles and syringes) was the main vector in many regions of the world (Eastern Europe, Russia, Southeast Asia) for the spread of the disease and was often at the root of rapid increases in HIV/AIDS infections. The infection rate in prisons was a matter of concern in all countries and called for urgent action.
Following a break for restructuring, the UN Vienna Civil Society Award , established in 1999 by the UNODC, the Federal Ministry for Foreign Affairs and the City of Vienna to honour outstanding achievements by representatives of civil society, was once again presented to three award winners in November. One of the awardees was the Albanian movement “Miaft!” (a colloquial term meaning “enough!”), which is committed to promoting responsible and democratic political leadership and to combating corruption in Albania. The other two 20,000-euro awards went to NGOs in Peru and Russia for their commitment to the fight against drugs. For the first time, the private sector was also included in the award ceremony, and Carrefour Colombia, a subsidiary of the French supermarket chain, received a special merit award for a programme in which it offers free marketing of alternative products by former coca farmers. The celebrity guest at the ceremony was two-time Olympic backstroke silver medallist Markus Rogan, who is a role model to young people for a healthy, drug-free life.
III. International Crime Prevention
Fewer state controls, the abolition of borders and the free movement of goods and persons not only offer more freedom of movement for business but also provide organised criminal groups and terrorist organisations with more scope for action. Increased international cooperation in countering cross- border crime is needed as a counterweight to these undesired side effects of globalisation.
The 13 th session of the United Nations Commission on Crime Prevention and Criminal Justice ( CCPCJ ) was held in Vienna from 11 to 20 May. The main agenda items were rule of law and development , combating terrorism and United Nations standards and norms . Management and programme issues were also considered in detail. As an elected member of the Commission for the period 2003 to 2006, Austria was elected vice-chair of the session. The thematic debate chaired by Austria on the connections between the rule of law and sustainable development became a central focus and demonstrated the leading role that the CCPCJ can play in international criminal justice. The rule of law was identified as a prerequisite for sustainable development, but it was
190 stressed that sufficient resources had to be made available at the bilateral and multilateral levels if legal structures are to be properly built up. In the plenary session on United Nations standards and norms in crime prevention and criminal justice, particular attention was drawn to the role of the judiciary and the importance of an independent judicial system as a basis for the rule of law. The Vienna Declaration on the Role of Judges in the Promotion and Protection of Human Rights and Fundamental Freedoms, which was adopted during a symposium organised by Austria, the UNHCR and the UNODC in November 2003, was distributed as a catalogue of specific recommendations for strengthening the rule of law.
The high-level terrorism segment, which took place for the first time in 2004, confirmed the great importance ascribed to the work of the Terrorism Prevention Branch (TPB) of the UNODC. The resolution sponsored by Austria on combating terrorism enlarged the TPB’s mandate to include the provision of technical assistance in capacity-building for the implementation of anti- terrorism conventions. This resolution considerably strengthens the role of the TPB in Vienna as a partner of the United Nations Security Council’s Counter- Terrorism Committee (CTC). A further resolution sponsored by Austria on the problem of HIV/AIDS in prisons was adopted by consensus. It provides the UNODC with a limited mandate to safeguard standards and norms in this critical area of the penal system. A draft resolution for merging the CCPCJ and the CND, in which some countries saw synergies, was rejected by a majority of the participants to enable these two issues to be dealt with in greater depth with the participation of the relevant experts.
Following the entry into force in September 2003 of the United Nations Convention against Transnational Organized Crime , the first Conference of the Parties to the Convention took place in Vienna in late June/early July. The primary aim of the Conference is to consider the implementation of the provisions for international cooperation, technical assistance and a review mechanism. The first Conference therefore concentrated on adopting decisions that would structure its work in the coming years. For example, the next session of the Conference in 2005 will deal above all with the implementation of the criminalisation provisions of the Convention and the two Protocols that have entered into force to date concerning trafficking in human beings and smuggling of migrants. The UNODC was also mandated to prepare a working paper on the technical assistance activities with a view to stimulating further discussion. Austria ratified the Convention in June.
The United Nations Convention against Corruption , which had been negotiated in Vienna, was presented for signature at a ministerial conference in Mérida (Mexico) in December 2003. Considerable importance is attached to this Convention, which for the first time provides for the recovery of assets acquired through corruption and taken out of the country, particularly in
191 Africa, Asia and Latin America. In December, the Convention had already been signed by 113 states and ratified by 12. A total of 30 ratifications are required for the Convention to enter into force. To promote the entry into force and implementation of the Convention, an informal group of Friends of the Convention against Corruption was formed, which was chaired jointly in the second half of the year by Austria and Egypt. The first International Anti- Corruption Day was celebrated on 9 December 2004 to mark the first anniversary of the signing conference in Mexico. Implementation of the Convention was also a focus of an international anti-corruption conference held at the Vienna Hofburg Conference Centre in November by the Bureau for Internal Affairs of the Federal Ministry of the Interior.
The restructuring of the former Office for Drug Control and Crime Prevention (ODCCP), its transformation into the UNODC after the successful merger of the United Nations Drug Control Programme (UNDCP) and the Centre for International Crime Prevention (CICP) were completed in 2004. The reorganisation process also included the implementation of the concept supported by Austria of splitting the operative agenda into regional and country units on the one hand and thematic units on the other. Through this restructuring and accompanying measures in other areas, Executive Director Antonio Maria Costa was able to consolidate the basis of trust with donor countries.
IV. International Criminal Court (ICC)
The year 2004 saw a further consolidation of the International Criminal Court with the adoption of rules of procedure and the establishment of two investigation chambers. In July, the Agreement on Privileges and Immunities of the International Criminal Court entered into force. The Prosecutor decided to open investigations into the incidents in the Democratic Republic of the Congo and northern Uganda. The first official indictments are expected in 2005.
In September the Assembly of States Parties met for the first time not in New York but at the ICC headquarters in The Hague. This Third Session of the States Parties, in which Austria was once again a member of the Bureau, saw the adoption of the budget for 2005 and of a cooperation agreement between the ICC and the UN. The agreement was signed in October by ICC President Phillippe Kirsch and United Nations Secretary-General Kofi Annan. A Code of Professional Conduct for Counsel is to be prepared in time for the next Assembly of State Parties, which will take place in The Hague in November 2005.
192 In April, Austria expressed its willingness to the ICC to enforce ICC-imposed prison sentences in Austria. As with the ICTY, the precise modalities will be defined in a bilateral agreement.
193
J. Multilateral Economic Policy
I. World Trade Organization (WTO)
On 1 August, the WTO General Council adopted a decision concerning the Doha Development Agenda called for at the fifth WTO Ministerial Conference in Cancún, Mexico, in 2003 . This framework agreement, or “July package”, as it is also called, will provide the basis for further negotiations leading up to the sixth Ministerial Conference in December 2005.
Agriculture: The USA, EC, Australia, Brazil and India agreed on a marked reduction in trade-distorting domestic support, the removal of distorting export subsidies and a tangible opening of the market with appropriate allowance in the case of particularly sensitive products. Non-trade concerns such as consumer, environmental and animal protection will be taken into account. A subcommittee was set up to deal with the Cotton Initiative, a demand by four African countries for the complete elimination of all trade- distorting cotton subsidies.
Industrial products: The July package calls for the reduction or elimination of tariff peaks, high tariffs and tariff escalation in accordance with a non-linear formula that takes into account the special needs of developing countries. It also aims to improve market access in certain sectors through the reduction of non-tariff trade barriers.
Services: The negotiations that had faltered after Cancún were given fresh impetus through the July package, and a new deadline of May 2005 was fixed for the submission of offers. It is generally agreed that service negotiations are lagging behind those on agriculture and market access. A further 11 draft commitments were submitted in 2004 to supplement the 38 commitments and the joint EC offer that had been submitted in 2003. This means that not counting the LDCs, which are exempt from making offers, 45 states are still in default. The content of most of the offers is regarded as unsatisfactory.
The EC made available its requests to a total of 109 WTO Member States in July 2002 and submitted a joint EC service offer to the WTO in April 2003. It has received 39 requests from other Member States and recently began to review its previous requests and commitments lists compiled from the submissions by all EC Member States.
Development issues: The July package calls for the submission by July 2005 of recommendations by the General Council concerning special and different treatment for developing countries. The same deadline also applies to outstanding implementation questions. Technical assistance for developing 194 countries is to be further improved and their special needs are to be taken into account in negotiations on agriculture and industrial products in which LDCs are also exempt from additional reductions.
Environment: The negotiations on the elimination of tariff and non-tariff barriers to environmental goods and services were stepped up. Further clarification was also sought on the relationship between multilateral environmental agreements and WTO regulations, as was a better exchange of information between multilateral environmental agreements and the WTO. Of particular concern to the EC are the environmental labelling of goods and greater emphasis on sustainable development in WTO regulations.
Trade facilitation: Of the four “Singapore issues” of investment, competition, transparency in public procurement and trade facilitation, which the EC had hoped the Doha Round would consider, the first two issues had already been dropped in Cancún in the face of strong opposition. The July package gives no indication to the EC that the third issue will be addressed, at least for the time being. The start of negotiations on trade facilitation, however, was warmly welcomed by WTO Member States, since the elimination of administrative trade barriers in the customs clearance of goods in transit could result in a cost reduction for enterprises amounting to 5 to 10 per cent of the value of the goods.
Trade-related aspects of intellectual property rights (TRIPs): Efforts continue to provide a legal basis that facilitates access by developing countries to pharmaceuticals. Progress in the negotiations on the establishment of a multilateral catalogue of information about the origins of wines and spirits is not expected until the second half of 2005 on account of the unbending positions of the Member States. The extension to other goods of the protection of appellations of origin striven for by the EC is to be dealt with by July 2005 as an implementation issue.
Dispute settlement: The July package calls for the continued review and improvement of the dispute settlement mechanism. Ongoing cases against the EC as defendants include sugar, appellations of origin and Airbus, and the United States is the defendant in cases concerning foreign enterprises and Boeing.
Accessions: With the ratification of the membership agreements for Nepal and Cambodia, the number of Member States increased to 148. Iraq and Afghanistan applied for membership. Accession negotiations are currently underway with 27 countries, including Russia and Saudi Arabia. Austria chairs the accession working group for Bhutan.
195 Position of Director General: By the end of December, four candidates had applied for the position of Director General of the WTO to succeed Supachai Panitchpakdi whose term of office finishes at the end of August 2005. One of the four candidates is the former EU Trade Commissioner Pascal Lamy from the EC.
The EC has exclusive competence for most foreign trade issues. The European stand on WTO issues is coordinated in Brussels and Geneva in the Council committee of high-level trade officials under Article 133 of the Treaty of Nice.
II. Organisation for Economic Co-operation and Development (OECD)
The internal restructuring of the organisation continued. The Ministerial Meeting in May adopted resolutions on new scales of contribution from 2005, the abolition of the need for unanimity on procedural issues, guidelines for new members, the establishment of a working group to raise funds for a possible OECD enlargement and new procedures for evaluating the individual OECD programmes and committees. Because of renovation work at the Paris headquarters, most of the 2,000 employees were transferred to temporary premises in other parts of the city. Austria contributed just under 1 per cent to the OECD budget of around 320 million euros. Voluntary contributions amounted to 50 million euros.
1. OECD Enlargement and Foreign Relations
The Ministerial Meeting approved guidelines for new members and decided to devise an enlargement strategy in spite of growing reserve by the USA about new admissions. However, as the conclusion of internal reforms currently has priority over new admissions, the OECD will for the time being focus on developing cooperation with non-OECD states and strengthening existing relations. Austria offered to act as an observer for the new EU Member States that are not yet members of the OECD (the Baltic states, Malta, Slovenia and Cyprus).
2. International Economy and Finances
A significant increase in oil prices, exacerbated in Europe by the weak dollar exchange rate, temporarily clouded the otherwise favourable global economic outlook in the first half of the year. The main challenges for the entire OECD
196 area were the sustainability of balanced national budgets and, in the case of the USA, the balance of payments as well.
The new stock-taking of structural policies, an annual comparative review of economic policy and its impact on productivity and employment, recommends that Austria provide additional work incentives for older persons, introduce performance-based tertiary education funding, reduce administrative burdens for business start-ups, earmark a proportion of child benefits for child care facilities and strengthen the competition authority.
Following a series of alarming cases of abuse, the latest version of Guidelines for Corporate Governance is designed to strengthen confidence in industry and the stock exchange. The same aim underlies the Core Principles of Occupational Pension Regulation. The 2004 progress report on the OECD’s project on harmful tax practices exonerated Austria from earlier accusations of unfair tax competition. The environmental regulations for the granting of export credit were tightened.
The merger of the Committee on International Investment and Multinational Enterprises (CIME) and the Committee on Capital Movements and Invisible Transactions (CMIT) to form the Investment Committee, which started work in September under Austrian chairmanship, created a unique forum for international cooperation, political analysis and consultancy aimed at promoting international investments as a contribution to growth and sustainable development.
3. Education
Two OECD studies attracted attention in this area: PISA 2003 (published in December) and Education at a Glance 2004. The PISA study consists of a three- yearly standardised measurement of the performance of 15/16 year-olds in all 30 Member States. This year the focus will be on mathematics, but the study will also include reading ability, science and – as a new feature not contained in PISA 2000 – problem-solving skills. Education at a Glance provides a comprehensive summary of performance indicators in educational institutions. The comparative data on the individual education systems that was published in these two studies gave rise to considerable discussion in Austria and other countries.
197 4. Development Cooperation Focuses
The consolidation into a single body of the four OECD development units, namely the Development Cooperation Directorate (DCD), Development Centre (DC), the Sahel and West Africa Club (SWAC) and the Centre for Co- operation with Non-Members (CCNM), was completed. Just prior to this, the staffs of the DC and SWAC head offices were strengthened and a new chairman of the DAC elected. Discussions by the DAC focused on questions of effective aid and standardisation of donor practices, security and development, and a reassessment of the eligibility of Official Development Assistance (ODA).
The country survey of Austria by the DAC on 27 October, the first since the establishment of the ADA (Austrian Development Agency), praised Austrian efforts in the last few years (adoption of a new development cooperation law, creation of the ADA, use of comparative advantages in assistance to Eastern Europe, focus on fighting poverty) and also made some recommendations for the near future such as a clear division of roles between the Federal Ministry for Foreign Affairs and the ADA, greater attention by Parliament to development matters and the use of the forthcoming Austrian EU Presidency (EU-LAC summit).
The DC adopted a new Programme of Work embedded in the OECD development strategy. The resignation of Canada and Denmark was offset by the accession of Romania and Mozambique, the impending return of Brazil and substantial voluntary payments by the United Kingdom, which is not a member. The SWAC agreed with ECOWAS on joint efforts for regional development, agricultural policy, and peace and security.
5. Sustainability and Biotechnology
The Annual Meeting of Sustainable Development Experts (AMSDE), the successor to the Ad Hoc Group on Sustainable Development, met in September and in the next two years will present a report on the OECD-wide work on sustainable development. It will look in particular at a more reasonable utilisation of raw materials (indicators, material flows), economical environmental instruments and the issue of environmentally harmful subsidies.
The Harmonization of Regulatory Oversight in Biotechnology working group, which is chaired by Austria, made significant progress. The proposals elaborated at a workshop in the USA in 2003 for future activities and priorities
198 were discussed at a meeting in June and have already been extensively implemented.
6. Ministerial Meetings
The main focuses of the meeting of the Committee for Scientific and Technological Policy at Ministerial Level on 29 and 30 January were promotion of stronger relationships between science and innovation systems, sustained development of human resources in science and technology, and enhanced cooperation in science and technology.
The meeting of the OECD Environment Policy Committee at Ministerial Level on 20 and 21 April adopted recommendations on biodiversity, transport and material flows and suggested OECD studies of the opportunity costs of non- action (for example with regard to climate), the effects of subsidies, the taxation of kerosene and the elaboration of criteria for measuring the success or failure of international partnerships.
At the first OECD meeting of its kind on 13 and 14 May, the health ministers of the OECD Member States discussed the results of the three-year OECD health project that studied ways and means of improving the performance of health systems in Member States.
The meeting of economic affairs and finance ministers held in parallel to the meeting of health ministers focused on the favourable economic prospects (except for the euro area), strengthening growth with ageing populations and ensuring the financial sustainability of health systems. Apart from its support of the multilateral WTO trade talks, it endorsed recommendations for further work on sustainable development and welcomed the agreement on the revised Principles of Corporate Governance. The mandate of the Financial Action Task Force (FATF), which investigates money laundering, was extended for another eight years.
7. International Energy Agency (IEA)
The Governing Board met on 1 April in Istanbul to mark the 30 th anniversary of the organisation’s existence. It reviewed the history of the organisation, which employs some 160 people, since the oil crisis in 1973 and discussed challenges in the energy sector, in particular the tense situation on the oil market and the sharp rise in oil prices. The importance of greater coordination among Member States and of dialogue with OPEC and other oil-producing countries was emphasised.
199
K. Global Sustainable Development
The award of the Nobel Peace Prize to Wangari Maathai, the Kenyan founder of the Green Belt Movement, for her “contribution to sustainable development, democracy and peace” underscores the worldwide acceptance of the concept and the importance of ecologically viable social, economic and cultural development. The strong link highlighted by the Nobel Committee between sustainable development, democracy and human rights will continue to be strengthened in international discourse. While the ratification by Russia of the Kyoto Protocol and hence the entry into force of an international legally binding climate protection regime was an important landmark in international environmental law, weaknesses in terms of prioritisation in all multilateral negotiation processes are discernible in connection with economic growth, the application of the precautionary principle and the financing of measures to adapt to negative environmental effects. The activities of international partnerships to implement the sustainable development agenda are becoming more prominent as a result of the slowing down of the global standardisation process.
I. Follow-Up to the World Summit on Sustainable Development (WSSD)
The Commission on Sustainable Development (CSD-12) took advantage of the review year to evaluate the implementation of Agenda 21, Rio+5 and the Johannesburg Plan of Implementation in the areas of water, sanitation and human settlements and identified obstacles to the implementation process. Austria contributed its extensive experience in integrated water resource management not only in Austria but also in its development cooperation activities and made a joint presentation with Uganda on the implementation of the concept in East Africa as an example of good practice.
The Global Forum on Sustainable Energy (GFSE ) initiated by Austria held its fourth meeting in Vienna in preparation for the International Conference on Renewable Energy organised in Bonn in June. The main topic was incentive measures for the implementation of sustainable energy solutions. The GFSE established itself as an information platform for the 40 or so energy partnerships created on the heels of the World Summit on Sustainable Development.
The Renewable Energy and Energy Efficiency Partnership (REEEP ) held its first annual meeting on the sidelines of the Renewables 2004 conference. With its particular commitment to organisation development and its comprehensive expertise in renewable energies, Austria is an active partner in REEEP. 200
The United Nations Forum on Forests (UNFF ) met for the fourth time at the end of May to discuss forest-related scientific knowledge, social and cultural aspects of forests, monitoring and reporting, and criteria and indicators of sustainable forest management. Strengthening the legal framework is a matter of particular concern for Austria.
II. United Nations Environment Programme (UNEP)
The fifth meeting of the Global Ministerial Environment Forum (GMEF) in Jeju, Republic of Korea, in March adopted the Jeju Initiative , which highlights the interaction between water, sanitation, health, poverty reduction and the ecosystem. The G-77 launched high-level negotiations on a Strategic Plan for Technology Support and Capacity-building calling, among other things, for the establishment of a capacity-building fund.
UNEP opened an office in Vienna in September, which will function as the secretariat for the Framework Convention on the Protection and Sustainable Development of the Carpathians and handle UNEP’s agenda for South East Europe.
III. Global Environmental Protection Agreements
1. Convention on Biological Diversity (CBD)
At the Seventh Meeting of the Conference of the Parties, which took place in Kuala Lumpur in February, much welcomed decisions were adopted on mountain ecosystems and protected areas. Progress was also made in the important area of access and benefit sharing, which is of particular interest to developing countries, and with respect to a strategic plan for implementation of the results of the Johannesburg summit.
2. Cartagena Protocol on Biosafety
Given the evolution of the Protocol, the first meeting of the Parties to the Cartagena Protocol to the Convention on Biological Diversity (MOP-1) took place in a constructive atmosphere. Decisions on Article 18 concerning the identification of bulk products and a negotiating mandate to discuss liability regulations and compliance observation formed the basis for the functioning, implementation and further development of the Protocol.
201 3. International Convention for the Regulation of Whaling (ICRW)
The 56 th annual meeting of the International Whaling Commission (IWC) took place in Sorrento, Italy, in July. Six new states joined the ICRW, illustrating the growing political importance of the Convention. A majority of parties is still striving to uphold the whaling moratorium that has come under pressure in the last few years. In view of the considerable risk that some whale species are exposed to, Austria supports the like-minded group that favours the protection of whales within the IWC.
4. Washington Convention on International Trade in Endangered Species (CITES)
The thirteenth Meeting of the Conference of the Parties took place in Bangkok in October. The Convention contains three Appendices with various degrees of protection for endangered species. The species listed in Appendix I are subject to a strict trading prohibition, while the species in Appendix III have the lowest level of protection. Improved protection was agreed for dolphins and white sharks, while ivory but not other elephant products also remains protected.
5. Basle Convention
The seventh meeting of the Parties to the Convention on the Control of Transboundary Movements of Dangerous Waste and their Elimination met in Geneva in October and made good progress on the issue of ship scrapping. The guidelines for persistent organic pollutants (POPs) were completed and limit values defined.
6. United Nations Framework Convention on Climate Change (UNFCCC)
With the ratification by Russia in November, the Kyoto Protocol finally entered into force, creating a legally binding global regime for reducing emissions. It was therefore hoped at the tenth Conference of the Parties in Buenos Aires in December that there would be greater international willingness to observe and further develop the commitments contained in the Protocol. The EU’s call for debate on the future of climate protection after the end of the Kyoto period in 2012 met with strong resistance from the USA and also from larger developing countries and OPEC states, but the Conference of
202 Parties nevertheless agreed to hold a seminar on this issue during the next round of negotiations.
7. Rotterdam Convention (PIC)
The Convention on the Prior Informed Consent Procedure for Certain Hazardous Chemicals and Pesticides in International Trade entered into force in February and held its first Conference of the Parties in Geneva in September, at which the rules of procedure and financing of the Convention and the location of the secretariat in Geneva were agreed.
203
L. International Cultural Policy
1. Priorities and Projects 2004
Austria enjoys international standing as a major cultural nation. Living up to this status requires a committed international cultural policy that makes optimum use of this image, devoting the cultural, scientific and academic achievements of our country to the fostering of security, stability and tolerance while showcasing the innovative strength of Austria's contemporary cultural scene to as wide an international public as possible.
In terms of cultural policy, the enlargement of the EU to include its neighbouring countries in Eastern and South East Europe represented a new challenge for which successful preparations had already been underway for several years, above all in the numerous projects of the “Platform Culture - Central Europe”, the cultural organisation set up within the framework of the Regional Partnership. To mark the Irish EU Presidency, a festival of Central European lyric poetry entitled “City of Poets” was held in Dublin, which brought together poets from the six Platform countries (Austria, Poland, Slovakia, Slovenia, the Czech Republic and Hungary) under the leadership of Poland. Under the Dutch EU Presidency the Meermanno-Westreenianum Museum in The Hague was the venue for a further Platform project, where Slovakia took the lead in organising an exhibition on the theme of “Typography”.
Following the successful conclusion of the first major phase of the Regional Partnership with the EU enlargement on 1 May this year, the prime focus now is on the representation of joint initiatives within the EU; here too, the “Platform Culture - Central Europe” plays a key role. In many cases, the cultural achievements and assets of the six Platform countries can be brought into the EU on a joint basis, thus enhancing the opportunities for cultural producers while simultaneously making an important contribution to strengthening the identity of the EU partners on the cultural level. To this end, and for the first time also with financial support from the European Commission, a programme of 80 cultural events presented the new EU Member States in the 15 “old" EU Member States within the framework of the "Discovering Europe” programme, which was rounded off in autumn 2004 with a two-day conference in Vienna entitled “Discovering Europe: Enlargement – Culture – Citizens”.
In addition to this priority focus on Central Europe, an Austrian Cultural Forum was also established in Beijing thus taking account of the growing importance of China. The new Cultural Forum aims to provide an adequate
204 structure to reflect the heightened expectations in the field of cultural, scientific and academic exchange between Austria and China, as well as Mongolia. With the new Cultural Forum in Beijing, the international network of Austrian Cultural Fora now encompasses a total of 29 institutions.
The other geographical priorities of international cultural policy in 2004 were predominantly implemented by the Austrian Cultural Fora in New York, Moscow, London, Paris, Warsaw, Krakow, Prague, Bratislava, Budapest, Ljubljana, Zagreb, Belgrade, Rome, Milan and Berlin. Their work was supplemented by the cultural, scientific and academic activities of the total of 50 Österreich-Bibliotheken (Austria Libraries), the majority of which are located in Eastern and South East Europe. In line with the Ministry's long-term efforts to strengthen the Dialogue among Cultures and Civilisations, the activities of the Austrian Cultural Fora in Cairo, Istanbul and Teheran continue to play a very important role. Furthermore, the committed engagement of the Austrian Cultural Forum in Tel Aviv made an important contribution towards intensifying the relations between Austria and Israel.
In thematic terms, Austria's international cultural policy in 2004 concentrated on the presentation of contemporary art, the Dialogue among Cultures and Civilisations and strengthening of the cultural dimension of the enlarged EU, as well as on projects marking historical anniversaries, notably the 100 th anniversary of the death of Theodor Herzl. A particular highlight was the award of the Nobel Prize for Literature to Elfriede Jelinek, whose literary oeuvre was already a regular feature of cultural policy activities in the lead-up to the honour, i.e. in the ongoing programmes of a number of Austrian Cultural Fora as well as many Österreich-Bibliotheken. Projects were also prepared on the work of Austrian women writers.
The degree to which Austria's international cultural policy addresses issues relating to its competitive situation in the global cultural environment was dealt with within the framework of this year's annual International Cultural Policy Conference, entitled “Auslandskultur – Zwischen Identität und Globalisierung” (“International Cultural Policy – Between Identity and Globalisation”). The conference underlined the foreign policy importance of cultural exchange to enhance or restore affinity and trust between states, continents and cultures, both practically and symbolically. Hence the global dimension of Austria's international cultural policy has a twofold implication: Austrian cultural producers are to be given the opportunity to participate in new artistic, scientific and academic developments worldwide, thus providing concrete evidence that cultural activities can open up additional perspectives in all spheres of life – from securing peace to improving quality of life.
205 2. Music Projects
To mark the 10 th anniversary of the “Vienna edition” of the works of Ludwig Wittgenstein, the Austrian Cultural Forum London put together the programme “Wittgenstein – Words and Music”. Another interesting project was a performance of “The Magic Flute” in Russian : Schikaneder's libretto was translated into Russian folklore rhymes and the setting transferred to provincial Russia in winter. The production of Gottfried von Einem's opera “The Old Lady's Visit” directed by Nadja Kayali at the opera house in Skopje, Macedonia was an extraordinary success. The opera was performed together with Macedonian artists, and the remarkable result is now also available on DVD. On the day of the EU enlargement the common Central European cultural area was celebrated in Washington DC with a concert by the Polish cellist Rafael Jezierski, the young Slovenian Fegus Quartet and the Viennese pianist Matthias Soucek. In addition, the “Klassik Meeting Österreich-Ungarn” (“Austrian-Hungarian Classical Music Meeting”) was staged in Stuttgart in cooperation with the Hungarian Cultural Institute, with the Viennese ”Leopold-Trio” interpreting works by Haydn, Beethoven, Schubert and Jen ı Takács. At the end of June the pianist Robert Lehrbaumer gave a concert in Morocco in the lead-up to the 6th International “Son Altesse Royale la Princesse Lalla Meryem” (“Her Royal Highness Princess Lalla Meryem”) Piano Competition , in which 340 young pianists from Morocco and other states participated. The jury awarded a total of three scholarships (including one for the Salzburg Summer Academy) as well as a special prize for the best interpretation of Austrian contemporary music. An audience of 1,500 attended the final concert. An ambitious inter-cultural music project took place in India at the beginning of April, with musicians from Austria playing classical Indian music together with local performers (among them Ramana Murthy of the group Nilgiri Express).
Classical music: The string quartet “Streichquartett Sebastian” travelled to Zagreb together with the Austrian-Croat bassoonist Milan Turkovic to perform pieces by Robert Schumann, Carl Maria von Webern and Wynton Marsalis, and the Concilium Musicum Wien ensemble played two guest concerts in the Bulgarian cities of Rousse and Veliko Trnovo.
Twentieth-century music: The sound installations “Habana” (“Havana”) and “Schlachthof I” (“Abbatoir I”) by Gabriele Proy attracted great interest and euphoric responses from the audience and organisers alike at the “Festival Zepellin” in Barcelona in May. The duo “Alt Wien” performed two evening recitals in Buenos Aires: humorously moderated by Otto Brusatti, Agnes Palmisano (accordion) and Roland Sulzer (harp guitar) acquainted the Argentine audience with the “Viennese Lied” genre. Czech music fans gave an enthusiastic reception to the satirical musical revue “Oide Hoda’n or Best of Highlights” – a joint performance by the writer Franzobel and trombonist Bertl 206 Mütter – as well as a concert by the “Wiener Tschuschenkapelle”. Timna Brauer gave three concerts in Reykjavik in February.
Jazz: Renald Deppe made a guest appearance in Rome with his Capella con Durezza , accompanied by the Salzburg-based writer Bodo Hell reading excerpts from his “cascading texts”. The jazz trio BRPBR also delighted the audience with humorous, exceptional jazz improvisations, while the musician and composer Heinz Fallmann and his group Timelights surprised the public with “musical, kaleidoscopic pictures and visions”.
Music festivals: The year 2004 saw strong participation by Austrian musicians at festivals inside and outside Europe. Large audiences were attracted by the Soundings Festival for contemporary music, which brought together young Austrian and British composers and musicians for a series of concerts, workshops and symposia in London in May. From 27 September until 2 October the MUSICA festival of contemporary music took place for the 22 nd time in Strasbourg. Compositions by Olga Neuwirth were a main focus of this year's festival. The Klangforum Wien played three concerts featuring among others pieces by Johannes Maria Staud, Robert Platz, Friedrich Cerha and Olga Neuwirth. World music from the Austrian Province of Tyrol was to be heard in the distant Republic of Korea in October, when the Tyrolean ensemble “Comin’ and Goin’” took part in the 12 th World Samulnori Competition & Festival near Seoul. The Austrian group delighted the audience with a performance of their typical crossover world music. In May, 13 music groups from Austria participated in the European Youth Music Festival held in the Swedish town of Øresund. For five days, more than 7,000 young people made music before an enthusiastic audience in some 1,000 concerts covering all genres. With the aim of promoting musical exchange among young people from different European countries, financial support was given to the jazz ensemble from Weiz Music School's “vocal jazz night” and a mixed woodwind and saxophone ensemble from Baden Music School. Bratislava's annual Bruno Walter Music Festival took place from 12-18 September with the support of the Austrian Cultural Forum Bratislava. This year's festival programme featured music by Mozart and Mahler as well as compositions by Bruno Walter and ended with a “Concert for Peace” by the Bruno Walter Festival Orchestra conducted by Jack Martin Händler. Alexandra Soumm from Vienna gave a convincing performance as solo violinist.
Music prizes: The Tonga.Online Project , initiated by the ARGE Zimbabwe Freundschaft Linz (Austria-Zimbabwe Friendship Association) and co- financed by the Austrian Development Cooperation and the Federal Province of Upper Austria, was honoured with the Award of Distinction in the “digital communities” category in the prestigious Prix Ars Electronica competition. The winning of the award was celebrated with concerts by Windhund Records
207 and Thomas Mapfumo & The Blacks Unlimited at the Vienna jazz venue Porgy and Bess as well as a festival of tonga music in Zimbabwe.
3. Literature and Theatre Projects
There is a great international interest in the works of contemporary Austrian playwrights of the 20 th century. The plays of Thomas Bernhard, Elfriede Jelinek, Felix Mitterer and Werner Schwab continue to receive particular acclaim, and works by Wolfgang Bauer, Peter Handke, Ödön von Horvath, Johann Nestroy and Peter Turrini also achieved worldwide success.
In the field of theatre attention should be drawn to the successes celebrated by ensembles from Austria's independent theatre scene , above all the Karin Schäfer Figurentheater (puppet theatre), already the winner of multiple international awards, the literarily and musically creative Kabinetttheater, the Salzburg-based Laroque Dance Company and Editta Braun Company and the deaf theatre group ARBOS, as well as various children's, youth and street theatre groups who represented Austria at festivals around the globe. The International Experimental Theatre Festival in Cairo and the Creative Forum for Independent Theatre Groups in Alexandria deserve particular mention in this context. The latter festival is held annually and provides a good opportunity to engage with worldwide theatre trends. Austria was represented with two productions: “Sto Neró” performed by the Salzburg- based group Timbuktu/Editta Braun and the much acclaimed “the way out” by Theater Courage which also made a valuable contribution to deepening intercultural understanding.
The representatives of the younger generation of Austrian dancers and choreographers are in great demand on the international scene and many were invited to make guest performances abroad at prestigious international and local dance festivals, above all the Compagnie Willi Dorner and the ensembles centred around the choreographers Milli Bitterli and Saskia Hölbling. With support from the Federal Ministry for Foreign Affairs and the Federal Chancellery the dance group Dans.Kias impressively showcased Austria in several countries: their dance performance “exposition corps” was successfully presented in Metz (France) and Sibiu (Romania), as well as at the XX. Festival de Juvenes Coreografos in Caracas (20 th Young Choreographers' Festival in Caracas, Venezuela), the XII. Quinzena de Danca de Almada (12 th Almada Dance Festival, Portugal) and the Dance Biennale Tokyo 2004 in Japan.
Readings by authors and presentations of new literary works not only took place in the priority regions of international cultural policy, but in virtually all countries in which Austria maintains a diplomatic representation. The list of 208 authors thus presented comprises well-known names like Ilse Aichinger, Barbara Frischmuth, Norbert Gstrein, Ernst Hackl, Peter Handke, Josef Haslinger, Alfred Kolleritsch, Elfriede Mayröcker, Robert Menasse, Gerhard Roth, Marlene Streeruwitz, Raoul Schrott, Julian Schutting and Franzobel as well as lesser-known authors such as Martin Amanshauser, Zdenka Becker, Lilian Faschinger, Brigitta Falkner, Walter Grond, Ulrike Längle, Karl Lubomirski, Lydia Mischkulnig, Doron Rabinovici, Elisabeth Reichart, Werner Riess, Kathrin Röggla, Sabine Scholl, Margit Schreiner, Vladimir Vertlib and Renate Welsh.
As in other years, the aim of interesting publishing houses outside the German-speaking region in works by Austrian writers was consistently pursued in 2004. An important tool in this context is the magazine “New Books in German”, which is co-financed by the Federal Ministry for Foreign Affairs and the Federal Chancellery and informs publishers in the English- speaking world about new German-language publications. Furthermore, the Federal Ministry for Foreign Affairs facilitates the international dissemination of works from and about Austria through purchases of selected books and their targeted distribution to libraries, schools and other educational establishments abroad, while the Federal Chancellery promotes the translation of works by living Austrian writers.
International successes in the field of children's and young people's literature are regularly achieved by Austrian writers like Christine Nöstlinger, winner of the Hans Christian Andersen Prize and the Astrid Lindgren Memorial Prize, and Thomas Brezina, whose books repeatedly register record sales.
4. Fine and Visual Arts
At this year's DAK’ART 04 , Africa's only biennial festival of contemporary art, Austria was represented with photographic works by Lisl Ponger and works by the visual artists Edith Lettner, Heide Breuer and Ragnhild Roed, as well as video projections by Ewa Esterhazy and Tommy Schneider. The outstanding architecture of the Austrian Cultural Forum building in New York was recognised by a high-calibre jury who placed it on the “Watchlist of Future Landmarks” (a selection of thirty buildings that represent landmarks in the architectural history of New York in the late 20 th century). To mark the occasion of the reopening of La Scala in Milan on 7 December the exhibition “Salieri auf den Spuren Mozarts” (“Salieri on the Trail of Mozart”) was opened at the city's Palazzo Reale. The layout of the exhibition was conceived by Zaha Hadid and Patrik Schumacher. At the beginning of the year the first Max Weiler exhibition in Poland was shown at the International Cultural Centre in Krakow. 209
Numerous events were held in Austria and abroad to commemorate the 100 th anniversary of the death of Theodor Herzl , including several exhibitions: “Theodor Herzl – visionnaire et réaliste” (“Theodor Herzl – visionary and realist”) in Paris, “Theodor Herzl 1860-1904: Father of Modern Zionism. A Commemoration of his Life” in New York, “Mediating Memory” in London, “Un sueño hecho realidad – un siglo después” (a dream became reality – a century later) in Santiago de Chile, and “Herzl: Close Up and Personal” in Dublin.
To mark the enlargement of the EU the project “EU & YOU – Kunst der guten Nachbarschaft” (“EU & YOU – The Art of Good Neighbourship”), initiated by the Federal Chancellery, was realised at the beginning of May. The project brought together a total of 13 artists from Austria and the accession countries who exhibited specially created works at seven railway stations. The enlargement was also celebrated by the Austrian Cultural Forum London with the multi-media exhibition “Dreamland”, which dealt with experiences of social displacement and individual lifepaths against the backdrop of global change (idea: Gudrun Bielz and Kim Merrington), while the Austrian Cultural Forum New York presented the exhibition “Parallel Actions: Conceptual Tendencies in Central European Art from 1965 to 1980” with works by Valie Export, Stano Filko (Slovakia), Sanja Ivekovic (Croatia), Jiri Kovanda (Czech Republic), OHO (Slovenia), and Rasa Todosijevic (Serbia and Montenegro), among others.
The Viennese art group Gelatin made a guest appearance at the ATA Gallery in Sofia with a live art performance and the exhibition “Gelatin’s nasser Müll” (“Gelatin's Wet Rubbish”), while media artist Dorit Magreiter explored the influence of the media and industry on our everyday lives in her exhibition “Déplacements” (“Displacements”) at the Musée d’art Moderne de la Ville de Paris. Works by the artist Erwin Wurm were shown at the “Festival della Fotografia di Roma” photography festival in Rome, and Heimo Zobernig and Franz West were represented at the 5 th Contemporary Art Biennial “Rien ne va plus” in France. In March, the first comprehensive Valie Export retrospective was shown in Spain. The Austrian Cultural Forum Prague opened an exhibition entitled “Otto Zitko – Raum Prag” (“Otto Zitko – Prague region”), which was designed especially for the Forum's gallery and accompanied by a programme of talks with the artist and experimental films featuring Otto Zitko by Josef Dabernig. As part of a study project, ten Austrian students from the architecture master class taught by Wolf Prix (Coop Himmelb(l)au) spent half a year in Mexico City, where they realised a community centre in the Mexican province of Oaxaca in painstaking detail from design right through to construction. Their drawings, plans and models were presented to the public in an exhibition. The Austrian Cultural Forum Tokyo showed the multi-media installation “being mogura tataki” by the
210 Tyrolean artist Toni Kleinlercher and his Japanese wife Chikako Urata. The interactive spatial installation exploring the nature of individual identity was exhibited on the Forum's own premises and enthusiastically received by visitors and the media alike. Stephan Schmidt Wulffen, Rector of the Academy of Fine Arts in Vienna, and Lorenzo Benedetti curatored the exhibition “Anrufung des großen Bären” (“Invocation of the Great Bear”), in which nine students and graduates of the Academy of Fine Arts and Italian artists presented works inspired by the eponymous Ingeborg Bachmann poem on the premises of the Austrian Cultural Forum in Rome. The Austrian Cultural Forum Bratislava successfully implemented an ambitious large-scale exhibition project in cooperation with the Jewish Museum of Vienna, the Cultural Office of the City of Salzburg and the Slovak National Museum. “Kladovo – Eine Flucht nach Palästina” (“Kladovo – Escape to Palestine”) is a photo installation based on pictures taken by a survivor of the Kladovo transport, supplemented by a film by Alisa Douer. The exhibition “Stefan Zweig – Ein Österreicher aus Europa” (“Stefan Zweig – An Austrian from Europe”) was shown simultaneously. Finally, “Donau-Exodus” (“Danube Exodus”), a film by the Hungarian Péter Forgács, formed the link between the two exhibitions, which were amalgamated into a thematic whole for the first time in a concept developed by Peter Karlhuber.
The Austrian Cultural Forum New York organised the exhibition “Hermann Nitsch – New Paintings” at New York's Mike Weiss Gallery, the Austrian Cultural Forum Budapest showcased Hungarian and Austrian video art in the exhibition “Softmanipulation”, and the Austrian Cultural Forum Mexico presented an overview of Austrian artists with the exhibition “Pintores austriacos en México” (“Austrian Painters in Mexico”). At the end of June, State Secretary Franz Morak officially opened the exhibition “Austria West: New Alpine Architecture” in the gallery of the Austrian Cultural Forum New York, featuring works by Arno Bereiter, Hugo Dworzak, Roland Gnaiger and others. Under the title “Glas in Bewegung” (“Glass in Motion”) the Austrian Cultural Forum Prague presented artist-designed glasses and decorative glassware from the Kamenicky Senov (Steinschönau) glass factory, while the “Linz Kreativ. Foto & Grafie” show directed by Prof. Marek Freudenreich at the Austrian Cultural Forum Warsaw featured works by students of the Department of Media Design at the Linz University of Arts and Industrial Design. An extremely successful event on the topic of new media was organised by the Austrian Cultural Forum New York: “Who’s Afraid of Blue, Red and Green?”, an online competition and public art project based on the elementary visual building blocks of digital display screens. The three winning projects were shown on the Astrovision screen in New York's Times Square. The Austrian Embassy in Rabat engaged the Austrian photographer Tom Platzer for the exhibition “Far from Heaven”, showing pictures of homeless people in Vienna, while works by Herbert Seiler , who lived and taught in Ethiopia for 28 years, were presented at the Addis Ababa School of Fine Arts
211 and Design to celebrate the 40 th anniversary of the Austrian Embassy in Addis Ababa.
The Directorate-General for Cultural Policy currently has 14 travelling exhibitions in its repertoire, which were deployed in numerous locations in 2004. The exhibition “Four Austrian Architects” featuring architectural photographs by Gerald Zugmann was primarily shown in North and South America, while “Der dritte Mann. Auf den Spuren eines Filmklassikers” (“The Third Man. In the Footsteps of a Film Classic”) toured Scandinavia and the British Isles. A new acquisition was the travelling exhibition “Wiener Ausdruckstanz” (“Viennese Expressionist Dance”) conceived by Jarmila Weißenböck of the Austrian Theatre Museum in Vienna, which was shown in London and Washington. Turkish and Spanish versions of the travelling exhibition on Ingeborg Bachmann were also produced, especially with a view to the writer's 80 th birthday in 2006.
5. Film
The year 2004 brought international success for a number of Austrian film productions, including, for example, the feature films “Antares”, “Hurensohn” (“The Whore's Son”), “Darwin’s Nightmare”, “Silentium” and “Die fetten Jahre sind vorbei” (“The Edukators”). The Federal Ministry for Foreign Affairs enabled Austrian film-makers to participate in international film festivals by financing their travel costs. Highlights included the Austrian Film Weeks in Caracas, Milan, Madrid, Prague, Paris, Rome, Hong Kong, Istanbul and Warsaw, among others. A total of 30 “Austrian Film Days” ensured more intensive foreign promotion of Austrian film-making, and Austria also participated in some 45 of the “European Film Days” organised by the EU.
6. International Youth Cooperation
In 2004 the Federal Ministry for Foreign Affairs again co-managed the extremely successful project under which young Israelis are invited to participate in a several-week language course in Austria, which is run in cooperation with the Society of Friends of the Hebrew University of Jerusalem. Furthermore, together with the Federal Ministry for Social Security and Generations the Foreign Ministry assumed responsibility for all youth projects realised within the framework of the EU, the CoE and other international organisations.
212 7. International Sporting Relations
The Federal Ministry for Foreign Affairs was involved in the preparatory activities for the 2004 Summer Olympics in Athens. Austria ratified the Council of Europe Anti-Doping Convention in 1991. In view of the subsequent founding of the World Anti-Doping Agency (WADA) and in order to improve the implementation of doping control measures, the Ministerial Committee of the CoE adopted an Additional Protocol to the Convention on 3 July 2002. The Additional Protocol was ratified by Austria on 3 February and came into effect in Austria on 1 June 2004.
8. Grants for Cultural Projects
With the aim of supporting international cultural policy objectives and anchoring them in the public sphere, funding in the form of grants for cultural projects was made available in Austria and to a limited extent also abroad. Funds totalling 402,743 euros were granted to 100 individual projects in the artistic, cultural and academic fields.
In 2004, for example, financial support was given to exhibition projects by the Cultural Office of the Archdiocese of Vienna (IMAGO 2004 in Monaco), the “permanent breakfast” initative (actions in the public space), the Regional Museum of Styria/Stajerska (Temple of Muses of the Former Region of Lower Styria, Then and Now), the Salzburg Cathedral Museum (Johann Michael Rottmayr) and the Forum Weltoffen arts and culture initiative. In the field of congresses and conferences funds were made available for events organised by the Hans Kelsen Institute (Hans Kelsen and International Law), the Europazentrum Europahaus Graz (Women and the EU Enlargement), the Historical Society of Styria (Borders, Myths. Negative Historical Stereotypes), the Young Europe Association (Enlarged Economies in an Enlarged Society), the University of Innsbruck (The New Constitution for the EU), the Peres Center for Peace in Israel (Shaping Palestinian-Israeli Leadership in a Transitional Era) and the Institute for the Danube Region and Central Europe (IDM). The Klangforum Wien, the Vienna Art Orchestra, the Gustav Mahler Youth Orchestra, the Pierrot Lunaire Ensemble, Timna Brauer and Voices for Peace received financial assistance for their foreign tours. Moreover, grants were also made available to Voice Mania (A Capella Festival 2004) and the International Mauthausen Committee (performance of the oratorio “The Song of Terezin” in Prague). The Austrian Dance Council (5 th Austrian Dance Council Contest 2004), Im Puls Tanz04 (performance by the Chinese dance company Wen Hui – The Living Dance Studio) and Ballett Tanz Burgenland (Homage to Fanny Elßler) likewise received support. Funding was also granted to the Jewish Institute for Adult Education (Yiddish Theatre Week
213 2004) and the Chamber of Architects and Consultant Engineers (Architecture Days 2004), as well as the Cultural Association of Austrian Roma, the Romani Union, the Pozuzo Cultural Association, the Gottscheer Old Settlers' Association/Slovenia, the “Brücken” German-speaking Women's Cultural Association/Slovenia, the Austrian Community in Croatia, the Society of the Danube Swabians in Croatia, the Circolo di Cultura Italo-Austriaco/Trieste (Italo-Austrian Cultural Circle/Trieste), the Italian-Austrian Cultural Association in Bologna and the Austrian-Czech Dialogue Forum. Finally, as in previous years, the Austrian settlements in South America and St. George's College Austrian school in Istanbul also received financial assistance.
9. Academic and Scientific Projects
Support was given to a large number of Austria-related academic and scientific events (symposia, workshops, lectures and others) worldwide, covering a diverse spectrum of topics ranging from literature, music, history, urban planning, architecture and cultural philosophy to specialised fields such as public health, eco-social market economy, cyberarts and archaeology. Thematic foci in the academic and scientific field included Theodor Herzl, Ingeborg Bachmann, the Dialogue among Cultures and Civilisations and the EU enlargement .
Readings and film showings as well as several academic symposia and a series of dedicated programmes (including e.g. radio documentaries lasting several hours) were organised to commemorate the 30 th anniversary of the death of Ingeborg Bachmann . The exhibition “Ingeborg Bachmann (1926-1973). Writing against War”, which was conceived in cooperation with the Bachmann heirs, was also presented in the Czech Republic, Italy and Germany. The efforts to promote inter-faith dialogue gained a new significance in the aftermath of the events of 11 September 2001, and the Dialogue among Cultures and Civilisations became a priority focus of Austrian foreign policy. Projects on the topics of “media” and “religious dialogue” were implemented in 2004. Within the framework of the thematic focus on Europe, an international conference on the possibilities of a “European historiography” was held in Warsaw in June.
10. Austrian Professorships and Centres for Austrian Studies
The centres for Austrian studies and Austrian professorships established at a number of foreign universities serve the purpose of initiating and coordinating the study of Austria-specific topics in the fields of culture, economics and politics in the academic life of the respective host country. To an increasing
214 extent, European themes and their interlinkages with Austria's intellectual potential are also being incorporated into the planning of the academic programmes, and the publication of academic works in these fields is being encouraged. Furthermore, through networking with Austrian institutions these establishments strengthen Austria's involvement in international scientific, academic and cultural cooperation.
The professorships and centres for Austrian studies include the “Chair in Central European Studies with Special Reference to Austria” at the University of Leiden, the “Canadian Center for Austrian and Central European Studies” at the University of Alberta in Edmonton, the “Research Department for Austrian Literature and Culture and Robert Musil Research Centre” at the University of Saarbrücken, the “Center for Austrian Studies” at the University of Minnesota, the “Center for Austrian Studies” and the “Cardinal König Chair in Austrian Studies” at the Hebrew University of Jerusalem, the “Centre for Austrian Studies” at Monash University in Melbourne, the “Visiting Austrian Professorship” at Stanford University and the “Schumpeter Program” at Harvard.
11. Österreich-Bibliotheken (Austria Libraries)
At present there are 50 Österreich-Bibliotheken in 23 countries, predominantly in the states of Central, Eastern and South East Europe. They are visited by approximately 100,000 people per year, with 95,474 loans registered. The library stocks comprise a total of 274,338 media items. The new structures created in the previous year through the establishment of an administrative section on the web portal www.oesterreich-bibliotheken.at have proven successful. Most of the libraries have developed into future-oriented institutions representing a particularly flexible and effective instrument of international cultural policy. As smaller-scale cultural centres they made a considerable contribution to strengthening Austria's cultural presence abroad, organising exhibitions, concerts, theatre performances, readings by authors, film showings and academic events and holding examinations for the Austrian German Language Diploma (Österreichisches Sprachdiplom Deutsch, ÖSD). These events were attended by a total of approx. 60,000 people in 2004. Additional follow-up opportunities for an active cultural and information policy arose through the inclusion on the web portal of a catalogue of foreign- language works and articles about Austria published worldwide. Many of the Österreich-Bibliotheken carry out their own publishing activities and provide targeted contact information on translators, dramaturgists and publishers as well as information on publishers' programmes in connection with envisaged publications. A further key focus in 2004 was the expansion of the web portal. In the area accessible to the general public the headings “Specialised libraries abroad” and “Austria centres” have now been added to the section on the 215 Österreich-Bibliotheken network, and two specialised libraries, five Austrian Information Centres and nine centres for Austrian studies and/or Austrian professorships have seized this opportunity to present themselves on the web portal. An important contribution was made towards improving the technical equipment of numerous Österreich-Bibliotheken which enabled electronic cataloguing of the library stocks. In this connection the Federal Ministry for Foreign Affairs made it possible for the librarians of the Österreich- Bibliotheken to make training visits to Vienna, where they attended specialised workshops and seminars.
Book donations were made to the Österreich-Bibliotheken abroad as well as to institutes of German studies at universities all over the world. Specialised university libraries (Robert Musil Research Centre in Saarbrücken), centres for Austrian studies (Belgium, the UK, Israel, Canada, the Netherlands, Portugal and the USA) and Austrian Information Centres (Armenia, Azerbaijan, Morocco, Turkey) in particular were supplied with relevant literature.
12. German as a Foreign Language
Österreich Institut GmbH (Austria Institute Ltd.) is a non-profit limited company founded in 1997 for the purpose of organising German language courses, supporting and promoting German language teaching abroad and cooperating with relevant national and international organisations. The company is headquartered in Vienna and the Federal Ministry for Foreign Affairs is the sole shareholder. New language schools were opened in Ljubljana and Rome in 2004 . At present there are Österreich Institut language schools in Warsaw, Krakow, Budapest, Bratislava, Brünn, Ljubljana and Rome, with a total of approximately 10,000 course participants. They act as centres for the promotion of the Austrian variety of German, and the quality of their courses sets them apart from other local language schools. The course programme is being further expanded through cooperation with the Österreich-Bibliotheken.
Lecturers, language assistants and trainee teachers of German as a foreign language are recruited and assigned to their posts by the association “Österreich-Kooperation”. As a rule they are Germanists or other philologists with teaching experience who are employed in secondary and tertiary educational institutions in over 50 locations around the world. The Austrian German Language Diploma (Österreichisches Sprachdiplom Deutsch, ÖSD) offers candidates the opportunity to have their German language skills certified at several different levels. The ÖSD examinations can be taken at more than 160 examination centres worldwide.
216 13. Grants and Mobility Programmes for University Studies
Since the separation of the universities from the federal administration, the management of grants, services to grant holders and the administration of mobility programmes has been entrusted to separate dedicated offices which were set up for the purpose of direct cooperation with grant applicants. The Austrian Exchange Service (Österreichischer Austauschdienst) acts as the partner institution of the Federal Ministry for Foreign Affairs in this regard, while the Ministry itself is responsible for coordination and information activities, answering of individual enquiries and the organisation of relevant events. In particular, the implementation of the new tuition fees arrangements for foreign students at Austrian universities was the object of intensive advisory and service provision activities on the part of the Federal Ministry for Foreign Affairs.
14. Multilateral Scientific and Technical Cooperation
Austria is represented by the Federal Ministry for Foreign Affairs together with the Federal Ministry of Transport, Innovation and Technology in a number of international organisations for the promotion of scientific and technical cooperation: in the Committee of Senior Officials of the intergovernmental framework for European Cooperation in the field of Scientific and Technical Research (COST ) in Brussels, in the Council and the Finance Committee of the European Organization for Nuclear Research (CERN ) in Geneva, and in the Council and the International Relations Committee of the European Space Agency (ESA ) with its headquarters in Paris. Austria's active participation in the programmes of these organisations is an indispensable prerequisite for the full participation in the European knowledge society striven for by Austria, as well as for the achievement of the goals of the European science and competition policies. Particularly worthy of mention is Austria's strong involvement in the ESA's Galileo satellite navigation programme.
COST is an organisation comprising 34 European member countries with research activities involving some 30,000 scientists and a volume of more than 2 billion euros per annum in national funding. The Federal Ministry for Foreign Affairs was successful in its efforts to ensure that COST also takes account of foreign policy objectives, for instance by approving financial support from the COST Fund to promote stronger participation by scientists from the Balkan region and the Mediterranean states. COST has furnished renewed evidence of its ground-breaking role in the creation of a European Research Area through its flexibility, lean management, simple legal framework, quality control measures and multidisciplinarity, through its
217 initiatives in biology and nanoscience and through its development of scientific infrastructure. Austria advocates continued Commission financing of the COST secretariat under the Seventh Framework Programme and an increase in the number of Actions to match its augemented membership.
In the ESA as in COST, the opportunity for selective participation in optional programmes – as guaranteed by the ESA Convention – is a favourable factor for Austria. With regard to the ESA's industrial policy (tendering policy) Austria advocates retaining the principle of equitable participation, which is in the interest of the smaller participating states. Austria's full participation in these areas is essential for the development of GALILEO and participation in the GALILEO programme. Austria supports the technological and scientific objectives of a European Space Programme within the context of the ESA/EU Framework Agreement.
ENVISAT, the ESA satellite that is the largest ever developed for environmental monitoring, earth observation and earth science research purposes, has now been in successful operation for two years. The global use of ENVISAT's ten different earth observation systems was the topic of an ENVISAT Symposium held in Salzburg from 6-10 September. The Salzburg conference demonstrated the extent to which the data collected by ENVISAT are used worldwide, including, for instance, by the government agencies of the USA, China and Russia. The success of European satellite-supported earth observation contributes to securing Europe's independent access to findings and applications in space science and space technology.
European Space Policy Institute (ESPI ): Following intensive preparatory work on the part of the ESA and Austria, the ESPI started its operations on 1 September as a non-profit limited company with its headquarters in Vienna. The Frenchman Serge Plattard was appointed Secretary General. In view of the dynamic developments in the field of space policy the ESPI is to take up the tasks entrusted to it as soon as possible, namely the elaboration of expert scientific recommendations as decision-making tools for policy-making bodies involved in European space technology. Furthermore, the Federal Ministry for Foreign Affairs is in charge of the foreign policy aspects of Austria's membership in the European Organisation for the Exploitation of Meteorological Satellites (EUMETSAT ), the European Molecular Biology Conference (EMBC ) and the International Institute for Applied Systems Analysis (IIASA) , which has its seat in Laxenburg near Vienna.
15. International Cultural Policy within the Framework of the EU
Cultural cooperation within the EU is enshrined in Article 151 of the Treaty establishing the European Community (EC Treaty), which states that “the 218 Community shall contribute to the flowering of the cultures of the Member States, while respecting their national and regional diversity and at the same time bringing the common cultural heritage to the fore”. It does so by complementing and supporting actions taken by Member States and through funding and coordination measures, since cultural issues in principle remain a national responsibility of the Member States and the Community has no legislative powers in this field.
The Culture 2000 programme is the framework funding and planning instrument for the implementation of Article 151 EC Treaty. Originally established for a period of five years (2000-2004) with a total budget of 167 million euros, it was prolonged unchanged for the years 2005 and 2006 with additional funding of 69.5 million euros, the aim being to contribute to the continuity of the programme against the background of EU enlargement and ensure that sufficient time is available for the elaboration of the follow-up programme. In 2004 Austria submitted a total of 22 one-year projects, 14 of which were granted EU funding. Austrian institutions are also involved as co- organisers or partners in 20 further projects. One out of a total of nine multi- annual cooperation projects submitted was granted EU funding, with Austrian co-organisers also involved in five further projects. A total of just under 2.16 million euros was thus made available to Austrian project-executing organisations in 2004.
The first half of the year under the Irish Presidency saw the designation of the European Capitals of Culture for 2007 (Luxembourg and Sibiu) and 2008 (Liverpool and Stavanger). In order to achieve swift integration of the new Member States in this action, the EU Education, Youth and Culture Council of 27 and 28 May – the first to be attended by 25 Member States – reached political agreement that from 2009 onwards one Capital of Culture will be designated from among the old Member States and one from the new Member States. This means that Europe will have two Capitals of Culture every year until 2018. The Austrian candidate for 2009 is Linz.
Under the Dutch Presidency the EU Education, Youth and Culture Council of 16 November adopted a new Work Plan for Culture for the years 2005 and 2006 as well as discussing the follow-up programme for the years 2007-2013. In this regard Austria supports an expansion of the programme in terms of content as well as measures to open the programme to small projects and cultural operators. The Council also authorised the European Commission to participate on behalf of the Community in the negotiations on a UNESCO Convention on the Protection of the Diversity of Cultural Contents and Artistic Expressions .
In the field of education the programmes Socrates II (general education) and Leonardo II (vocational training) provide for a total of 3 billion euros in
219 funding for the period 2000-2006. Besides the EU Member States the programmes are also open to the Central and Eastern European (CEEC) candidate countries Romania and Bulgaria, the EFTA/EEA countries Iceland, Liechtenstein and Norway, and with retroactive effect from 1 January this year to Turkey as well. More than 25% of these funds are earmarked for the field of school education, in which some 400 schools cooperate every year within the framework of transnational Comenius school projects. Alongside the “Socrates/Comenius” (school education) programme, there are "Socrates/Erasmus" for higher education and “Socrates/Grundtvig” for adult education. Every year numerous Austrian students have the chance to spend a semester abroad in one of the 30 participating states, and more than 4,000 young people took up this opportunity in the academic year 2003/04. The Tempus Programme (higher education) with its three sub-programmes Tempus CARDS, Tempus TACIS and Tempus MEDA aims to contribute to the reform and further development of the higher education systems in the partner countries and will continue to run until 2006. Erasmus Mundus (programming period 2004-2008, overall budget 230 million euros) is a co- operation and mobility programme in post-graduate higher education that aims to attract highly qualified students from countries outside the European Union to engage in postgraduate study at European universities. At the same time the programme is intended to strengthen cooperation between higher education institutions in the EU and in third countries and encourage the outgoing mobility of EU graduate students towards third countries.
16. Bilateral Agreements in the Fields of Culture and Science
In 2004, work programmes on cultural cooperation were negotiated and concluded with Italy, Slovakia and Hungary. The Austrian-Italian Sub- Commission for Scientific and Technical Cooperation, the Austrian-Chinese Mixed Commission for Science and Technology and the Austrian-Hungarian Mixed Commission for Science and Technology convened for working meetings under the chairmanship of the Federal Ministry for Foreign Affairs. On 1 June a celebratory event was held at the University of Vienna to mark 20 years of Austrian-Chinese scientific and technological cooperation.
On 28 and 29 September negotiations on a new cultural agreement with Croatia were held in Vienna. The Austrian-Ukrainian Convention on Cooperation in the Fields of Science and Technology came into force on 1 January, and the Austrian-Slovak Convention on Scientific and Technical Cooperation signed in Vienna on 18 February became effective on 1 December. The protocol on continuation of the “Activity Austria – Slovak Republic: Cooperation in Science and Education” until the end of 2007 came into force on 1 April, and on 17 December agreement was reached on an extension of the “Activity Austria – Czech Republic: Cooperation in Science and Education” 220 until the end of 2009. The efforts aimed at conclusion of a cultural agreement with Albania were continued; the Albanian side submitted a revised draft in December, so the signing of the new agreement could take place in 2005.
On 18 June the Head of the Directorate-General for Cultural Policy at the Federal Ministry for Foreign Affairs and the Director-General for Cultural Affairs at the Turkish Foreign Ministry in Ankara signed a memorandum of understanding on cultural cooperation.
221 M. Media and Information
I. Public Relations Activities of the Federal Ministry for Foreign Affairs
The enlargement of the EU by ten new Member States was also a thematic priority in the PR work of the Federal Ministry for Foreign Affairs. In May, a total of 17 journalists from the new EU Member States took part in a comprehensive information programme in Vienna at the joint invitation of the Federal Ministry for Foreign Affairs and the Federal Press Service. The agenda focused on the fields of cultural, economic and European policy: highlights included an in-depth press talk with Foreign Minister Benita Ferrero-Waldner and a visit to the Vienna Philharmonic's “Concert for Europe”, which was held on 25 May in the park of Schönbrunn Palace and drew a crowd of around 90,000 people.
A key focus of this year's Press Officers' Conference in Vienna on 9 September was the progressive development of the working methods and functions of the modern mass media. During a visit to the NEWS Media Tower, the press officers of the Austrian diplomatic representations abroad had the opportunity to hold personal talks with the editors-in-chief and foreign policy correspondents and to gain an insight into how stories on foreign policy events are handled in the newsroom of a major print medium. The forthcoming Austrian Presidency of the EU Council in 2006 was the second focus of the conference, and the key tasks and goals of Austria's second EU Presidency and the resulting requirements in terms of press and PR work in the diplomatic representations abroad were discussed.
On 26 October, the Federal Ministry for Foreign Affairs and the Federal Chancellery again organised an Open Day, where “Europe – The Peace Project”, an exhibition specially conceived for the occasion, was presented. Thousands of visitors were given the opportunity to find out more about the European Union’s past and present, calling their attention to the fact that the enlargement by ten new Member States, the agreement of the Heads of State and Government on the Treaty establishing a Constitution for Europe and the imminent signing of the latter in Rome on 29 October made 2004 a very special year for Europe.
The Austro-Polish Prize for Journalism, which was jointly initiated by Foreign Minister Benita Ferrero-Waldner and her Polish counterpart Wladyslaw Bartoszewski in 2001, is sponsored by the Bank Austria-Creditanstalt Group. The jury awarded this year's prize to the Polish journalist Malgorzata Schwarzgruber-Barwicka for her in-depth reporting in the Polish daily paper “Trybuna” and the Vienna-based monthly “Polonika”, which is published in German and Polish. The prize serves to strengthen Polish-Austrian relations 222 and aims to facilitate mutual understanding by promoting a type of journalism that breaks away from clichés and stereotypes.
Internet: In autumn 2003 the Internet presence of the Federal Ministry for Foreign Affairs underwent a thorough overhaul in order to give the online information content an even stronger service orientation. The successful implementation of the new concept and its excellent level of acceptance by the interested public were confirmed by the number of visits registered by the web server of the Federal Ministry for Foreign Affairs, which rose continuously over the course of the year from around 50,000 to more than 150,000 per month. The successive installation of websites in a uniform “corporate design” for the Austrian diplomatic representations abroad was continued, and nineteen such homepages were online by the end of the year.
Publications: 140,000 copies of an updated edition of the handy booklet “Tipps für Auslandsreisende” (Tips for Travellers Abroad) were printed and distributed at a holiday and travel fair, via travel agents, and as a supplement to travel magazines. To mark the 100 th anniversary of the death of Theodor Herzl the Federal Ministry for Foreign Affairs published a brochure in English to commemorate the founder of modern Zionism. The brochure was distributed to selected recipients, primarily via the diplomatic representations abroad. Further activities which received financial support from the PR budget included the publication of the illustrated book “Österreich 2005 – Das Lesebuch zum Jubiläumsjahr (mit Programmübersicht)” (“Austria 2005 – An Anthology for the Jubilee Year (with a Calendar of Events)”) and events such as the Wachauer Journalistentage (Wachau Journalists' Congress), the European Forum Wachau, a training course in negotiating skills for the “Israeli-Palestinian negotiating partners” (IPNP) at Schlaining Castle and a cross-party campaign aimed at young voters entitled “Vote 4 Future” in the lead-up to the elections to the European Parliament.
II. International Cooperation in the Media Sector
In view of the low turnout at the elections to the EP, bad opinion poll results for the EU and the forthcoming referendums on the EU Constitutional Treaty, the Communicating Europe Initiative was established under the Irish EU Presidency in the first half of the year with the aim of finding ways of improving Europe's communication with its citizens. There have already been several meetings of the Ministers for European Affairs under this initiative, in which concrete information strategies and projects launched by the individual Member States and the European Commission were presented and discussed. In addition, an exchange of views on EU information campaigns was initiated within the framework of the Council Working Party on Information, with a particular focus on strategies for public communication of the European
223 Constitution. In this discussion process it became evident that the prerequisites and requirements with regard to the communication of EU- related issues vary strongly among the individual Member States. The exchange of views established within the framework of the Communicating Europe Initiative will be continued under the successor Presidencies.
224 N. The Austrian Foreign Service
I. Introduction
As in past years, the Federal Ministry for Foreign Affairs was included in the efforts of the Federal Government to consolidate the federal budget . In view of a growing demand for Foreign Service intervention (a rise in the number of consular cases as a result of increased travelling of Austrians, natural disasters, the need for diplomatic representations in new states and the active participation in international organisations and bodies, greater consultation with foreign representations by ministries, which increasingly second special attachés to work abroad, and the federal provinces and local communities, which submit numerous requests to the Federal Ministry for Foreign Affairs), it is due to the outstanding commitment and dedication of its employees that the Federal Ministry for Foreign Affairs can maintain a worldwide network that ensures the protection of Austrian citizens and the representation of Austrian interests abroad.
II. Foreign Missions – Honorary Consulates
Austria maintains 80 embassies (two of them in the form of a trade representation), six permanent missions to international organisations, a branch of the Berlin embassy in Bonn, a branch of the Belgrade embassy in Priština and 15 consulates general (one of them in the form of a trade representation). Compared with similar EU Member States, this is a small network of foreign representations. In addition, there are 29 cultural forums (see Chapter L.1.). Austria is also currently represented by 276 honorary consuls, who offer valuable support and supplement the work of the official Austrian representations. Honorary consuls are prominent persons, usually active in business or self-employed, who put their infrastructure at the disposal of the consular service and work for Austria on an honorary basis.
III. Real Estate Management
The Federal Ministry for Foreign Affairs has a separate unit managing property acquisition, rentals, construction/renovation and the furnishing of its properties in Austria and abroad. Offices and accommodation are currently provided in 81 countries and include historic and contemporary architectural landmarks, such as the Austrian Cultural Forum New York. A central facility management system is used to make efficient and economical use of the properties.
225 At the beginning of 2005, the new headquarters of the Federal Ministry for Foreign Affairs, at the former seat of the Province Government of Lower Austria in Vienna, will bring together all organisational units of the ministry in one central location which is equipped with state-of-the-art telecommunications, data networks, meeting and media facilities.
IV. Entry into the Foreign Service
Entry into the higher, higher intermediate and intermediate service of the Federal Ministry for Foreign Affairs follows the successful completion of the corresponding selection procedure (examen préalable) before an independent selection commission. The legal basis is the Federal Law on Tasks and Organisation of the Foreign Service - Statute (Federal Law Gazette I 129/1999 of 23 July 1999) and the ministerial order issued by the Federal Minister for Foreign Affairs, Federal Law Gazette 120/1989 of 16 February 1989. The Federal Ministry for Foreign Affairs invites qualified applications for this selection procedure and provides information on the requirements and career options in the Foreign Service in the form of lectures and professional guidance events.
In 2004, a selection procedure was organised for the higher intermediate service, and ten candidates were accepted. Selection procedures were also held for the intermediate service, for which a total of twelve candidates qualified.
All service levels have to undergo a mandatory basic training programme, which was revised in the Basic Training Regulation of the Federal Ministry for Foreign Affairs, Federal Law Gazette II 113/2004. The training programme for the higher service comprises a one-week general introduction, in which the departments and tasks of the Federal Ministry for Foreign Affairs are presented, specific technical and personality-oriented seminars at the Diplomatic Academy and at the Centre for Administrative Management of the Federal Chancellery, which last for several days, various lectures and targeted foreign language courses with special emphasis on learning and/or perfecting the languages of Austria’s neighbouring states. The training period also includes practical work at an Austrian representation abroad for six months to introduce staff to the practical work of a foreign representation.
The training programme for the higher intermediate level in the Foreign Service also consists of practical training at a foreign representation in particular in the performance of administrative and consular tasks. Additionally, staff members are required to attend seminars by the Centre for Administrative Management and in-house training sessions. The training programme for the intermediate service essentially takes the form of seminars offered by the Centre for Administrative Management and targeted foreign
226 language training. A French course tailored to the needs of staff in the higher intermediate and intermediate service is held on the premises of the Federal Ministry for Foreign Affairs.
Newly recruited staff members are required to attend the basic training programme laid down in the Basic Training Regulation issued on 5 March 2004 for their respective service, which also includes a thorough preparation for consular and administrative tasks.
V. Staff
In December, the Federal Ministry for Foreign Affairs had 1,332 employees: 570 in Vienna and 762 abroad. Five of them were assigned from other federal bodies to the Ministry, 20 persons were employed on the basis of special employment contracts and three employees were released temporarily. 22 employees of the Federal Ministry for Foreign Affairs were assigned to other federal bodies, 90 were on leave (45 maternal leave/parental leave, 21 work for international organisations, 15 are engaged in other activities, e.g. at the Diplomatic Academy and Development Cooperation offices, nine are on leave for private reasons, such as accompanying the spouse on foreign missions or caring for a sick relative) and two were released from duty temporarily. In 2004, a total of 36 employees retired from the staff of the Federal Ministry for Foreign Affairs.
The staffing scheme for 2004 provided for 1,457 positions (or 1,502, if the positions under Section VI of the staffing scheme are included), but the Federal Government controls the staffing of government offices as part of its budget consolidation policy essentially through expenditure-effective full employment equivalents (number of remunerated employments converted in relation to full employment). According to the decision of the Ministerial Council of 19 September 2000, the full employment equivalents allocated to the Federal Ministry for Foreign Affairs in 2004 were fixed at 1,343.56.
In 2004, the Federal Ministry for Foreign Affairs also employed 15 administrative interns, who had been selected in hearings.
In 2004, women accounted for 45.9 per cent of the staff in the Federal Ministry for Foreign Affairs (62 per cent at the intermediate service level, 69.1 per cent in the technical service, 38.6 per cent at the higher intermediate service level and 26.5 per cent at the higher service level).
227
Staff of the Federal Ministry for Foreign Affairs by levels/gender in 2004
Level male female total female in % A1/v1, A/a higher service 324 117 441 26.5% A2/v2, B/b higher intermediate service 156 98 254 38.6% A3/v3, C/c technical service 134 300 434 69.1% A4/A5/v4, D/d, P2/P3/p2/p3, h2/h3 qualified intermediate or intermediate s. 52 85 137 62.0% A7/v5, E/e, p4/p5, h4/h5 Hilfsdienstauxiliary serv. 41 5 46 10.9% special contracts 14 6 20 30.0% total 721 611 1332 45,9%
Retirement age: In 2004, the average age at which public officials of the Federal Ministry for Foreign Affairs retired was 61.44 years. As can be seen from the following table, the average retirement age in the past ten years, except for 1998, has always exceeded the 60-year limit.
1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 61.88 60.48 63.69 62.11 59.93 62.52 61.59 61.48 61.54 60.48 61.44
VI. Budget
In the federal budget for 2004 the total amount earmarked for the Federal Ministry for Foreign Affairs was 340.928 million euros . After deducting the budget item for ADA (89.742 million euros), Austria’s contributions to international organisations (49.978 million euros), other legal commitments (2.672 million euros) and expenditure for international conferences (2.500 million euros), the Federal Ministry for Foreign Affairs’ operative budget amounted to 196.036 million euros (including personnel expenditure). The operative share amounted to 0.31 per cent of the total federal budget.
228 Budget 2004 in 1,000 euros FMFFA Contributions to international operative organisations, international Operative budget as a FMFFA Year conferences, development budget of percentage of budget cooperation, grant programmes in FMFFA the federal Eastern Europe budget
1994 219.648 53.132 166.516 0.26 1995 288.960 106.395 182.565 0.26 1996 292.889 113.380 179.509 0.26 1997 292.837 113.747 179.090 0.26 1998 314.673 133.327 181.346 0.25 1999 297.232 113.901 183.331 0.33 2000 305.662 127.165 178.497 0.31 2001 303.409 122.652 180.757 0.31 2002 299.775 121.938 177.837 0.31 2003 307.000 112.298 194.702 0.32 2004 340.928 144.892 196.036 0.31
Compared with the previous year, 2004 saw a rise in the federal budget. Important budget items included the ADA and contributions to international organisations, which were increased. The operative budget, however, benefited only slightly from this increase. In the ordinary budget, an amount of 10.500 million euros was earmarked for the obligatory contributions to the UN, 13.072 million euros for peacekeeping operations, and 1.549 million euros for the two tribunals (ICTR, ICTY).
It should be mentioned that the percentage share of the operative budget of the Federal Ministry for Foreign Affairs in the federal budget from 1994 to 1998 was originally indicated on the basis of the total budget (general budget plus compensatory budget). From 1999 only the general budget (i.e. total actual expenditure as budgeted by all ministries) was used with no account being taken of the compensatory budget (i.e. total expenditure for the redemption of debts and short-term obligations and/or of capital from currency exchange agreements and income from capital payments from currency exchange agreements and income from short-term obligations). The percentage shares 1994-1998 were therefore adjusted accordingly.
VII. Information Technology (IT) and Foreign Policy Library
Since the completion of the Medusa Project, all Austrian representations have been connected with the Ministry in Vienna either by encrypted terrestrial
229 WAN data lines or by satellite (VSAT). These lines ensure the communication with all Austrian authorities, the information flow being transmitted via e- mail – the most important means of communication of the Federal Ministry for Foreign Affairs – and e-fax. Telephone calls are also transmitted via VSAT.
In addition to office automation, all representations are equipped with tailor- made software for their administrative and consular activities, which was developed by the ICT Department itself. The service accounting software is a front-end application of the budget accounting system with SAP software introduced at the national level (SAP budget accounting). The consular software enables the representations to issue visas and temporary or permanent residence permits. The representations have access to the Schengen Information System (SIS) and are connected to the consultation network (VISION) of the Schengen states.
Electronically available information may be downloaded directly from the representations or from the Ministry. Each workstation is connected to the Internet, while news agencies like APA and Reuters as well as various data bases, e.g. the legal information system (Rechtsinformationssystem, RIS), are accessible to specialist staff. Internal information and important links are provided in the intranet, which is being constantly expanded. The open communication strategy of the Federal Ministry for Foreign Affairs connects the Ministry in Vienna, the representations abroad and worldwide networks.
The electronic file (Elektronischer Akt, ELAK ) has been in use throughout the Federal Ministry for Foreign Affairs for several years. This tool has helped to considerably speed up work processes and increase efficiency in general. Another important contributing factor has been the electronic document management system, which permits fast and targeted document retrieval and informal task processing. In addition, the ELAK has resulted in a reorganisation of work processes within the Federal Ministry for Foreign Affairs: for many years now, paper-based processes have been replaced by electronic workflows. This highly successful implementation will now be applied in all other ministries (ELAK im Bund – EiB project). In the course of the year all preparations for the introduction of ELAK at the federal level were undertaken at the Federal Ministry for Foreign Affairs and the necessary training programmes held.
Another priority of the Federal Ministry for Foreign Affairs were the preparations for the move to the new office premises, where the entire central unit and the periphery were newly installed. To this end, servers were procured and made operational even before relocation to the new premises. In the tender for the network it has also been decided that telephone calls would be made via data network (voice-over-IP). One of the advantages is the resulting reduction in costs. The new telephony technology via data network
230 has already been implemented in the Ministry’s new offices. For telephone calls to the representations abroad, which will gradually change over to the new technology, only fixed costs will be incurred in the future.
On the one hand the stock of the Library of the Ministry for Foreign Affairs/Library for the students of the Diplomatic Academy (“Außenpolitische Bibliothek”) was systematically expanded, while on the other hand the retroactive cataloguing of the books was continued. An update of the online catalogue ALEPH improved the circulation of the books and the efficiency and speed of the cataloguing process. The possibility of searching the library stock via the Internet has also led to an increase in the number of people using the Außenpolitische Bibliothek, including students and academic staff.
In 2004 preparations were made for the relocation of the files of the Federal Ministry for Foreign Affairs to a new building at Minoritenplatz 8. For this purpose movable shelf systems were installed in the basement, which both improves the utilisation of the available space and enables the Ministry’s staff to access to the files more quickly. It is now possible to sort and store the files properly and, after revision, hand them over to the Austrian public record office.
231
VIII. The Organisational Structure FEDERAL MINISTER FOR FOREIGN AFFAIRS of the Foreign Ministry Dr. Ursula PLASSNIK Head of Ministers' Office Dr. Nikolaus MARSCHIK Staff Unit: Mag. Astrid HARZ
I. General Affairs II. Political Affairs Economic Affairs and European Legal and Consular Affairs Dr. Johannes KYRLE Dr. Thomas MAYR-HARTING Integration Dr. Christian BERLAKOVITS Deputy: Dr. Martin SAJDIK Deputy: Dr. Ralph SCHEIDE Deputy: Dr. Wolfgang PAUL Dr. E. TICHY-FISSLBERGER
I.1 Protocol II.1 Security Policy Affairs, CFSP, III.1 EU General Affairs IV.1 Legal Protection, Legal Dr. Ferdinand MAULTASCHL Basic Issues Dr. Elisabeth TICHY- Cooperation and Inter-Authority I.1a Gudrun HARDIMAN- Dr. Thomas HAJNOCZI FISSLBERGER Assistance POLLROSS II.1a Dr. Andreas RIECKEN III.1a ………………….. Dr. Wolfgang PAUL I.1b Mag. Lucia II.1b Mag. Karl PRUMMER III.1b Mag. Gerhard MAYER IV.1a……………………… KRONSTEINER II.1c………………….. I.1c Werner AMMINGER III.2 European Council and General IV.2 Tourist and Cross -Border II.2 South Tyrol and Southern Affairs Council, COREPER II, Traffic; Asylum, Residence and Group I.A Office of the Legal Europe Coordination of Preparations Migration Matters Adviser Mag. Dr. Clemens KOJA for the Austrian EU Presidency Dr. Peter WILFLING (Directorates I.2, I.4, I.7) 2006 IV.2a Robert THUM lI.3 Eastern and Southeastern Dr. Hans WINKLER Mag. Helene STEINHÄUSL IV.2b Mag. Gabriel Europe, Central Asia; Central III.2a Mag. Albert ENGELICH KRAMARICS I.2 Public Int. Law European Initiative (CEI) Passport Printing Office Dr. Helmut TICHY III.3 Bi - and Multilateral Foreign Dr. Hanns PORIAS (interim) Peter GRIEHSMAIER I.2a Martin KLEIN II.3a Dr. Josef LITSCHAUER Economic Relations, Export I.2b Dr. Michael POSTL II.3b Mag. Thomas SCHNÖLL Promotion, Investment I.2c Dr. Thomas LOIDL Protection, Int. Financial IV.3 Austri ans Abroad, Powers of II.4 Near and Middle East, Africa, Institutions, Trade Policy Protection Affairs, Property I.3 Press and Inf ormation OAU …………………….. Affairs, Social and Health Mag. Astrid HARZ Dr. Ralph SCHEIDE III.3a Dr. Hans KOGLER Affairs I.3a MMag. Thomas II.4a Dr. Caroline GUDENUS III.3b MMag. Gerhard Dr. Thomas BUCHSBAUM SCHLESINGER MAYNHARDT I.3b Franz HUTEGGER II.5 Intern ational Organisations IV.5 Citizens' Information Desk Dr. Walther LICHEM III.4 EU Enlargement, Foreign Mag. Peter LAUNSKY I.4 European Law Economic Relations with Central, IV.5a Mag. Christian Dr. Alfred LÄNGLE II.6 Central, Western and Northern Eastern and Southeastern HASENBICHLER I.4a Dr. Andreas KUMIN Europe, Regional Cooperation Europe, Stability Pact for South Legalisation Office Dr. Herbert KRAUSS Eastern Europe Alois CSENCSITS I.5 International Conferences II.6a Mag. Martin PAMMER Mag. Arno RIEDEL IV.7 Integration Policy and Dr. Johannes SKRIWAN III.4a Dr. Johannes EIGNER II.7 European Security and International Cooperation in III.4b Dr. Elisabeth KORNFEIND I.7 Human Rights and Cooperation, Council of Europe Justice and Home Affairs Int. Humanitarian Law Dr. Margit WÄSTFELT III.5 COREPER I, Internal Market, Dr. Johann FRÖHLICH Mag. Engelbert II.7a Mag. Christophe CESKA Agriculture, Employment and IV.7a Mag.Wolfgang THEUERMANN II.7b Dr. Helmuth EHRLICH Social Questions, Regional SPADINGER I.7a Dr. Ingrid PECH II.7c Dr. Harald KOTSCHY Policies, Telecommunication IV.7b Dr. Walter ROCHEL I.7b Mag. Elisabeth KÖGLER Dr. Helmut WESSELY II.8 Arms Control and Disarmament, III.5a Mag. Wolfgang Multilateral Atomic Energy STROHMAYER I.9 Security Affairs Issues III.5b ...... Dr. Daniel KRUMHOLZ and IAEO III.5c Dr. Karl MÜLLER Dr. Wernfried KÖFFLER II.8a Mag. Alexander KMENTT III.6 Transport, Traffic and Energy II.8b Mag. Dorothea AUER Matters, Environmental II.8c …………………….. Protection, EURATOM II.9 The Americas, Caribbean, OAS Dr. Christian KREPELA Dr. Rudolf LENNKH III.6a Mag. Aloisia II.9a Dr. Andreas MELAN WÖRGETTER III.6b Dr. Alois KRAUT II.10 Asia, Australia, New Zealand, III.6c Mag. Gisela POLTE Oceania, ASEM Dr. Nikolaus SCHERK III.7 EU -Budget, Financial and II.10a Mag. Michael KAINZ Monetary Affairs II.10b Mag. Peter STORER ……………………….. 232 III.7a…………………..
Secretary-General Dr. Johannes KYRLE Deputy Secretary-General Dr. Hans WINKLER Head of Secretary-General's Office Mag. Michael RENDI Executive Secretariat for the Austrian EU Presidency 2006 Inspector General Dr. Wolfgang ANGERHOLZER Dr. Felix MIKL
V. Cultural Policy VI. Administrative Affairs VII. Development Cooperation Dr. Emil BRIX Dr. Wolfgang LOIBL Dr. Irene FREUDENSCHUSS- Deputy: Deputy: REICHL Dr. Ewald JÄGER Dr. Michael ZIMMERMANN Deputy: Mag. Anton MAIR
V.1 Coordination, Planning and VI.1 Human Ress ources VII.1 Multilateral Development Financing International Cultural Management Cooperation Policy, Cultural Public Relations Dr. Markus WUKETICH Dr. Thomas NADER Dr. Ewald JÄGER Registry VII.1a Mag. Klaus KÖGELER V.1a Andreas PAWLITSCHEK Gustav SCHÜTTE V.1b Franz BISCHL VI.1a Gerda JOHAM VII. 2 Evaluation, Development VI.1b Gerhard ROSNER Policy and Strategy V.2 Organisation of Cultural and VI.1c Mag. Christian Mag. Anton MAIR Scientific Events Abroad BRUNMAYR VII.2a Mag. Klaus STEINER Dr. Claudia ROCHEL-LAURICH VI.1d Mag. Christine V.2a Dr. Barbara LEE-STÖRCK VII.3 Humanitarian Aid, NGO - MOOSBRUGGER V.2b Mag. Margarete HALMA Co-financing, Business- VI.1e Mag. Andrea WICKE V.2c Dr. Waltraud oriented Development DENNHARDT-HERZOG Mag. Franz HÖRLBERGER VI.2 Foreign Service Compensations V.2d Christine DOLLINGER . and Allowances, Social Security VII.4 General Affairs relating to Matters Development Cooperation and V.3 Scientific -technological and Dr. Klaus FABJAN Cooperation with Eastern University Cooperation VI.2a Helga KUBICEK Europe, Coordination in Dr. Florian HAUG VI.2b ...... Austria, V.3a Dr. Florian LORENZ VI.2c Franz RAZ Information V.3b Dr. Christa SAUER Dr. Josef MÜLLNER VI. 3 Budget and Controlling VII.4a Mag. Ursula HEINRICH V.4 Multilateral Cultural Policy Mag. Bruno WALDERT Affairs VI.3a Erich HAUSMANN VII.5 Planning and Programme Dr. Frieda LUGGAUER- VI.3b Robert ZEICHMANN Matters concerning GOLLNER VI.3c Angelina MIGSICH Development Cooperation and V.4a Mag. Ilona HOYOS VI.3d Ing. Reinhold PÖLSLER Cooperation with Eastern Europe Group VI.A – Real Estate Dr. Hermann SPIRIK Management, Accommodation VII.5a Dr. Manfred and Furnishings SCHNITZER (Directorates VI.4 and VI.5) VII.5b. Mag. Lydia SAADAT Dr. Michael ZIMMERMANN VII.5c. Mag. Ingrid SAGER VI.4 Basic Iss ues relating to Accommodation and Furnishings, Federal Government Employees’ Protection, Courier Services DDr. Artur APELTAUER VI.4a DI Klaus PRIBAHSNIK VI.4c Alfred RIEGELMAIER
VI.5 Project Management, Real Estate Controlling, Procurement Kurt MELICHAR VI.5a...... VI.5d Leopold KÖLLNER VI.7 Information Technology (IT) (as of 10 June 2005) Mag. Gerhard MILLETICH VI.7a Ing. Edgar SATTLER
VI.8 Documentation and Dissemination of Information, Library 233
1