Volker Perthes (ed.) GERMANY AND THE MIDDLE EAST INTERESTS AND OPTIONS Published by the Heinrich Böll Foundation in co-operation with Stiftung Wissenschaft und Politik Volker Perthes (ed.), Germany and the Middle East. Interests and Options, published by the Heinrich Böll Foundation in co-operation with Stiftung Wissenschaft und Politik First edition, Berlin 2002 © Heinrich-Böll-Stiftung; Stiftung Wissenschaft und Politik Design: push, Berlin Printing: Druckhaus Köthen ISBN 3-927760-42-0 Contact address: Heinrich Böll Foundation, Hackesche Höfe, Rosenthaler Straße 40/41, 10178 Berlin, Germany; Tel. +49 - 30 - 285 340; E-mail: [email protected]; Internet: www.boell.de CONTENTS Publisher’s Foreword 7 Editor’s Foreword 9 1. Hermann Gröhe, Christoph Moosbauer, Volker Perthes, Christian Sterzing Evenhanded, not neutral: Points of reference for a German Middle East policy 11 2. Christian Sterzing, Jörn Böhme German and European contributions to the Israeli-Palestinian peace process 29 3. Volker Perthes The advantages of complementarity: US and European policies towards the Middle East peace process 53 4. Andreas Reinicke German-Israeli relations 76 5. Volker Perthes “Barcelona” and the German role in the Mediterranean Partnership 90 6. Christoph Moosbauer Relations with the Persian Gulf states 108 7. Volker Perthes Relations to the Arab World 129 8. Volkmar Wenzel North Africa and the Middle East in German security policy 140 9. Christian Sterzing German arms exports: A policy caught between morality and national interest 172 10. Volker Perthes German economic interests and economic co-operation with the Middle East and North African countries 187 11. Hermann Gröhe Human rights and democracy as aims of German foreign policy in relation to the states of the MENA region 204 Appendix 219 List of contributors 223 PUBLISHER’S FOREWORD North Africa and the Middle East, our neighbours across the Mediterranean, are linked to the EU and thus to Germany as well. Their history, culture and politics have emerged from common roots. Against that background, German politics is faced with the challenge of contributing to the political, economic and social stability of the region. This involves both establishing an inde- pendent position and also making constructive contributions for inclusion within the framework of an overall European policy. In dealing with the conflict between Israel and the Palestin- ians, which has meanwhile become extremely violent, but is being carried out in a manner that lacks political perspectives, German foreign policy has earned recognition and trust from both sides. Although its intervention has resulted only in isolated successes that are in no way sustainable, that foundation should be continually fostered and expanded in order to make a contri- bution toward a resolution of the Middle East conflict and toward peaceful cooperation and development in the region. This publication is an attempt to sketch the outlines and positions of a German policy on the Middle East. Given the consequences of the terrorist attacks of Sept. 11, a threatening war against Iraq, and the extremely unstable situation and criti- cal developments throughout the region, it is urgently necessary to promote a political dialogue and a peaceful solution, which would prevent further escalation and a potential breakup of the region. The Green Party-affiliated Heinrich Böll Foundation, as an organization that works to promote societal democratization and participation of civil society in political and economic processes, and is actively committed to the promotion of human rights, dia- logue and equal coexistence, regards the situation as a particular challenge. Due to its social policy activities and its work with part- ners in the region, the Foundation perceives quite differentiated interests in terms of visions of German policy on the Middle East. The Foundation is thus striving to serve the interests expressed by 8 representatives of politics, industry and civil society in dialogue and exchange, as well as in support for democratic, social and ecological policies. Against this background, concrete plans were made to revise and update the German version of the book and publish it in English during a workshop discussion, which took place in Feb- ruary 2000 in Berlin and was attended by the editor and authors, as well as scholars and politicians from Germany and the region (Egypt, Israel and the Palestinian Autonomous areas). With the publication and distribution of the English version, the Founda- tion hopes to serve the widespread interest in the perspectives and strategies of German Middle East policy, and above all to provide an impetus for a sustainable dialogue between Germany and the region. In this, the focus is on spurring on a common debate and productive discussion with political and societal forc- es in the region, rather than on the “correctness” of the theses and statements included in the publication. We would like to expressly point out that the statements made in the articles reflect the personal opinions of the respective au- thors. They are not necessarily consistent with the views of the Foundation regarding German policy on the Middle East. We would like to express special thanks to Volker Perthes for the productive and successful co-operation. Barbara Unmüßig Member of executive board Heinrich Böll Foundation Bernd Asbach Head of Middle East department Heinrich Böll Foundation 8 EDITOR’S FOREWORD Is it possible to identify German interests in the Middle East? And what foreign policy options does Germany have in its deal- ing with the region? The authors of this book give a generally positive answer to both questions, both in a common introductory paper that sketches possible “guidelines” for German Middle East policies, and in a couple of individual chapters. All articles have been dis- cussed within the group. The responsibility for each individually signed chapter, however, rests solely with its respective author. This book contains the results of the work of a study group established at Stiftung Wissenschaft und Politik (SWP), the Ger- man Institute for International and Security Affairs, in Berlin. The group members – members of the German parliament rep- resenting different parties, diplomats, and academics – started to work on the project in spring 2000. A first German version of the book was published in summer 2001. Its content was discussed both in Germany and with colleagues from the re- gion and other countries. On the basis of these discussions and in the light of unfolding events – not least the attacks of 11 September 2001 and escalating violence in the Middle East – we decided to re-write and update the book in English. The aim of this undertaking is to trigger and enrich the debate in Germany, and between Germans and their international partners, about Germany and the Middle East and about what contribution, if any, can and should be expected from Germany in the region. This book would not have been possible without the sup- port of a number of persons. Bernd Asbach and Kirsten Maas from the Heinrich-Böll-Foundation encouraged us to proceed with this update and made its publication possible. André Bank co-ordinated the editing process during his internship at SWP. Michael Jones helped to make our English less “Germanic”. Ziad Abu Amr, Mark Heller and Nassif Hitti should be men- tioned in an exemplary function as colleagues from the region 10 who through their critical comments helped us to develop, re- consider or strengthen our ideas and argument. Berlin, August 2002 Volker Perthes Stiftung Wissenschaft und Politik, German Institute for International and Security Affairs, Berlin 10 1. Hermann Gröhe, Christoph Moosbauer, Volker Perthes, Christian Sterzing EVENHANDED, NOT NEUTRAL: POINTS OF REFERENCE FOR A GERMAN MIDDLE EAST POLICY All too often it has been claimed that German Middle East policy is non-existent and even impossible. It is maintained that at best there can be a German policy towards Israel, maybe a German policy towards Iran, and even possibly a German cultural policy towards the Arab world, Israel or Iran. It is true that Germany in the past has had no declared policy towards the so-called MENA region (i.e. the Middle East and North Africa). It is also true that, in the wake of the increasing harmonisation of European foreign policy, the scope for Germany and other EU countries to have their own, independent policies with respect to this region is limited. It is also true, however, that Germany does have economic, political and limited security interests of its own in and with re- spect to the region. These do not conflict with overall European interests. However they may differ in some respects from the interests of other EU member states, at least as far as the setting of priorities is concerned. In addition of course, Germany is deci- sively influential in shaping European policy. It should be easier to use this influence more constructively, if it is clear where one’s own interests lie. Our book is intended to help clarify what a German Middle East policy could be. In the past the Arab-Israeli conflict and Ger- many’s special relationship with Israel have made any discussion, let alone argument, on this subject difficult. Here we describe what we regard to be the key objectives of German and European policy with regard to the region as a whole (hereafter referred to as the Middle East) and with a series of proposals for action, seek to illustrate, how German policy could and should further these objectives. We hope that the book will spark a broader political debate, out of which the goals of German policy and the German perspective on European policy in the Middle East will crystallise. 12 13 In this sense our book will remain a work in progress. However it is an unambiguous plea for German and European policy on the Middle East to play a conscious and active role.