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Report | Doc. 12428 | 26 October 2010
Promoting parliamentary diplomacy
Committee on Political Affairs and Democracy
Summary
Parliamentary diplomacy and its methods often have results that are hard to achieve through other conventional channels. Constant contacts with parliaments abroad not only help members of parliament to share experiences but also foster understanding between political elites in the countries concerned.
The Assembly is invited to decide on a series of measures to enhance parliamentary diplomacy and recommend that national governments involve parliamentary representatives more extensively in their relations with the United Nations and other international institutions, and more generally in the international decision-making process.
A. Draft resolution
(open)1. The Parliamentary Assembly considers parliamentary
diplomacy as a complementary tool to traditional diplomacy. Participation
of parliamentarians in external affairs is today a crucial aspect
of international co-operation and of the development of democracy,
both in Europe and worldwide.
2. National parliaments are entitled to approve international
treaties before their formal ratification. But the power of parliaments
and parliamentarians should not be limited to that formal phase
of international relations. To be effective, the involvement of
parliamentarians needs a greater exchange of information and clearer
co-ordination with national governments.
3. Recent experience shows that parliamentarians are being asked
to monitor and participate in the activity of international institutions,
thus reinvigorating their democratic strength and enhancing public
support.
4. Parliamentary diplomacy and its methods often achieve results
that are hard to achieve through other conventional channels. Constant
contacts with parliaments abroad help to share experiences between members
of parliament and foster understanding between political elites
in the countries concerned. They also help to establish and build
up trusting relationships between individuals.
5. The Assembly recognises the positive contribution of dialogue
and co-operation among parliamentarians, which is the very essence
of parliamentary diplomacy, on easing inter-state tensions and finding
feasible solutions to complex problems, namely those in the field
of human rights, parliamentary democracy and the rule of law.
6. Without becoming diplomats themselves, parliamentarians should
play a greater role in order to:
6.1. promote
political pluralism and democratic parliamentary standards at home
and around the world;
6.2. familiarise themselves with transnational issues and the
work of international organisations;
6.3. contribute, in synergy with other actors, to the achievement
of results in various situations, such as the prevention and/or
resolution of conflicts, the improvement of human rights standards
in a certain region or country, the reduction of poverty and the
prevention of climate change through ecological balance.
7. The Assembly therefore invites:
7.1. national parliaments to:
7.1.1. encourage the role of speakers of parliament in foreign
relations, in particular as regards the promotion or the consolidation
of democratic parliamentary standards;
7.1.2. encourage the establishment of parliamentary friendship
and similar groups among national parliaments, in order to promote
the exchange of good practice, in particular in the parliamentary
and political field;
7.2. the parliaments of the member states of the Council of
Europe to ensure the pluralistic composition, in political and gender
terms, of friendship groups, parliamentary delegations carrying
out official visits abroad and delegations taking part in international
fora, assemblies or networks;
7.3. other parliamentary assemblies or networks to:
7.3.1. promote the establishment or
the further consolidation of international networks or associations
of parliamentarians;
7.3.2. promote itself as a model for other regional or international
parliamentary assemblies, in particular by recommending that membership
is made dependent on the pluralistic composition of delegations
and that the possibility of challenging credentials be introduced;
7.3.3. advocate a stronger position for parliamentary bodies
in the institutional framework of the organisation to which they
belong;
7.3.4. promote joint initiatives.
8. As regards its own work, the Assembly decides to:
8.1. ask the national delegations
to the Assembly to commit themselves to working for the implementation
of, and the follow-up to, Assembly resolutions;
8.2. put more emphasis on activities aimed at following up
and implementing its resolutions and recommendations;
8.3. demonstrate increased determination in addressing sensitive
issues, such as potential conflictual situations between member
states or within member states;
8.4. propose its good offices as a facilitator of dialogue
or a mediator in specific conflict situations.
9. Furthermore, the Assembly recommends that national governments
involve parliamentary representatives more extensively in their
relations with the United Nations and other international institutions, and
more generally in the international decision-making process.
B. Explanatory memorandum by Mr Mota Amaral, rapporteur
(open)1. Introduction
1. Traditionally, members of parliament are not directly
involved in diplomatic work and, regrettably, sometimes they are
even kept away from decisions on key foreign policy matters. By
way of example, I would like to refer to one important event in
recent years: only a few parliaments of the Council of Europe member states
were asked to express their position on the unilateral declaration
of independence by the Kosovo Assembly.
In the great majority of cases, those European governments which
recognised Kosovo as an independent state did so without consultation
of their citizens’ democratically elected representatives.
2. Of course, parliamentarians are involved in the discussion
of foreign policy issues through the work of their foreign affairs
committees and the organisation of general or specific foreign policy
debates. They can, therefore, challenge their governments’ decisions,
but the extent to which they contribute to the shaping of a country’s
foreign policy is still limited.
3. Opportunities for personal involvement in diplomatic activities
are rare, even if, in recent times, some parliamentarians have taken
part in diplomatic missions and have been appointed to high-profile
mediation roles in conflict or post-conflict situations. Similarly,
the political role that speakers of parliament can play in the context
of bilateral and multilateral relations remains largely unexplored.
4. What can be said with confidence, however, is that over the
last two decades the familiarity of national parliamentarians with
foreign issues has increased, thanks, inter
alia, to the rise in the number of international parliamentary
assemblies or inter-parliamentary groups and the broadening of the
scope for their activities. This positive trend goes hand in hand
with the process of globalisation and the transnational nature of
the main challenges in the world today.
5. This increased familiarity, however, has not yet translated
itself into a direct impact on foreign affairs. On the one hand,
this might be due to the reluctance of governments to make room
for an increased role of parliamentarians who, unlike government
officials and civil servants, are not bound to the government’s instructions
and could therefore convey diverging messages; on the other hand,
this is also due to the need to give further thought to the very
concept of parliamentary diplomacy, in order to transform it from
a theoretical idea into a number of concrete actions. This implies
defining:
- in which contexts it could be used;
- on which instruments it could rely;
- its objectives.
6. This reflection should take into account, and try to propose
remedies for, certain weaknesses regarding the parliamentarians’
involvement in foreign relations, namely:
- a lack of continuity for international activities. Parliamentarians are in a position to ensure this, given that they are engaged both on a national and international level and sometimes sit on more than one international parliamentary delegation;
- a lack of co-ordination and exchange of information amongst different parliamentary bodies. This problem becomes particularly relevant when one considers that the proliferation of international parliamentary structures increases the risk of overlapping and duplication in their work.
7. The present report aims to contribute to this effort of reflection,
based on my experience as a member and former Speaker of the Portuguese
Parliament and as a member of the Parliamentary Assembly of the Council
of Europe. The report is also based on the findings of the European
Conference of Presidents of Parliament (Tallinn, May 2006), one
of whose themes was “Bridge building through parliamentary diplomacy”. In
particular, I will try to:
- identify ways for an enhanced role of national parliaments and parliamentarians in foreign relations, as a complement to traditional diplomacy;
- recommend ways to reinforce the diplomatic role of our Parliamentary Assembly.
2. Useful definitions
8. Some basic definitions should be kept in mind:
- “Diplomacy”describes the conduct of international relations through the interaction of official representatives of states or international institutions. It encompasses a broad range of activities and approaches to exchanging information and negotiating agreements, which vary widely according to the actors and situations involved;
- “Preventive diplomacy”is the range of peaceful dispute-resolution approaches mentioned in Article 33 of the United Nations Charter: “negotiation, enquiry, mediation, conciliation, arbitration, judicial settlement, resort to regional agencies or arrangements, or other peaceful means” when applied before a dispute crosses the threshold into armed conflict;
- “Quiet diplomacy” is a practice describing an interstate or third-party engagement distinct from the traditional diplomacy of an interested entity. It is defined by confidentiality and discretion. The aim of quiet diplomacy is to create conditions in which parties feel comfortable to act, in particular allowing parties to evaluate positions and interests calmly, to weigh options and consider independent and impartial advice;
- “Dialogue” is a process through which parties engage with each other. It is not necessarily aimed at a precise objective but rather at a better mutual understanding;
- “Facilitation” describes third-party engagement which provides a forum, space and environment conducive to dispute settlement;
- “Mediation”is a voluntary and ad hoc tool for peaceful conflict prevention and resolution. The mediator must be perceived as neutral and must be accepted by the parties.
3. The national context
9. In democratic systems based on the division of powers,
parliaments conduct their foreign relations autonomously and in
respect of political pluralism.
3.1. Speakers of parliament
10. Speakers of parliament maintain an extensive network
of foreign relations with diplomatic representatives who are accredited
in the country, but also with other speakers of parliament and foreign parliamentary
delegations; they conduct or lead parliamentary visits to foreign
countries and participate in the work of international parliamentary
structures such as the Inter-Parliamentary Union and many others.
11. The extent to which speakers of parliament have latitude to
entertain these relations depends very much on national customs
and traditions. However, in general, it can be said that the speaker
is vested with the responsibility of representing parliament in
all high-level foreign contacts and that, in order to preserve the
non-partisan character of his or her role, the speaker is normally
accompanied by delegations composed of parliamentarians representing
the different political forces present in parliament.
3.2. Parliamentary friendship groups
12. The number of parliamentary friendship groups has
increased steadily over the past few years.
13. The purpose of these groups is to promote dialogue with the
parliamentary institutions of one or more other countries. To this
end, they seek to hold talks with politicians and other representatives
from their partner states to exchange information, debate various
topics and share experiences. Furthermore, the promotion of democratic
parliamentary structures, the strengthening of human rights, contributions
to the management of crises and parliamentary scrutiny are often
important elements in the groups’ work.
14. As a rule, friendship groups exist at every legislature and
their setting up must be authorised by the speaker or the bureau
of the parliament. Sometimes limits are introduced: for instance,
in France, parliamentary friendship groups are possible only if
three conditions are met: the foreign country must be a member of
the United Nations, must have a parliament and must have diplomatic
relations with France. However, it is possible to set up other kinds
of groups with countries or entities which do not satisfy these conditions.
In Portugal, the existence of a reciprocal group in the partner
state is essential.
15. Parliamentary groups are normally formed on a cross-party
basis. Joining a group reflects a parliamentarian’s special interest
in relations with the partner state or states concerned. The decision
to get involved in a particular parliamentary friendship group may
be prompted by existing personal links, a strong concern with a
particular aspect of foreign policy, the proximity of the member’s
constituency to the national border with the country in question
or demographic, economic and cultural ties between their constituency
and the partner state.
16. In the course of an electoral term, parliamentary friendship
groups are able to invite delegations of parliamentarians from partner
countries and send delegations to visit their colleagues, even if
limits can be placed on the number of visits. These visits help
to foster better reciprocal understanding as well as to further develop
existing contacts.
3.3. Participation of parliamentarians in foreign visits by representatives of the executive
17. In some countries, parliamentarians are often invited
to participate in official presidential or ministerial visits, according
to the functions which they have in parliament, such as chair or
member of the foreign affairs committee or of a relevant friendship
group.
4. The international context
18. Traditionally, bilateral exchange visits were mostly
protocol visits. Today, however, more and more meetings are organised
to allow parliamentarians of different countries to discuss issues
of common interest, either in the framework of an interparliamentary
structure or on an ad hoc basis.
4.1. The Inter-Parliamentary Union
19. The Inter-Parliamentary Union (IPU) was established
in 1889 as an association of individual parliamentarians and was
reformed over time to become an international organisation of parliaments
of sovereign states. Today it counts 153 members and eight associate
members.
20. The IPU is a centre for dialogue among legislators, constituting
a unique platform for observing political opinions and parliamentary
trends around the world.
21. Membership in the IPU is not submitted to any condition apart
from being the national parliament of a sovereign state: there is
no statutory requirement for such a parliament to have been elected
in a democratic fashion, or for IPU delegations to have a pluralist
or gender-balanced composition.
22. Although it has a privileged relationship with the United
Nations due to its global membership and the nature of the issues
it deals with, the IPU does not have any structural link with the
United Nations itself; it does not, therefore, exercise any oversight
on United Nations activities nor does it have any consultative function
in that organisation.
4.2. International parliamentary assemblies
23. Unlike the IPU, international parliamentary assemblies
are bodies or institutions belonging to international governmental
organisations which carry out specific tasks and interact in a structural
manner with other bodies of the organisation in question. This is
the case of the Western European Union, the Council of Europe, the
North Atlantic Treaty Organization and the Organization for Security
and Co-operation in Europe, for example. The complexity of their
internal functioning, their powers and the role that they play within
the organisation can vary considerably. At the end of the spectrum,
the European Parliament is directly elected by the citizens and
involved in the European Union decision-making process.
24. During the last few years, it has become common to include
an interparliamentary body in every new international organisation
or forum for co-operation. This is the case of the Euro-Mediterranean
Parliamentary Assembly for example. Moreover, a worldwide campaign
is under way for the establishment of a United Nations Parliamentary
Assembly.
4.3. International parliamentary networks
25. In the last decade, a number of international parliamentary
networks on specific issues have been set up in order to:
- facilitate dialogue amongst legislators from different countries;
- provide parliamentarians with technical information or put them in contact with experts;
- make available parliamentary resolutions, motions, questions and legislation from around the world;
- catalyse joint projects between parliaments.
26. The rise in the number of such structures has been seen by
many as having a direct link with the phenomenon of globalisation.
They cover issues such as conflict prevention and security, nuclear
proliferation and disarmament, poverty reduction, education and
many others.
27. These networks are intended to increase the capacity of parliamentarians
to have an impact at the domestic level, as they can make full use
of expertise developed abroad and translate it into better informed decisions
at national level. They also highlight the interest of international
institutions, such as UNESCO, to maintain close contact and dialogue
with members of national parliaments.
4.4. The Parliamentary Assembly of the Council of Europe
28. It should be mentioned that the first example of
parliamentary diplomacy – as the expression is understood today
– was the work of the Parliamentary Assembly in the 1950s on the
problem of the Sarre region.
29. At present there are many ways in which the Assembly is engaged
in parliamentary diplomacy:
- its Bureau guides the external relations of the Assembly and its President conducts high-level visits and has complete autonomy in deciding his or her agenda and priorities;
- it organises the European Conferences of Presidents of Parliament, which are composed of speakers and presidents of the parliaments of the member states of the Council of Europe, parliaments enjoying observer status with the Assembly and international parliamentary assemblies. Parliaments from central Asia and the Maghreb countries are also invited to attend;
- it provides parliamentary co-operation and assistance programmes aimed at increasing the efficiency of the functioning and thus also the political role of parliaments, as well as providing targeted capacity building for parliamentarians. Such programmes have, for instance, provided assistance to the Serbian and Montenegrin parliaments in creating effective parliamentary structures. A co-operation and assistance programme is currently in process with the Moldovan Parliament;
- rapporteurs conduct field visits to collect information which forms the basis of Assembly reports, resolutions and recommendations. In doing so, they establish high-level contacts, not only with other parliamentarians but also with representatives of the executive, the judiciary, NGOs and civil society in the countries they visit. Their work focuses on problematic – sometimes urgent – issues affecting one or several states. Their aim is to propose solutions and, often, to mobilise the legal and technical expertise of the Council of Europe’s intergovernmental sector in order to help states overcome difficult situations;
- the monitoring procedure is a specific feature of our Assembly and is the most comprehensive and thorough way for it to follow developments in some member states. The co-rapporteurs engage in a political process with the authorities of the country concerned, in order to accompany and facilitate its progress towards the implementation of Council of Europe standards and the fulfilment of its commitments. They have also often been instrumental in the handling of crisis situations such as, the recent post-electoral crises in Armenia and Moldova;
- the Political Affairs Committee follows in a similar way, and with the same objectives, developments in Kosovo, as well as in non-member states (for instance in Belarus);
- the Presidential Committee’s intervention to solve the political crisis in Albania at the beginning of 2010 is an example of yet another way in which our Assembly engages in parliamentary diplomacy;
- all committees organise exchanges of views involving external counterparts and, within their mandate, can set up ad hoc sub-committees or other structures. As examples, I would like to mention, as regards the Political Affairs Committee, the Sub-Committee on the Middle East, which brings together a delegation of the Knesset and a delegation of the Palestinian Legislative Council, as well as the Sub-Committee on Conflict Prevention through Dialogue and Reconciliation (see below).
5. Priorities for the diplomatic work of the Parliamentary Assembly of the Council of Europe
30. All international parliamentary assemblies represent
in themselves an opportunity for dialogue, as they enable legislators
from different countries to meet and discuss issues that might be
of relevance at domestic, bilateral or multilateral levels.
5.1. Promoting the strengthening of parliamentary institutions
31. In the landscape of international parliamentary assemblies,
the Parliamentary Assembly occupies a special position for the following
reasons:
- it is the only international assembly whose rules of procedure require national delegations to reflect the pluralistic composition of their national parliaments in terms of both politics and gender;
- it works according to precise and comprehensive rules of procedures;
- it tends to put an emphasis on the political affiliation of its members (through political groups) rather than their nationality. Political affiliation is taken into consideration also as regards the distribution of tasks such as committee chairmanships and rapporteurships.
32. These features are important strengths. In my opinion, the
Assembly should rely on them and be more proactive in promoting
itself as a model. It is not only a gathering of legislators – as
there are many others – but a gathering of democratically elected
legislators, reflecting a plurality of views and working according
to democratic rules. Its first and foremost objective in the area
of parliamentary diplomacy should be the consolidation of the standards
of parliamentary democracy amongst its own members and the strengthening of
parliamentary institutions in non-member states.
33. For this reason, the Assembly should put more emphasis on
co-operation activities with national parliaments, in Europe and
beyond, in order to disseminate models of good practice and enhance
democratic standards. Activities such as the Forum for the Future
of Democracy and the periodic debates on democracy should also be
central to the Assembly’s work, in addition to activities aimed
at improving electoral legislation and practice and the confidence
of the electorate in elections and the political system, beyond
the current activities carried out in the field of election observation.
The new “Partner for democracy” status should be an opportunity
for further expanding the outreach capacity of the Assembly in order
to promote the strengthening of the role of parliaments in countries
which are not mature democracies.
5.2. Devoting more resources to ensuring the implementation of its decisions
34. It seems to me that, at the moment, the Assembly
and its structures devote more energy and resources to preparing
and adopting resolutions and recommendations than to working for
their implementation. In my opinion, the implementation of Assembly
decisions should not be left exclusively to the will of the recipients
but should be followed up by the committees, sub-committees or rapporteurs
that should engage in a continuous political process with the relevant
authorities in order to achieve concrete results.
35. At the moment, by its very nature, the Monitoring Committee
is the only committee where the co-rapporteurs are systematically
engaged in a continuous dialogue with national counterparts. My
proposal is that, when establishing its work programme, each Assembly
committee should decide which reports are a priority and set aside
resources to allow for follow-up after the adoption of a relevant
resolution or recommendation by the Assembly. This follow-up work
could take the form of meetings with national authorities to monitor
the progress made towards the implementation of Assembly decisions,
in particular at parliamentary level; missions by former rapporteurs
or committee chairs and the organisation of meetings involving Council of
Europe or other experts who could provide advice to the national
authorities on how to implement the relevant decisions, etc.
36. At the same time, there should be a clear responsibility placed
on Parliamentary Assembly national delegations to contribute at
national level to the implementation of, and the follow-up to, texts
adopted by the Assembly.
5.3. Playing a role in conflict prevention, dialogue facilitation and mediation
37. The escalation of the conflict between Georgia and
Russia into an open war, in August 2008, was an alarm bell for the
Assembly: its members realised once again that peace among Council
of Europe member states could not be taken for granted and that
the Council of Europe had been unable to anticipate the escalation
of tensions into violence, let alone prevent it.
38. It was, therefore, in October 2008, in its Resolution 1633 (2008) on the consequences of the war between Georgia and Russia
that, for the first time, the Assembly expressed the resolve to
“play a role in the field of conflict prevention and resolution”.
The reasoning behind this decision was that “without peace there cannot
be genuine respect for democracy, human rights and the rule of law”.
39. Amongst other things, as regards the general question of minimising
the risks of further outbreaks of violence involving Council of
Europe member states, the Assembly decided to study mechanisms by
which it could conduct parliamentary diplomacy in the context of
frozen conflicts in Europe and other situations liable to undermine
peace and stability.
40. The Political Affairs Committee was given the main responsibility
for dealing with these matters. It did so by setting up the initial
ad hoc and then permanent Sub-Committee on Conflict Prevention through
Dialogue and Reconciliation, which had a dual mandate:
- formulating proposals for the organisation of the international gathering, the “Forum on early warning in conflict prevention”, which took place in Strasbourg on 24 and 25 September 2009;
- addressing issues relating to regional stability that have an impact on Council of Europe member and observer states. In this context it organised a hearing on peace building in the countries of the former Yugoslavia (Belgrade, 6 September 2010).
41. The Forum of September 3009 highlighted the scope for a role
of the Assembly and the Council of Europe in the field of conflict
prevention and regretted that, all too often, the Assembly fails
to be proactive; shies away from direct involvement at an early
stage and raises its voice only after a crisis or a conflict has broken
out.
42. This leads me to three main points:
- the Assembly should have the political courage to address situations that have a potential to escalate into conflicts. In particular, the Political Affairs Committee, on the basis of the work of its Sub-Committee on Conflict Prevention through Dialogue and Reconciliation, should put on its agenda potentially conflictual situations such as, currently, Moldova, the Crimea, and the Northern and Southern Caucasus;
- the Assembly should have the political courage to offer its good services to facilitate dialogue between its member states, at the parliamentary level or between domestic actors, before conflicts become violent, through the setting up of a structured political dialogue;
- once a conflict has broken out, Assembly institutional figures should make themselves available to act as mediators, provided that this is accepted by the parties to the conflict.
43. In addition, the Assembly might wish to consider carefully
its media strategy, privileging a case-by-case approach: there is
a trade-off between the need to ensure visibility in the media and
the need to be diplomatically effective; on many occasions, quiet
diplomacy can be more effective than a high-profile debate in order
to achieve political results.