Minister of Foreign Affairs Thorbjørn Jagland

On Norway and the European Security and Defence Policy (ESDP)

(Translation from the Norwegian text)

The Storting, 9 June 2000

Madam President,

I am grateful to be given this opportunity to describe the EU’s work on the European Security and Defence Policy (ESDP) and the Government’s work on the issue to date.

Europe today is considerably different from the Europe of only a few years ago. EU enlargement towards the east and south-east will help to eliminate the previous dividing lines between the east and west of Europe. Cooperation within the EU is becoming deeper and more comprehensive. Europe is undergoing a process of radical change, and this creates new challenges for Norway.

The Government therefore intends to pursue a pro-active Europe policy. We will stress the opportunities provided by the new framework, and not merely focus on the problems. Norway shares the responsibility for developments in Europe. We wish to make a constructive contribution and participate in a meaningful way. Passive adaptation is not good enough.

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One of the most dynamic processes in the EU cooperation at present, is the development of the European Security and Defence Policy (ESDP). This also affects fundamental Norwegian interests.

It is important that the countries of Europe take greater responsibility for peace and security in Europe. Norway wishes to participate. We are ready to contribute civil and military resources. We want Norway to be linked as closely as possible to the new EU cooperation.

Our experience in the Balkans over the last 10 years has shown that the European countries’ ability to deal with crisis management is not good enough. The British-French initiative at the meeting in St. Malo 18 months ago created a new drive in the EU cooperation on the security and defence policy. The starting point was a wish to develop a more effective and credible foreign and security policy and to strengthen European capabilities for crisis management. Last year’s summits – NATO’s in Washington and the EU’s in Cologne and Helsinki – have provided a basis for strengthening European security and defence generally, with a special emphasis on crisis management. In Helsinki, the EU countries set as a joint goal that by 2003 they should be able to deploy a force of 50 000 to 60 000 persons within 60 days, and sustain this for at least one year.

The task of this force would be crisis management, the so-called Petersberg tasks. The idea is not to take over NATO’s tasks as they were defined at the Washington summit last year. However, the Petersberg tasks, which include rescue operations and peace-keeping tasks, may require more resources than the 15 EU members can mobilize by themselves. This is why the EU wishes to have the option of using NATO resources.

Madam President,

The EU states view the ESDP as an important new project designed to deepen and widen cooperation within the EU. The WEU, which until now has been the body used by European countries for cooperation on defence and security issues, will be phased out as the EU takes over these tasks and a completely new form of cooperation is established between NATO and the EU. Non-member countries must find arrangements for linking up with this, but cannot expect to be affiliated as closely as member states.

As I understand the views of the Storting, there is broad consensus on the following:

• Norwegian support for strengthening the European capability for crisis management,
• the need to develop the ESDP in close cooperation between the EU and NATO, and
• that Norway should be linked as closely as possible to the new EU cooperation.

This broad consensus is valuable in our efforts to ensure the closest possible Norwegian links to the process on the basis of our ability to contribute.

I am confident that Norway can make a valuable contribution here, regardless of whether the EU chooses to make use of NATO resources or decides that they are not needed. I would like to remind you that the Storting has recently agreed that Norway is to establish an armed forces task force of about 3 500 personnel for international operations. This force will in its entirety be part of the regular defence structure and will be declared available to all relevant international force registers. This will be relevant for EU-led operations.

Norway has a long tradition of participation in international crisis management. We have made substantial contributions for many years. More than 60 000 Norwegians have taken part in UN operations, in for example the Middle East, Africa and former Yugoslavia. Currently there are over 1200 in the international force in Kosovo.

In addition to military resources, we have made sizeable contributions in the civilian and humanitarian sphere and in efforts to resolve conflicts by diplomatic and political means. We have also made substantial economic contributions to peace and reconstruction efforts. Our emergency preparedness arrangements for the civil aspects of crisis management will be extremely valuable for the kind of conflicts and crises we must be prepared to deal with in the time to come.

Since it took office, this Government has been working actively vis-à-vis the EU, its member states and NATO. We have stressed Norway’s positive attitude to the ESDP process and underlined our willingness to contribute both military and civilian resources. We have also emphasised the need to develop good consultation and cooperation arrangements between NATO and the EU, and the importance of achieving satisfactory arrangements for Norway.

We have now reached a new and important stage. Since the Helsinki summit, the EU’s work on the ESDP has focused particularly on the EU’s institutional relations with NATO and on its ties to countries outside the EU. Both of these matters are of great importance to Norway. I will now briefly describe what progress we expect on these issues at the EU summit in Feira in Portugal on 19-20 June, and then explain the Government’s views on the decisions that are expected to be taken.

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The Portuguese Presidency is expected to submit a report on work on the European Security and Defence Policy (ESDP) to the summit. The report will discuss:

• the development of the Headline Goal
• arrangements for cooperation with NATO
• arrangements for cooperation with third countries
• development of the capability for civil crisis management
• the issue of treaty amendments.

There is now agreement within the EU on important questions as regards the framework for cooperation between NATO and the EU and the arrangements third countries. The documents have so far been approved at foreign minister level and will be discussed again at the EU ministerial meeting on 13 June with a view to reaching a decision at the summit.

As regards the relations between the EU and NATO, the EU is expected to suggest that four joint working groups should be set up to discuss the following:

• the content of a security agreement between NATO and the EU;
• cooperation on realization of the Headline Goal including defence planning;
• procedures for EU access to NATO resources; and
• proposal for permanent links between NATO and the EU.

These groups could form a basis for permanent consultation and cooperation arrangements. EU’s objective is to have these arrangements in place after the Nice summit in December. It has not yet been decided when the first meetings will be held and at what level, or what procedures will be followed for the formulation and adoption of recommendations.

The cooperation arrangements proposed by the EU were a central issue at the meeting of NATO foreign ministers in Florence in May. The proposals met a positive response and there was broad agreement that efforts should be made to step up the pace within NATO. The discussions also reaffirmed that there is broad agreement on the Alliance’s positive attitude to the ESDP and the importance of active support from NATO for the EU.

In my statement at the NATO meeting, I stressed that the new Norwegian government is firmly behind the ESDP. I underlined that NATO must support the realization of the EU’s Headline Goal and put together a generous assistance package. Work should be continued in parallel within NATO without waiting until the EU has completed its deliberations on all the issues involved. I pointed out that the EU must now define its need for assistance from NATO. I stated that consultations on crisis management between NATO and the four non-Alliance EU countries, including Sweden and Finland, are also important. These four countries must be invited to participate in NATO’s work on crisis management and support for EU-led operations to a greater extent than they can today as members of the Partnership for Peace.

We have maintained close contact with the EU Member states to muster support for sound EU arrangements with NATO and with the six non-EU NATO countries. I have discussed these issues with colleagues from the EU member states, not least the Nordic countries, and with EU High Representative Javier Solana and EU Commissioner Chris Patten. During these discussions, we have underlined our support for the ESDP and made it clear that we want to contribute resources and expertise to EU-led operations. This is why we are emphasizing the importance of good cooperation arrangements. We have stressed that this is a way of ensuring that our contribution is relevant and of enabling us to make rapid decisions on participation in EU-led operations. I feel there has been general sympathy for these views.

I expect the EU summit to decide to establish an arrangement to facilitate dialogue, consultations and cooperation with the 13 candidate countries, and Norway and Iceland. This is the so-called 15+15 framework, which is the larger, more inclusive structure. At the same time the EU has to a certain extent accepted our argument that particularly close cooperation is needed with the six non-EU NATO countries in Europe (Poland, Hungary, the Czech Republic, Iceland, Turkey and Norway). A separate 15+6 format for contact and consultation is therefore planned within the 15+15 framework. At the same time the EU has made it clear that there are limits to what countries outside the EU can expect to achieve above and beyond what has now been proposed. It has also been strongly emphasized that the autonomy of the EU in decision-making must be upheld and that only EU member states will take part.

The EU is expected to propose that in the interim phase (which will probably last until the end of the year), consultations will be held with the 15 countries about the implementation of the EU Headline Goals and the contribution of non-members in this context. In this period the EU is expected to propose:

• at least two meetings in the EU+15 structure, one of which will be at ministerial level, and
• at least two meetings in the EU+6 format, one of which will be at ministerial level.

In the permanent phase (which could be from the beginning of next year), cooperation will be divided into a routine phase and an operative phase. In the routine phase, meetings will be held on topics related to security and defence policy, with special emphasis on military crisis management capability. In principle, this answers our call for a broad-based agenda for consultations. The following meetings are planned:

• regular meetings in the EU+15 structure,
• meetings at least twice in each EU presidency in the EU+6 format, and
• ministerial meetings as necessary based on experience from the interim period.

In the operative phase, the dialogue will be intensified when crisis management operations are being planned or carried out. The six NATO countries have a right to take part if NATO resources are deployed, and they may be invited to take part in operations that do not draw on Alliance resources. The decision to launch an operation will be taken by the EU Council. Non-EU countries that confirm their participation by deploying substantial military forces will have the same rights and obligations as participating EU Member states in the day-to-day management of the operation. In this context, participating non-EU countries will exert influence through an ad hoc steering committee for the operation. This committee will have the day-to-day responsibility for the operation. However, the EU Council or the Political and Security Committee (PSC) will have the responsibility for the overall strategic direction and political control of the operation. In the latter context, participation is open to EU Member states only.

An additional point I will add here is that on 22 May, the EU foreign ministers decided to establish an advisory, coordinating committee for the civil dimension of crisis management. In the time ahead, the committee will be looking at how cooperation with non-EU countries and international organizations can best be organized. In the Government’s view, it is important to participate in this area as well, especially given Norway’s strong involvement in civil crisis management.

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Madam President,

The plans as they stand today mean that there will be several links between Norway and the ESDP. The institutional cooperation between NATO and the EU will be important for us. We will of course be participating fully within NATO and it is here our potential for exerting influence will be greatest. In addition, we will be taking part in the meetings in the 15+15 framework and the 15+6 format. Here we will have some opportunity to exert influence before EU decisions are taken in crisis situations and to take part in general discussions about the ESDP. However, the most important work will be done by EU bodies. In crisis situations, we will have the opportunity to take part in the day-to-day leadership of an operation through the ad hoc steering committee of contributing countries. However, as I said, the EU will have the political control of and strategic direction of the operation.

The agreement in the EU on the framework for relations with NATO is a positive development. It means that the Alliance can now proceed with its part of the work. We must expect, however, that implementing the proposed arrangements will be complicated and time-consuming. Norway will play a pro-active role in the establishment of the four working groups that the EU is expected to propose. It is especially important that the work on the security agreement between NATO and the EU should begin soon. This agreement will be the cornerstone of the practical military and security policy cooperation. NATO must also clarify a number of questions relating to the force generating conference that the EU is planning to hold in November, including the specific terms of EU access to NATO resources. Norway is interested in the possibility of participating in multinational forces that will be made available in the context of the Headline Goal.

Our efforts to ensure good relations with the EU for non-members have met with difficulties, but in the Government’s view the outcome shows that the EU is willing to listen to our arguments, although we would have liked an even more comprehensive arrangement. It has been clear all the time, however, that countries outside the EU cannot be affiliated as closely as full members.

We have worked very hard to obtain a breakthrough for the principle of separate 15+6 meetings and later for a reasonable number of meetings, including some at ministerial level. In this effort we have been helped by several EU countries.

I must emphasize much remains to be clarified as regards the substance of the 15+6 format. This applies to the agenda of the meetings, the level, including the number of meetings at political level in the 15+6 format, and the relations between the six and the EU’s military committee and military staff. We will take part in the ad hoc steering committee for operations when we are a contributing country, but we have no guarantee that this committee will have sufficient influence over the operations as long as the final authority remains within the EU.

The solutions that are now being outlined for our participation are therefore not optimal. Ensuring that the content of the 15+15 and 15+6 arrangements is satisfactory will be a great challenge. As I have pointed out in other contexts, we will naturally not have the same influence as the EU member states. These countries have strongly emphasized that the EU’s autonomy in decision-making must be respected, and have underlined that countries outside the EU cannot expect to be affiliated as closely as member states. The EU member states have been strongly opposed to continuing the WEU arrangements. They have pointed out that the WEU has not functioned as it should and that as an institution the EU is substantially different from the WEU. As a non-member of the EU we can only take note of this.

On the other hand, I still consider that we have opportunities to influence the specific content of the arrangements within the framework for the cooperation that is now being decided.

The Government attaches great importance to regular consultations and contact with the other five NATO countries involved. To this end I have invited these countries together with the EU High Representative Javier Solana to a meeting after the EU summit. At the meeting, which will probably be held in Brussels, Mr. Solana will inform us of the outcome of the summit. This will give the six countries an opportunity to discuss their further approach to the process.

In the last few months significant progress has been made in the EU’s work on the ESDP. Although we would have liked better 15+6 arrangements, the Government considers that the best approach will be to maintain a constructive attitude. My impression is that the decisions being prepared by the EU will allow the cooperation to be practised in a flexible way. The challenge will be to make use of this flexibility to create satisfactory arrangements.

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We will continue to play a proactive role. We will have regular contact with the EU, the EU and NATO member states, and the other five allied non-EU members. We will make active efforts in to speed up NATO’s work in support of the EU. And we will seek actively to ensure that our consultation arrangements with the EU are as satisfactory as possible.

Our goal is together with the other European countries to develop the ESDP in such a way that Europe is not decoupled from the USA. It is essential to retain strong transatlantic ties while at the same time developing a separate, viable European security and defence policy cooperation. I feel we are on the right track.

Madam President,

We must maintain a holistic perspective on what is happening in Europe. The development of European security and defence must also be viewed in the context of the other major processes taking place in the EU, such as Economic and Monetary Union and EU enlargement. Together these processes are creating fundamental changes in Europe. Our part of the world is no longer just a geographical entity, it is also in the process of becoming a political one, with its own identity. And the EU is the driving force behind this development.

Norway must find arrangements vis-à-vis the EU based on the fact that we are not a member. The referendum of 1994 must be respected. At the same time the Government must make it clear that this means we cannot have full influence over the decisions made in the EU. In an ever increasing number of areas we have to agree to and implement decisions taken by others.

It is therefore essential that Norway pursues a pro-active Europe policy. This will provide more opportunities for exerting influence than a passive and sometimes negative attitude to the EU.

We can see clearly how important this is when we consider security and defence policy. By offering to take part in civil and military crisis management in the EU and by being involved in the reconstruction efforts in the Balkans, as we are doing through the Stability Pact for South Eastern Europe, Norway will be able to exert more influence than it would normally be able to do as a non-member of the EU.