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DRAFT REPORT (2023/2050(INI))

On a European Parliament recommendation to the Council, Commission and the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy on the role of preventive diplomacy in tackling frozen conflicts around the world – missed opportunity or change for the future

AFET-PR-752799

Committee on Foreign Affairs · Rapporteur: Željana Zovko

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A draft report by the Committee on Foreign Affairs proposes a European Parliament recommendation to the Council, Commission and the Vice-President/High Representative on preventive diplomacy in frozen conflicts. It asks the EU to adapt conflict prevention tools to climate change, new technologies and food scarcity, and to improve understanding of local and cultural contexts. It calls for a more proactive EU conflict Early Warning System, better assessment and parliamentary scrutiny of EU special representatives and envoys, and confirmation of their appointment after a positive assessment by Parliament's Committee on Foreign Affairs. It draws lessons from EU action in Africa, the Western Balkans, Nagorno-Karabakh, Cyprus, Northern Ireland, Afghanistan and Ukraine, and asks for a mechanism to verify agreements between Serbia and Kosovo. It urges stronger partnerships with the UN, OSCE, African Union and ASEAN, and greater EU strategic autonomy, unity and communication in conflict prevention.

Committee position. The rapporteur proposes a draft recommendation asking the Council, Commission and Vice-President/High Representative to strengthen EU preventive diplomacy in six areas: local and cultural context, the Early Warning System, special representatives and envoys, lessons from past conflicts, partnerships, and strategic autonomy.

Key points

  1. Recommends that the Council, Commission and Vice-President/High Representative acknowledge the link between EU internal and external security and adapt conflict prevention tools to climate change, new technologies and food scarcity.
  2. Calls on member states to step away from individual interests in external relations and build joint capacity in conflict prevention and mediation.
  3. Asks for better understanding of local, historical, political, social and cultural contexts, and for state-building assistance tailored to each country and updated as conditions change.
  4. Wants the EU conflict Early Warning System to be proactive, based on forward-looking risk analysis, with EU delegations involved in monitoring and regular assessment of results.
  5. Recommends considering cultural and historical background when appointing special representatives and envoys, assessing their initiatives, and providing Parliament with regular reports on their activities.
  6. Proposes that appointments of EU special representatives, special envoys and ambassadors be confirmed only after a positive assessment by Parliament's Committee on Foreign Affairs.
  7. Calls for lessons to be drawn from EU action in Africa, the Western Balkans, Nagorno-Karabakh, Cyprus, Northern Ireland, Afghanistan and Ukraine, and for avoiding premature suspension of EU missions such as in Mali.
  8. Asks for a coordinated EU and member state approach in conflict prevention, continuous analysis of crisis regions, and assessment of what was lacking in Bosnia and Herzegovina.
  9. Requests a mechanism to verify implementation of all agreements between Serbia and Kosovo and periodic reporting to Parliament to ease tensions and overcome the stalemate.
  10. Urges stronger partnerships and coordination with the UN, OSCE, African Union and ASEAN, including joint early warning, conflict prevention and mediation, and structured information exchanges.
  11. Calls for the EU to take leading positions at the UN in proportion to its contributions, which cover 30 % of the organisation's costs and 33 % of UN peacekeeping expenses.
  12. Recommends enhancing EU strategic autonomy, speaking with one voice, adopting an integrated approach combining humanitarian, development, peacebuilding, security and diplomatic action, and stepping up communication efforts.

Who is affected

  • EU member states: asked to set aside individual interests and build joint conflict prevention capacity.
  • EU special representatives and envoys: subject to assessments, reporting duties and confirmation by Parliament's Committee on Foreign Affairs.
  • European External Action Service staff: to receive training on local contexts and contribute to the Early Warning System.
  • Serbia and Kosovo: a mechanism would verify implementation of agreements between them.
  • International partners such as the UN, OSCE, African Union and ASEAN: targeted for stronger coordination and information exchange.

Figures and deadlines

  • 30 % of the UN's costs covered by EU contributions
  • 33 % of the expenses for UN peacekeeping missions covered by EU contributions
  • 19 September 2023 escalation in Nagorno-Karabakh
  • nine EU special representatives appointed for different conflict regions

Legal basis: Treaty on European Union and Treaty on the Functioning of the European Union