GOVERNMENT RESPONSE TO THE HOUSE OF LORDS SELECT COMMITTEE ON INTERNATIONAL RELATIONS REPORT: THE UK AND THE FUTURE OF THE WESTERN BALKANS The Government welcomes the House of Lords Select Committee on International Relations report The UK and the future of the Western Balkans published on 10 January 2018. This report sets out the Government s response to each of the Committee s conclusions and recommendations. The Committee s text is in bold and the Government s response is in plain text. Paragraph numbers refer to the Committee s report. Page 1 of 14
Impact of Brexit on the UK in the region 1. The UK does not exert its influence only through the EU. We are concerned that the UK s role in the region could be negatively affected by Brexit. We believe that the UK is still well placed particularly in its role as a security provider to play a valuable role in promoting democracy, the rule of law and prosperity in the Western Balkan countries and in preventing an outbreak of violence or war. (Paragraph 20) 2. Giving effect to the intentions the Government has expressed in its Brexit negotiating papers and in evidence to us will depend largely on the cooperation of the remaining 27 EU Member States. The Government s expressions of commitment will need to be matched by new ways of working with the EU and bilateral partners after Brexit. (Paragraph 21) As the Prime Minister made clear in her speech in Munich on 17 February 2018, as we leave the EU and forge a new path for ourselves in the world, the UK is just as committed to Europe s security in the future as we have been in the past. The Western Balkans has been consistently cited as a priority region in that context. The UK commitment to the region is long-standing, as evidenced by the UK s military role in the conflicts in the Western Balkans in the 1990 s, and it will endure beyond our departure from the EU. Regional fragilities, direct threats to the UK and the presence of malign influences in the Western Balkans means that the region will remain central to UK interests and European security. The Government will continue to work with international partners, including, once we leave the EU, the remaining 27 EU member states and EU institutions, to ensure that the Western Balkans becomes a stable, secure, rules-based and ultimately prosperous region. This includes through our membership of the UN Security Council, NATO, the OSCE, the Peace Implementation Council in Bosnia and Herzegovina, and our military contribution to EUFOR, KFOR, EULEX and NATO s Advisory and Liaison Team to Kosovo s Security Force. As a member of the Berlin Process, we are committed to seeing through initiatives launched at the Western Balkans Summit in London in 2018. This will require new ways of working but we are confident that the UK s expertise, long-standing relationships with the region and increasing bilateral programme and presence within it, mean that we will remain well placed to influence, bilaterally, multilaterally and through ad-hoc joint initiatives. Page 2 of 14
Regional stability 3. The region still suffers from the legacy of the wars of the 1990s. Some political leaders are pursuing the aims of those wars by different, political and diplomatic means including calls for redrawing national borders and secessionism. Any such act would be regressive, dangerous and destabilising for the region. Progress cannot be taken for granted. Without sustained, coordinated and consistent engagement from the region s international partners there is a risk of the progress made in the region towards establishing functioning democracies and the rule of law stagnating or going into reverse. Such engagement must take a regional view. We therefore welcome the Government s decision to host the Western Balkans Summit in 2018. (Paragraph 30) 4. We would urge the Government to use the occasion of the Western Balkans Summit to set out in detail, and for a substantial period ahead, the contribution that Britain is prepared to make, in partnership with the EU, to support stability, democracy, the rule of law and prosperity in the Western Balkans. This initiative, coming at an important stage of the Brexit negotiations, would demonstrate that the Government is indeed not leaving Europe when it leaves the EU. (Paragraph 31) The Government agrees with the Committee that the legacy of the conflicts of the 1990s still overshadows the present, that progress in the region cannot be taken for granted, and that continued engagement is needed by the UK and our international partners The UK s hosting of the fifth Berlin Process Western Balkans Summit in July 2018 will be a visible manifestation of our continued engagement, and of our enduring commitment to the stability and security of the region and Europe as a whole. The Western Balkans Summit will bring renewed focus to strengthening security cooperation to address common threats like serious and organised crime, terrorism and corruption. It will focus in particular on youth unemployment and skills training, and digital and creative industries and entrepreneurship. It will also look to make progress on legacy issues, such as Missing Persons and bilateral disputes. Our goals for the Western Balkans Summit fit with our long-term strategic priorities for the region and a multi-year programme that seeks to support stability, democracy and the rule of law and improve security, governance and the business environment in the region. Page 3 of 14
Euro Atlantic integration NATO 5. NATO membership and cooperation could enhance the peace and stability of the region. We agree with the Government s continuing support for the membership ambitions of Bosnia and Herzegovina and Macedonia. Providing they meet the requirements for membership, their accession would be a welcome step towards greater stability in the region. (Paragraph 42) 6. The Government should support measures to help Macedonia join NATO, with or without a solution to the name issue. (Paragraph 43) The Government is a strong supporter of the Euro-Atlantic aspirations of the region, including those countries that wish to join NATO. We agree that, providing Bosnia and Herzegovina and Macedonia meet the requirements for NATO membership, their accession would be a welcome step towards greater stability in the Balkans. The Government will continue to support efforts by Athens and Skopje to resolve the Name Issue, which offers Macedonia a route towards NATO membership. Resolution would bring many other significant benefits for Macedonia and Greece. The Government welcomes Macedonia s efforts to improve the independence of state institutions, rule of law and democratic accountability. The Government encourages Macedonia to continue progress in these fields ahead of any invitation to join NATO. The Government supports the Macedonian Ministry of Defence reform plans, and its aspiration to increase defence spending towards the minimum expected of NATO members. To this end the Government is providing assistance to Macedonia s Ministry of Defence as it undertakes a strategic defence review. Page 4 of 14
EU accession 7. It is concerning that support for EU membership in the Western Balkans has weakened. Statements by senior figures in the EU such as the President of the Commission postponing accession to some distant date in the future are not helpful. This is not in the UK s interests as EU membership is the most reliable path for Western Balkan countries to achieve security, stability and prosperity. Post-Brexit the UK must continue wholeheartedly to support the accession ambitions of Western Balkan countries. (Paragraph 60) 8. The UK remains well-placed to promote the values and institutional standards EU membership requires. This must done in concert with the EU and bilaterally. The Government must not allow our leaving the EU to be presented as a rejection of those values and standards. It is important that the UK and EU do not allow themselves to be played off against one another by local actors with different agendas to our own. (Paragraph 61) 9. Although the journey towards membership may be important in its own right, genuine progress to combat corruption, embed the rule of law, ensure freedom of expression and of the press, and achieve other reforms necessary for EU membership must be made. Outside the EU but remaining a champion for accession, the UK should be a critical friend of countries in the region. The Government should speak out when countries in the region fall short of the values and standards required and use its influence to ensure shortcomings are recognised. (Paragraph 62) The Government has actively reassured regional and European partners that the UK remains committed to the region and its Euro-Atlantic future. The UK wants a strong, stable and prosperous neighbourhood, and we remain of the view that the EU accession process is important to delivering security, stability and prosperity. We welcome the European Commission s recent Western Balkans Strategy s focus on the need for the region to do more to address the rule of law, promote good governance, tackle corruption and organised crime and make progress on legacy issues. We continue to support countries of the region that are committed to the accession process in meeting the necessary requirements. As and when candidate countries have met the requirements for accession in full, it will be for those countries and EU members at the time to decide on membership. Our commitment to the Euro-Atlantic future of the region can also be seen through our decision to host the Western Balkans Summit in July as part of the Berlin Process, which seeks to support the EU enlargement aspirations of the region. The EU Commission s six new flagship initiatives coincide closely with our own priorities for the London Summit in 2018. Page 5 of 14
Our enduring commitment will continue to be visible through our engagement, both bilaterally and through cooperation with other donors, including the EU, underpinned by multi-year programme funding. We spend over 27 million in technical assistance and from 2018/19 our spend will increase to almost 40 million. Much of our assistance supports stability, increased security and the implementation of reforms necessary for the accession process and long term prosperity in the region. This includes working with countries in the region to improve governance and the rule of law and economic reforms. After our exit from the EU, we will have more say over how we target UK funds previously channelled through EU programmes, thereby enhancing the flexibility and impact of our spend. Page 6 of 14
Interests of other countries 10. The countries discussed all have different interests in the region and different ways of pursuing them. Any involvement in the region which undermines progress towards stability, security, good governance and prosperity should be of concern to the UK. Post-Brexit the UK must work closely with international partners to ensure as little space as possible is provided for others to act against those objectives. (Paragraph 102) 11. Russia s influence in the region is a factor of particular concern. Its effect has been to slow progress towards good governance and the region emerging as fully democratic. While the extent of Russian interference might still be a matter of debate, the potential for it destabilizing the region should not be underestimated. (Paragraph 103) The Government is committed to working with the region and international partners to strengthen the stability, security and prosperity of the Western Balkans. The Government remains concerned about increased Russian interference in the Western Balkans, seen most starkly in the Montenegro attempted coup plot. This behaviour by Russia is destabilising for the Western Balkans and for European security. We cannot rule out further Russian interference as the region makes progress on its Euro-Atlantic accession path. We encourage Russia to play a constructive role in the region. For example, as a member of the Bosnia and Herzegovina Peace Implementation Council Steering Board, we hope that Russia will work in cooperation with us to stop anti-dayton and anti-constitutional activities, which are destabilising. Page 7 of 14
State capture 12. The features of state capture described in the evidence are the opposite of the stable, prosperous democracies we would wish to see in the region. State capture, enabled by corruption, press restrictions and a lack of rule of law, prevents countries from progressing to EU and NATO membership and provides the space for disruptive external actors. (Paragraph 129) 13. The UK must continue to support political capacity building, strengthening the rule of law, gender equality, women s participation and post-conflict reconciliation. In these areas the UK can use its soft power and add value to the actions of others in the international community working through organisations like the British Council and the Westminster Foundation for Democracy. (Paragraph 130) The Government is very concerned about weak rule of law and governance. Weak rule of law and entrenched interests diminish the prospects for meaningful reform and long-term stability and increase countries vulnerabilities to malign influence. Through our political, diplomatic engagement and technical assistance, we are working to tackle these challenges. For example, in Kosovo we launched a new project to ensure the appointment of senior heads of public institutions by a fair and transparent recruitment process. In Macedonia we are providing technical assistance to support the new reformist government; and in Bosnia and Herzegovina, we are working with the police and security agencies and with the State-level judicial institutions to strengthen independence, professionalism and efficiency in tackling terrorism, organised crime and corruption. Through our diplomatic network and working with other partners, we continue to raise our concerns about rule of law and corruption with political leaders. We are also working with partners like the British Council and the Westminster Foundation for Democracy to amplify our impact. We will also work with the region to address these challenges at the Western Balkans Summit. 14. The UK s support for the pursuit for justice for those against whom crimes were committed during the wars of the 1990s must continue. This must include working to ensure the evidence of crimes currently held by EULEX is safeguarded. The UK s work to combat present day domestic violence must also continue and should include providing training and support for the police and judiciary. (Paragraph 131) The Government will continue to support the region as it pursues justice for crimes committed during the wars of the 1990. Page 8 of 14
We actively engaged in the Strategic Review of EULEX ahead of the expiration of its current mandate in June 2018. The Review determined which EULEX functions should cease, which should transition to other EU institutions, and which should be transitioned to Kosovan institutions. Information that is relevant to crimes or alleged crimes will be thoroughly riskassessed by EULEX and other relevant partners, prior to sharing with the new lead institutions, to ensure the integrity of the process and the safety of witnesses. The Government fully agrees with the Committee s assessment that we should continue to play a leading role in tackling domestic violence. The UK supports survivors of sexual violence in the region, including by the promotion of access to justice and improved awareness by relevant, interdisciplinary government teams. 15. The UK should continue to support freedom of expression in the region. The return of the BBC World Service to Serbia is welcome but it should be complemented by funding and support for local independent media outlets to counter-balance more partisan and biased reporting. Diplomatic pressure should also be brought to bear in countries where freedom of expression is restricted. (Paragraph 132) The Government shares the Committee s concern at the politicisation of the media and declining media freedoms in parts of the region. We continue to raise concerns about violence against journalists, unbalanced media coverage in election periods, and media pluralism bilaterally and through organisations including the EU and OSCE. The Government welcomes the return of the BBC World Service to Serbia and we are working with the region to improve the media landscape, including through support to build the capacity of media organisations. 16. We note the work in the region to support future leaders. The Government should invest more in this by, for example, expanding the Chevening Scholarships scheme. It should also encourage the promotion of the UK as a destination for higher education students from the Western Balkans and should cease treating international students, from there or elsewhere, as economic migrants. (Paragraph 133) The number of Chevening Scholars from the Western Balkans has more than tripled from 14 in 2014 to 49 in 2017. As part of our Western Balkans Summit preparations, we are engaging with current Chevening scholars and exploring how and where best to build on the existing scholarships and fellowships. All six Western Balkan countries participate in the FCO s International Leaders Programme. In addition, in Bosnia and Herzegovina since 2014 the British Embassy s Fellowship scheme has brought to the UK more than 200 influential Page 9 of 14
leaders from a variety of sectors. This has allowed us to exchange ideas; share best practice; and create a powerful network with which we continue to work closely to promote essential reforms inside Bosnia and Herzegovina. 17. The system of two schools under one roof can only perpetuate social tensions. The Government should put pressure on governments in the region to end this system and should provide funding and support to civil society projects which bring children together across ethnic divides. (Paragraph 134) The Government agrees with the Committee s assessment that so-called two schools under one roof risks perpetuating social tensions. We note that a 2014 judgment by the Court of the Federation of Bosnia and Herzegovina which called for an end to segregated schooling in Herzegovina Neretva Canton has still not been implemented. The British Embassy in Sarajevo is working closely with international donors and partners to coordinate efforts to reduce segregation and to improve the quality of education in Bosnia and Herzegovina, and to lobby against moves that would create further ethnic divisions. Recent successes include the abandonment by the local authorities of a plan to divide an ethnically-integrated school in Jajce. We agree with the Committee that it is important to bring children together across ethnic divides. Together with international partners, we have supported many such projects over the last two decades in the region. For example, through our work with the British Council on Connecting Classrooms and Active Citizens project, we have connected 20 schools across the ethnic divides and worked in over 40 communities to support reconciliation and community action. The empowerment of young people from across the region will also be a key theme at our Western Balkans Summit in London, as will support for initiatives by young people aimed at overcoming the legacy issues of the past. 18. The Western Balkans Summit should be used to clearly demonstrate the UK s support for freedom of the press, the rule of law and the role of NGOs and civil society groups in an open democracy. (Paragraph 135) The Government sees the Western Balkans Summit as an opportunity to strengthen collective Western Balkans and European commitment to work with civil society groups, young citizens and the media, in addressing the challenges the region faces. We want to involve young people in the planning for our Summit and in presentations to Western Balkans leaders on the day. We are already working closely with youth groups, civil society activists and young entrepreneurs in identifying thematic priorities with a view to improving collaboration among activists in the region who seek positive change. In parallel, we have a number of projects targeted at strengthening media freedom and rule of law. Page 10 of 14
Corruption and organised crime 19. The UK must continue to support efforts to combat corruption and organised crime in the region. Close operational links between the UK and the EU after Brexit on all aspects of Justice and Home Affairs Agenda will be essential if the UK s own internal security is not to be jeopardised. (Paragraph 147) 20. The Western Balkans Summit should focus on what technical support the UK working in partnership with the EU can provide to agencies and governments in the region to combat human trafficking, corruption, organised crime and radicalisation. In particular, this should include providing training to judges, prosecutors and police. (Paragraph 148) The Government believes that Serious and Organised Crime from groups emanating from the Western Balkans pose a threat to the UK and European security. We are at the forefront of work with EU and other international partners to address this threat. In October, we launched the UK-Western Balkans Security Discourse, which is shaping our security engagement with the region. At that first meeting, with experts from the region and the international community, we looked at how to increase cooperation on anti-corruption; promote criminal justice reform; and combat money laundering including through diplomatic, political and capacity building interventions. The Western Balkans Summit in London will have an increased focus on security and tackling corruption and organised crime, compared to previous Berlin Process summits. The UK and our EU and Western Balkans partners agree that effective joint action in these areas is necessary to provide a more attractive destination for investment, to put a stop to the exodus of talented young people from the region and to help these countries on their Euro-Atlantic path. At the Summit, we aim to foster practical security co-operation between the six Western Balkans countries. This will include building on a number of successful outcomes from the 2016 Anti-Corruption Summit in London and the 2017 Western Balkans Summit in Trieste, particularly to increase cooperation against illicit finance and corruption. Page 11 of 14
Trade and investment 21. The Western Balkans is likely to remain a small market for UK businesses. However, economic prosperity is key to long-term stability. (Paragraph 160) 22. The Western Balkans Summit should be used to encourage trade and investment in the region from UK businesses. It is essential that the present free trade relationship between the UK (as a member of the EU) and the countries of the Western Balkans does not lapse when the UK leaves the EU. The Department of International Trade must get a grip of this issue urgently, as it does not seem to have done hitherto. (Paragraph 161) The Department for International Trade (DIT) needs to carefully balance the use of resource across the world to ensure we maximise the impact of Government spending. The Western Balkans is an important region, and the Department believes that trade and investment has an essential role to play in promoting regional prosperity and security. It is for this reason that the Department is currently increasing engagement in the region in support of the Western Balkans Summit in July. This Summit will provide an opportunity to focus on improving the economic stability of the region, which is integral to its future prosperity, while showcasing UK expertise in finance and digital. Through the launching of schemes such as DIT s Global Entrepreneurship Programme, the Department will be promoting economic digital entrepreneurship as well as mentoring and supporting local start-ups. Page 12 of 14
Extremism and anti-democratic nationalism 23. The threat to the region from radical Islamist ideology should not be overestimated. Too often it has been portrayed as more prevalent than our evidence suggests. This is counter-productive, particularly when used to heighten ethnic tensions for political gain. (Paragraph 179) 24. However, in a region where the rule of law remains weak and tensions between communities can be high, any form of anti-democratic extremism is destabilising and must be combatted. (Paragraph 180) 25. The UK should continue to provide training and advice to agencies in the region responsible for combatting terrorism and for de-radicalisation. (Paragraph 181) The Government agrees with the Committee that extremism and radicalisation in the Western Balkans is both nationalist and Islamist. Some religious and political leaders are using radical Islam to play on people s fears and insecurities. Provocative statements by some local religious leaders and politicians contribute to intolerance and an increase in extreme nationalism. We are aware of the presence of Islamist extremism in the region, for instance in Bosnia and Herzegovina, Kosovo, Macedonia and the Sandzak region. We estimate that around 1,000 foreign terrorist fighters travelled to Syria and Iraq from the region, although almost there have been no reports of new foreign terrorist fighters since 2015. The UK is funding an in-depth research programme to understand better the drivers of radicalisation in the region to inform policy decisions. We will continue to cooperate closely with allies and liaise with local authorities across the region to reduce that threat. Page 13 of 14
Migration 26. Illegal migration increases the risk of instability in the region and has a direct impact on the UK. It is therefore in our interests for the UK to continue to provide training and financial support to countries in the region. (Paragraph 189) 27. The brain drain is a symptom of other challenges countries in the region face. By supporting efforts to instil good governance, combat crime and corruption, and create better economic opportunities for people in the region the UK can help to reduce the numbers of young and skilled people emigrating. (Paragraph 190) The Government shares the Committee s concern at the high levels of emigration from the region and the associated brain drain, especially of younger people. While this can serve as an escape valve which mitigates possibilities of social unrest, we are concerned that migration numbers across the region are high enough to alter demographics and potentially voting patterns, as certain socio-economic or ethnic groups leave in greater numbers than others. We want to help the Western Balkans become a more stable and resilient region with improved capacity to tackle its own problems and support its own people. Improving the economic prospects for people in the region, especially young people, lies at the heart of our approach to the Western Balkans Summit in London, in terms of priority discussions for the 14 Berlin Process leaders, and new activities and commitments, bilateral and multilateral that we are looking to initiate. These extend from initiatives to tackle corruption and serious and organised crime (often cited by young people as among their reasons for leaving), to incentives to young people to stay, especially in areas of UK expertise such as digital skills and developing entrepreneurship. Page 14 of 14