A Framework for EU-Iraq Engagement

This communication aims to provide a basis for discussions with the incoming sovereign Iraqi government and broader Iraqi society. It proposes a three-phase framework that should help reinforce links between the two parties, dependent on progress in the political transition process and the existence of the necessary security conditions.

ACT

Communication from the Commission to the Council and the European Parliament of 9 June 2004: "the European Union and Iraq, a framework for engagement" [COM(2004) 417 final - Not published in the Official Journal].

SUMMARY

Context

This communication is in reply to the request made by the European Council in October 2003 for a strategy for relations between the European Union and Iraq. The appointment of a new Iraqi Interim Government and the adoption of United Nations Security Council Resolution 1546 on 8 June 2004 confirming the transfer of authority to Iraqis and reinforcing the role of the United Nations offers an opportunity for the EU to support Iraqi efforts to bring a new direction to their country.

Under Saddam Hussein's 24-year regime, the EU had no political or contractual relations with Iraq. The EU, however, was the largest single donor of humanitarian assistance to Iraq after the United Nations. Since October 2003, the aim has also been the reconstruction of the country, with measures aimed at providing employment, core public services, poverty reduction and strengthening governance, including Iraq's democratic institutions. At the Madrid donors' conference held on 23-24 October 2003, the EU (the Commission and the Member States) promised to make available aid of more than 1.25 billion.

Objectives

The EU's objectives in its relations with Iraq go hand in hand with its interests, and both are focused above all on:

• the emergence of a secure, stable and democratic Iraq, with a parliament and a government, elected on the basis of a constitution that guarantees respect for human rights and fundamental freedoms;
• the establishment of an open, stable, sustainable and diversified market economy and society, and the promotion of equitable economic and social development;
• Iraq's economic and political integration into its region and the open international system.

To achieve a secure, stable and democratic Iraq, the EU must be prepared to continue to help the UN play a leading role and ensure that its actions to assist Iraq are well coordinated. With its expertise, the EU could:

• welcome UNSC Resolution 1546 confirming the sovereign status of the Iraqi Interim Government;
• engage in dialogue with the incoming Iraqi authorities;
• provide EU assistance for elections, good governance, the development of Iraqi civil society and the promotion of human rights;
• consider expanding its assistance to support security and implement the rule of law, justice and security sector reform.

To help create an open, sustainable and diversified Iraqi economy, the EU could:

• promote resolution of Iraq's external debt;
• continue assistance for institution-building;
• help Iraq develop judicial capabilities and regulatory and legal frameworks;
• emphasise the need to address issues related to unemployment and poverty, help to put in place effective safety nets and address regional imbalances in the distribution of resources;
• spread the idea that Iraq's mineral wealth should be used to support these goals.

To achieve an Iraq at peace with its neighbours and integrated into the international community, the EU could:

• use its influence and dialogues with the countries of the region, particularly Iraq's neighbours, to encourage constructive engagement with Iraq and increased intra-regional cooperation;
• invite Iraq to participate in the EU Strategic Partnership for the Mediterranean and the Middle East;
• consider Iraq's candidacy for the WTO in a positive light, and encourage its participation in other international fora.

To achieve these aims, the EU has foreseen a framework for progressive engagement divided into three phases, in accordance with UNSC Resolution 1546. It will be important to ensure that the EU Member States work together on the ground, in close coordination with the United Nations, the World Bank, the IMF and other international bodies.

Phase I - Immediate action

After 30 June 2004, the EU could consider the following initiatives, until elections for a Transitional National Assembly:

• support for elections, including assistance for the development of civil society, and the rule of law and for voter education;
• informal political dialogue: if security conditions permit, a political dialogue meeting in Troika format at ministerial level could be held in Baghdad or on the margins of the UN General Assembly in September 2004. The EU could canvas the views of Iraqi authorities and engage in informal dialogue with Iraqi civil society;
• the rule of law and civil administration: institutional capacity building;
• positive engagement of Iraq's neighbours, including adopting confidence-building measures, for example in border management and customs administration.
• coordination on rescheduling or cancellation of the Iraqi debt and related economic policy conditions;
• administrative collaboration for the re-establishment of the Generalised System of Preferences that Iraq enjoyed up until the Gulf War;
• ongoing implementation of humanitarian aid and reconstruction assistance;
• opening of a European Commission office for Iraq in the premises of its delegation in Amman (Jordan).

Phase II - Post-elections

After the election of a National Assembly, a Provisional Government should be formed and a new constitution drafted, to be ratified by referendum in 2005. This will open the way for further cooperation and dialogue with Iraq. In addition to the action under Phase I, the EU could also implement the following initiatives:

• contribution to reconstruction through programmes of technical assistance and capacity building support, in the political sphere (advice for the constitutional process, civilian law enforcement, etc), as well as in the economic and social spheres (good governance, public procurement, a trade, customs and investment regime, etc.);
• formal political dialogue: a joint EU-Iraq political declaration could be agreed to institutionalise political dialogue, on themes including human rights, regional stability, the fight against terrorism and non-proliferation;
• joint working groups in sectors of mutual interest such as the economy, statistics, trade, energy, transport, information society, human rights and the rule of law, migration and counter-terrorism.

Phase III - Medium term

Once the government has been elected, the constitution adopted, and the executive and legislature elected, the EU could take the following additional steps:

• negotiations for a bilateral agreement on trade and cooperation;
• assistance for economic diversification and poverty reduction;
• assistance in the creation of a regional framework;
• sustained assistance for the rule of law, democratisation and human rights;
• European Investment Bank loans, to bridge the period between grants, which will diminish, and private sector involvement. Such loans could be part of a regional mandate to include countries east of Jordan;
• opening of a European Commission delegation in Baghdad.

All these recommendations must be reviewed regularly and adapted to circumstances.

For more information about EU-Iraq relations, visit the DG RELEX website.

RELATED ACTS

Communication from the Commission to the Council and the European Parliament - Recommendations for renewed European Union engagement with Iraq [COM(2006) 283 final - Not published in the Official Journal].

EU-Iraq Joint Declaration on Political Dialogue of 21 September 2005, signed in New York.

Iraq International Conference - Declaration (FR)

Communication from the Commission to the Council and the European Parliament on the consequences of the war in Iraq for energy and transport [COM(2003) 164 final - Not published in the Official Journal].

See also

To find out more about EU - Iraq relations, please visit the website of the European External Action service.

Last updated: 07.05.2007