Communication from the Commission on Conflict Prevention
Date: 2001-04-11
Institutions: European Commission
Subjects: international cooperation, international organisation, non-governmental organisation, peacekeeping, settlement of disputes

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 11.4.2001
COM(2001)211 final

COMMUNICATION FROM THE COMMISSION

on Conflict Prevention

COMMUNICATION FROM THE COMMISSION

on Conflict Prevention

TABLE OF CONTENTS

Introduction ........................................................................................................................... 5

1.

A.

Projecting stability.................................................................................................... 7

The EU role in promoting integration ....................................................................... 7

The Union and its neighbours................................................................................................. 7

Strengthening regional co-operation in a wider context .......................................................... 8

Building trade links................................................................................................................ 8

B.

Mainstreaming conflict prevention in co-operation programmes............................... 9

Integrated approach.............................................................................................................. 10

Role of the Country Strategy Papers..................................................................................... 11

Macro-economic environment.............................................................................................. 12

Support for democracy, the rule of law and civil society....................................................... 13

Reforming the security sector............................................................................................... 14

Specific post-conflict measures ............................................................................................ 15

C.

Addressing cross-cutting issues in a more efficient way.......................................... 16

Drugs…. .............................................................................................................................. 16

Small arms ........................................................................................................................... 17

Management and access to natural resources ........................................................................ 17

Environmental degradation .................................................................................................. 18

The spread of communicable diseases .................................................................................. 19

Population flows and human trafficking ............................................................................... 19

Role of the private sector in unstable areas ........................................................................... 20

2.

A.

B.

C.

Reacting quickly to nascent conflicts ...................................................................... 20

Optimising Community instruments ....................................................................... 21

Ensuring a swift Community reaction..................................................................... 22

Political and diplomatic instruments ....................................................................... 22

Political dialogue ................................................................................................................. 23

2

EU Special Representatives.................................................................................................. 23

D.

E.

3.

A.

B.

Using sanctions ...................................................................................................... 24

Adapting EU crisis-management machinery ........................................................... 24

Enhancing international cooperation on conflict prevention .................................... 25

Co-operation with other countries........................................................................... 25

Co-operation with international organisations......................................................... 26

Co-operation with United Nations ........................................................................................ 26

Co-operation with the Bretton Woods Institutions ................................................................ 27

Co-operation with OSCE and Council of Europe.................................................................. 28

Co-operation with others...................................................................................................... 28

C.

Cooperation with NGOs ......................................................................................... 28

Conclusion........................................................................................................................... 29

3

EXECUTIVE SUMMARY

The ever-growing list of causes of conflicts calls for
international co-operation and
multilateral action of a new order. The EU, itself an on-going exercise in making peace and
prosperity, has a big role to play in global efforts for conflict prevention. For this, it has at its
disposal a wide range of instruments for long term or short term action.

Both among its immediate neighbours and throughout the world, the EU seeks to project
integration and in building trade links. With a long
stability in supporting regional
experience in these fields, the EU is well placed to do so. Direct support to regional structures
in Africa and autonomous trade concessions to the Western Balkans are examples of
instruments with a long-term stabilisation perspective.

Development policy and other co-operation programmes provide the most powerful
instruments at the Community’s disposal for treating the root causes of conflict. There is a
need to take a genuinely long-term and integrated approach, which will address all aspects of
structural stability in countries at risk. In doing so, co-ordination between Commission and
Member States activities must be ensured. On a practical level, strategic documents (Country
Strategy Papers) elaborated for each country receiving EC assistance will be the key tools to
mainstream such an approach into co-operation programmes. Appropriate indicators will also
be used.

In countries showing conflict potential, there may be a need to focus external aid on the
(re)emergence of a favourable political environment (e.g. support to democracy, rule of
law, civil society, independent media, gender equality etc). There may be also a need for
the Community to become more involved in security sector reform. When a country
emerges from conflict, the Community should contribute to the consolidation of peace
through specific programmes such as rehabilitation.

Another approach to mainstreaming conflict prevention is to find more effective ways, within
the Union and in the wider international context, to address cross-cutting issues which may
contribute to tension and conflict. The most important ones concern drugs, small arms, natural
resources, environmental degradation, population flows, human trafficking and to some
extent, private sector interests in unstable areas. Community instruments in these areas may
be further developed.

In parallel to long term preventive action, the EU should improve its ability to react quickly
where a situation in a particular country seems to be entering a downward spiral. This clearly
requires an effective early warning system. In pre-crisis situations, many Community
instruments including new ones such as the Rapid Reaction Mechanism can be used. The
EU can deploy a variety of options
ranging from political dialogue to Special
Representatives and including, in the future, civilian crisis management mechanisms. All of
these may be improved, made more systematic and flexible. But in any case they need to be
based on a common political line between EU Member States.

Potential conflicts often cross borders. This demands international co-operation on long
term prevention activities as well as co-ordination of responses to pre-crisis situations. The
EU will therefore strengthen its co-operation with international partners active in the field of
conflict prevention, such as US, Canada, Russia, Japan and Norway, main international
organisations such as UN and OSCE as well as NGOs.

4

INTRODUCTION

The enormous cost in resources and in human suffering caused by violent conflicts calls for
major efforts in preventing conflicts. This is above all a moral and political imperative, but it
also makes economic sense. It
into dialogue and
constructive action than to deal with the consequences once it has degenerated into violent
confrontation. Given the importance of the EU on the international scene, its interests and
ambitions and the considerable resources it has committed to assistance and co-operation,
there is no doubt that the EU should play its part in these efforts.

is a lot cheaper to channel conflict

The EU is in itself a peace project, and a supremely successful one. It has underpinned the
reconciliation and peaceful development of Western Europe over the last half century, helping
to consolidate democracy and to assure prosperity. Through the process of enlargement,
through the Common Foreign and Security Policy, through its development co-operation and
its external assistance programmes the EU now seeks to project stability also beyond its own
borders.

The reasons for conflict vary, and predicting how it may evolve is a complex task. There is an
evident need for enhanced common analysis of root causes of conflict and of signs of
emerging conflict. Poverty, economic stagnation, uneven distribution of resources, weak
social structures, undemocratic governance, systematic discrimination, oppression of the
rights of minorities, destabilising effects of refugee flows, ethnic antagonisms, religious and
cultural intolerance, social injustice and the proliferation of weapons of mass destruction and
small arms are factors which aggravate conflict. These signs should not only to be analysed -
appropriate action needs to be taken as well. An early identification of risk factors increases
the chances of timely and effective action to address the underlying causes of conflict.

The changing international environment after the end of the Cold War has offered new
opportunities to overcome such difficulties and to promote peaceful change. The combination
of increasingly free and open markets, private enterprise and technology has brought wealth
and new opportunities to a majority of countries and individuals. It has helped to spread
democratic government. It is imposing new pressures on governments to treat their citizens
fairly, to accept public scrutiny and to engage in dialogue and co-operation with their
international partners.

But globalisation has its dark side, too. International trade is failing to bridge the divide
between those who benefit and the billions marooned in squalor and misery. Drug trafficking
is today a bigger industry than iron and steel or cars. The illicit diamond trade not only
finances conflict but actively fuels it. The list of horrors is long, and getting longer:
trafficking in people, and especially in women; environmental degradation; trans-national
crime; proliferation of arms, big and small; the spread of AIDS and other diseases. These
problems are not just threats to prosperity. They also lie at the root of much of the violent
conflict which plagues the world.

Individual countries are unable to address these problems on their own or through the classic
instruments of bilateral diplomacy. Tackling the dark side of globalisation demands
international co-operation and multilateral action of a new order. The European Union has a
duty to try to address the many cross-cutting issues that generate or contribute to conflict. It is
also well placed to do this. It has that duty because it is one of the main promoters and

5

beneficiaries of global openness and co-operation. It is well placed because it has the means
and the authority to make a real impact.

The list of EU instruments directly or indirectly relevant to the prevention of conflict is long:
development co-operation and external assistance, economic co-operation and trade policy
instruments, humanitarian aid, social and environmental policies, diplomatic instruments such
as political dialogue and mediation, as well as economic or other sanctions, and ultimately the
new instruments of ESDP (including information gathering for anticipating potential conflicts
situations and monitoring international agreements). Through these, the EU is already heavily
engaged in conflict prevention. But it can and must improve the focus and effectiveness of its
action in this area. It must be able to respond in a timely and tailor-made fashion, with an
appropriate mix of instruments, to the specific situations as they arise. Ultimately, this is not
just a question of streamlined decision-making and management procedures but, more
fundamentally, of the common political will to respond.

This Communication summarises what the EU is already doing, the instruments it has at its
disposal, and suggests forthcoming possible activities in conflict prevention. It follows upon
the "Report by the Secretary General/High representative and the Commission containing
practical recommendations for improving the coherence and effectiveness of EU action in the
field of conflict prevention" (14088/00), which was presented to the Nice European Council.
It is also a contribution to the programme of action which could be endorsed by the Göteborg
European Council

For reasons of clarity, the structure of the communication distinguishes between long term
prevention (“Projecting stability”) and short-term prevention (“Reacting quickly to nascent
conflicts”). It also looks at how we can improve co-ordination and co-operation on conflict
prevention at the international level.

6

1.

A.

PROJECTING STABILITY

The EU role in promoting integration

The Union and its neighbours

Just over fifty years ago the countries of what is now the EU were engaged in a devastating
conflict. In 1945, it would have been difficult to imagine the level of stability and prosperity
the Union knows today. If the former European belligerents have come so far, it is in large
measure due to the vision of those leaders who recognised that the only way forward for
Europe was in breaking down barriers and encouraging co-operation between states, on the
basis of common values and common interests, both political and economic. This represents a
unique experiment with important
lessons in a world struggling to contain animosities
between States and to manage relations between them in a peaceful way.

The strength and attraction of the EU model is evidenced by the on-going enlargement
process. In offering the prospect of European integration, the EU has already helped the
countries of Central and Eastern Europe in their struggle to become stable democracies and
functioning market economies. This has been a driving force to move from division to unity.
It has drastically reduced border disputes and nationalist
tensions as well as allowing
substantial progress in integrating minorities in society. The prospect of accession and the
pre-accession partnership strategies developed by the Commission have also given an
important boost to economic development in the candidate countries, which in itself serves to
consolidate the overall reform process.

Likewise, guided by the perspective of
joining the EU, the five countries of the
Western Balkans
progressively
integrating the European model into their
own structures, through the Stabilisation
and Association Process launched in
1999.

are

In that spirit,

Interaction with the Union on a regional
basis can also encourage greater co-
operation between countries on the
the Union and act as a
borders of
stabilising factor within and between
countries.
regional co-
operation is being pursued by the twelve
through the
Mediterranean countries
Euro-Mediterranean
Partnership
(Barcelona Process), under which they
have been invited to set up a huge Euro-
Mediterranean free trade area with the
EC by 2010. This serves a major conflict
prevention objective both in the difficult
context of the Middle East peace process
and elsewhere in the region (see box).

Euro-Mediterranean
integration

Partnership

-

Regional

This Partnership has three main goals: an area of peace
and stability based on respect for human rights and
democracy; a free trade area accompanied by substantial
EU economic and financial assistance to its partners; and
greater mutual understanding and tolerance among the
peoples of the region. All of them contribute to the
overall aim of
preventing conflict and promoting
stability.

network of

The political and security side of
the partnership
involves a regular political dialogue and a series of
“soft” security-building measures (e.g. joint training for
foreign policy institutes).
diplomats,
Progress towards the more ambitious aim of a Euro-
Mediterranean Charter for Peace and Stability, which
could cover “harder” measures (even of a military
nature), has been hampered by the state of the Middle
East peace process.

the

that

only

remains

The partners have nevertheless remained committed to a
forum where
process
representatives of
Israel, Syria and Lebanon meet.
Considerable progress can now be seen on a number of
fronts, and in particular the conclusion of association
agreements between the EU and its partners. The
Barcelona Process has proved resilient, showing itself to
be an effective EU instrument for limiting the fall-out
from some particularly tense moments in the region.

7

Strengthening regional co-operation in a wider context

Beyond the European continent, the EU model can serve as an example for other regions in
encouraging states to reduce political tension, to increase economic interdependence and to
create greater mutual trust between countries.

Mercosur, which brings together Argentina, Brazil, Paraguay and Uruguay, and which has
received EU support since its creation in 1991,
is a striking example. It has played a
significant role in consolidating democracy and the rule of law in all its member states, and
particularly in Paraguay. It was also through Mercosur that these countries began to set up
confidence-building measures in the field of defence. Vis-à-vis Mercosur as well as many
other regional organisations around the world, a great deal of the EC assistance has been
aimed at strengthening common regional structures1.

Equally, an important objective of the Cotonou Agreement between the EU and the 77
African, Caribbean and Pacific (ACP) countries is to improve economic and trade co-
operation between these countries on a regional basis. In its relations with the 6 countries of
the Gulf Co-operation Council (GCC), the Community is also trying to stimulate their
integration through a customs union. In this regard, it hopes that at some stage Yemen will be
able to join the co-operation within the GCC.

Community assistance can also be targeted specifically at regional structures with a clear
“conflict prevention” brief. In this spirit, the Commission has supported the OAU Mechanism
for Conflict Prevention, Management and Resolution, the ECOWAS conflict-prevention
mechanism, the Lusaka Peace Process in the Democratic Republic of Congo (through the
SADC) and the Burundi Peace Negotiations. The Commission intends to devote more
resources to these initiatives in the future. In particular, it is ready to support the SADC
initiatives on light arms and drug trafficking.

In addition, the Commission plays an active role in several regional initiatives in which
stability and security are major concerns e.g. the Northern Dimension with countries of the
Baltic Rim or the ASEAN Regional Forum (ARF).

The Commission will give higher priority to its support for regional integration and in
particular regional organisations with a clear conflict prevention mandate.

Building trade links

Trade integration is very much part of the EU model and an essential element in developing
interdependence at international level. In supporting their trade and economic reforms and
offering them better access to the EC market, the Community helps developing countries to

1

The Commission currently supports the West African Economic and Monetary Union (UEMOA), the
Economic Community of West African States (ECOWAS), the Common Market of Eastern and
Southern Africa (COMESA),
the South African Development Community (SADC) as well as
Cariforum and Pacific Islands Forum. This year, a major project will be launched (with a budget of
around EUR 15 million) to strengthen the SADC's administrative capacities. The Commission is also
planning to support the Central African Economic and Monetary Community (CEMAC), the Southern
African Customs Union (SACU) and the South Asian Association for Regional Co-operation (SAARC).
The establishing of a Customs Union between the 6 countries of the San Jose Group, in Central
America will also be supported by the Commission.

8

integrate themselves into the world economy. As a motor of economic growth and poverty
reduction, the EC trade policy contributes to conflict prevention.

The Community provides preferential access to the European market for most products from
developing countries, under the Generalised System of Preferences (GSP) scheme (variable
rates of tariff preference). This generally goes with trade-related capacity building measures
to help countries make use of those opportunities. As part of the Cotonou Agreement, all ACP
countries enjoy until 2008 free access for most of their products. Extra preferences are also
offered to Latin American countries combating drug production and trafficking.

On 26 February 2001, the Council extended access free of customs duties and quotas, to all
products from least developed countries (LDCs), with the exception of arms (“Everything But
Arms” Initiative). Access for bananas, sugar and rice will be subject to an initial transition
period. The EC is already the main export market for LDCs. With this unprecedented
initiative, it will become by far the most important trading partner for them.

A good example of trade policy serving long-term stabilisation in unstable regions is the
autonomous trade concessions which the EU has gradually extended to the five countries in
the Western Balkans in return for their committing themselves to reform and regional co-
operation. Within the framework of the association and stabilisation process, the 5 countries
now enjoy very favourable autonomous trade preferences when exporting to the Community,
with over 85 % of their goods now entering the Union duty free.

Trade policy can also be used the other way round. Preferences may indeed be suspended
with a view to try to prevent an alarming situation from deteriorating further. For example, in
1997, following an enquiry by the Commission into reports of widespread forced labour, the
Council suspended GSP privileges vis-à-vis Burma/Myanmar. The suspension is still in force.

B.

Mainstreaming conflict prevention in co-operation programmes

Violent conflict rarely erupts spontaneously, or even at short notice. When people resort to
arms, it is generally the result of a process of gradual deterioration whose causes are deep-
rooted and often well-known. Difficulties in successfully addressing problems such as
extreme poverty, inequalities in the distribution of wealth, scarcity and degradation of natural
lack of education, ethnic and religious tensions, border and
resources, unemployment,
regional disputes, disintegration of the State or lack of peaceful means of settling disputes,
have plunged whole societies into chaos and suffering. When they finally emerge from this
inferno, they find themselves facing the long and difficult process of reconstruction.

Development policy and other co-operation programmes2 provide, without doubt, the most
powerful instruments at the Community's disposal for treating the root causes of conflict. But
in order to ensure that optimal use is made of these instruments, we must take a genuinely
long-term approach, identifying and targeting needs as far “upstream” as possible . The
Commission has recently undertaken efforts to refocus development policy on the objective of

2

Other co-operation programmes refer to programmes with countries not considered as developing
countries in the OECD/DAC list.
P.M: In financial terms, over the period 2000-2006, external actions (Cat 4 of the EC budget) and
36 and 11.8 billion. The
actions for Central and Eastern European Countries amount respectively to
EDF (for ACP countries) represents 13.5 billion for the period 2000-2007.

€

9

poverty reduction and to increase impact and efficiency in implementation3. This approach
includes working in complementarity with Member States and other donors.

Although the EU is already the world’s largest aid donor, it is obvious that further reinforcing
the effort for external assistance in line with international guidelines would at the same time
increase the EU’s capacity to prevent conflicts in the long-term perspective.

Integrated approach

long-term approach to

Treating the root causes of conflict implies creating, restoring or consolidating structural
stability in all
its aspects. The concept of structural stability was put forward by the
Commission in its 1996 Communication on conflict prevention4 and was taken up by the
OECD Development Aid Committee in its Guidelines on Conflict, Peace and Development
Co-operation in 1997. Characteristics of structural stability are sustainable economic
development, democracy and respect
for human rights,
viable political
structures and healthy environmental
and social conditions, with the capacity
to manage change without to resort to
conflict. All these elements need to be
addressed in an integrated way. Most
importantly, co-operation programmes are
increasingly based on the countries’ own
strategies since it is now well recognised
that ownership is a condition for success,
allowing for consideration of countries’
own situation, history and culture.

In 1999 the Commission proposed the Stabilisation and
Association process as a way of bringing every country
of the region closer to Europe and its structures.

Balkans - An integrated,
prevention

The thinking was quite simple: it was felt that the best
way to get the countries of the Western Balkans to
avoid conflict and work towards European standards of
political and economic behaviour was to hold out the
prospect of EU membership one day, subject to strict
political conditions,
for
regional cooperation. The process is based on a policy
mix that combines contractual relations along the lines
of those enjoyed by the Phare countries under the
Europe Agreements,
the
economic restructuring and institution-building needed
to meet European standards, regional cooperation and
free trade.

including a requirement

programmes

assist

to

to

a

assess,

difficult

to other

However
few
successful conflict prevention strategies
can be identified. This applies to the EC as
well as
international actors.
Reviewing the Community's recent actions
in vulnerable
and areas under
reconstruction, a number of cases stand
out
through an integrated
approach, the EC did make a substantial
contribution either in maintaining or re-
establishing a degree of structural stability.

in which,

areas

if it

The process represents a long term commitment to the
is to be credible, demand
region and will,
substantial human and financial resources for several
years to come. There is little doubt that the solemn
pledge underpinning the process is already having a
major impact on the policies and behaviour of the
countries concerned.

El Salvador and Guatemala are good
examples of this integrated approach at work. Implementation of peace agreements in these
countries went hand in hand with co-operation activities spanning all the sectors that are vital
for re-establishing structural stability. In general, the whole EC strategy vis-à-vis Latin
America is now based on an integrated approach.

3

4

see Statement by the Council and the Commission on the European Community’s development policy
of 10 November 2000
“The EU and the issue of conflicts in Africa: peace-building, conflict prevention and beyond” (March
1996/ SEC(1996)332)

10

A striking example of long-term prevention, through reconstruction and consolidation, is the
integrated strategy the Community has been working to set up in the Balkans (see BOX). This
model may be difficult to apply to countries which do not seek accession to the Union. But
the general approach, based on a transparent and clearly structured process providing concrete
benefits in return for commitments to peace and regional stability, could certainly be extended
to other countries/regions.

The Commission will ensure that its development policy and other co-operation programmes
are more clearly focused on addressing root causes of conflict in an integrated way.

Role of the Country Strategy Papers

On a practical level, the instrument for ensuring such an integrated approach of conflict
prevention will be the strategic documents drawn up for each country receiving assistance by
the Community (Country Strategy Papers). Such documents are currently prepared for all
developing countries in Africa, the Caribbean, the Pacific, Asia, Latin America and the
Mediterranean. Over time, all other countries receiving assistance from the Community will
have a CSP.

An assessment of potential conflict situations will be made in all Country Strategy Papers
with the support of appropriate potential conflict indicators. These will look at issues such as
the balance of political and economic power, the control of the security forces, the ethnic
composition of the government for ethnically-divided countries, the representation of women
in decision-making bodies, the potential degradation of environmental resources and so forth.
They will help to identify potential conflicts at an early stage. A model for such indicators is
currently being developed for the Commission by the Conflict Prevention Network5 (CPN),
and should be ready by the end of the first half of 2001.

For those countries where the above analysis has highlighted conflict risk factors (“countries
with conflict potential”), conflict prevention measures will be made an integral part of
indicators will make it easier to
the overall programmes of the Community. Conflict
incorporate measures targeting conflict prevention in various sectoral programmes (in fields
such as transport, rural development, energy, environment, health, research or education). As
a practical programming tool
to help in identifying projects with conflict prevention
measures, the Commission will issue by the end of 2001 a "Conflict Prevention Handbook",
built on work already undertaken in the ACP context. Conflict impact assessment tools could
also be developed, in liaison with Member States.

Finally, in order to improve the overall coherence and effectiveness of EU conflict prevention
efforts, co-ordination between Commission and Member States must be strengthened. As a
small first step, Country Strategy Papers and corresponding documents from Member States
should be systematically exchanged. There is also room for more regular exchange of
information (on country analyses, best practice, policy initiatives, etc.) between Commission,
Council Policy Unit and Member State desk officers. This could be based on the former
Electronic Bulletin Board network set up in 1998 for African countries. In the field, co-
ordination will follow the guidelines for strengthening operational co-ordination adopted by
the GAC in January 2001.

5

CPN is a network of academic institutions, NGOs and independent experts active in the field of conflict
prevention. It was established in 1997 following a Resolution of the European parliament and is
financially supported by the Commission. It is a research resource for the Commission on conflict
prevention issues.

11

In the context of the initiative taken at the September 2000 informal Foreign Ministers
meeting to improve the effectiveness of the Union's external action ("post-Evian exercise"),
the Commission and Member States have been working closely with the Council Secretariat
in drawing up "summary files" on relations between the Union and certain third countries.
These files can also provide a resource base for better co-ordination and complementarity
between Community aid and that of Member States in the case of countries with conflict
potential6.

The Commission will:

- use in all Country Strategy Papers appropriate indicators to analyse potential conflict
situations;

- develop practical programming tools for mainstreaming conflict prevention measures in co-
operation programmes with countries at risk;

- exchange Country Strategy Papers with corresponding documents from Member States.

- set up a pilot system, in close co-operation with Council Policy Unit, for the regular
exchange of information between Commission, Council Policy Unit and Member State desk
officers, for two unstable areas: the Balkans and the Great Lakes.

Macro-economic environment

A sound macroeconomic environment is part of structural stability. The Commission makes a
substantial contribution to macroeconomic stabilisation and support to economic reforms
through budget support and more recently through a substantial contribution to the
multilateral Highly-Indebted Poor Countries (HIPC) initiative, which is designed to help these
countries deal with the burden of their debts. In 1999, the Community committed EUR 1
billion of EDF funding for the ACP countries, and EUR 54 million for the countries of Latin
America and south-east Asia.

At present, EC macroeconomic assistance operations are also under way or in prospect for
Bulgaria, Albania, Bosnia, FYROM, Kosovo, Montenegro, Moldova, Tajikistan and Ukraine.
This support clearly serves an overall objective of conflict prevention, by enabling the
economic environment in those countries to become more stable.

The Community is also an active supporter of the World Bank/IMF initiative to draw up
Poverty Reduction Strategy Papers (PRSPs) for certain countries receiving aid and to
establish new financial instruments, such as the Poverty Reduction Growth Facility (see also
co-operation with the Bretton Woods institutions under Chapter 3).

In that context special attention has also been given to the Highly Indebted Poor Countries
affected by a conflict. In order to give these countries a chance to embark on the process of
HIPC debt relief, the World Bank and IMF Boards have recently agreed that the sunset clause
be extended to end-2002. Once those countries embark on Bank- and Fund-supported
programs in the context of their PRSPs, their debt problems will be treated on a case-by-case
basis within the framework of the enhanced HIPC framework.

6

General Affairs Council of 22 January 2001.

12

Finally it should be noted that while poverty reduction is a critical factor in lowering the
it can be achieved only if the economy is experiencing growth.
potential for conflict,
Consequently, measures aimed at poverty reduction need to be accompanied by measures
aimed at economic growth.

The Commission is considering co-financing WB and IMF funding instruments which will
support the implementation of PRSPs in the ACP countries.

Support for democracy, the rule of law and civil society

Countries with conflict potential are usually those where the democratic process is the least
advanced and where external support, for obvious reasons, is the most difficult to implement.
In such conditions, EC support should aim, through targeted actions, at opening the way to a
more favourable democratic environment. Such actions could draw on the large experience
the Commission has in this field, in particular through bilateral, regional or horizontal co-
operation programmes7.

a

is

an

by

to

as

since

areas

ongoing

challenges

exercise

but major

in 1998

Indonesia - Ownership of the reform process

actions
to
function,

transformation in Indonesia is
The current political
experiment with
characterised
democracy. There has been encouraging progress in a
the 1999 parliamentary
number of
elections,
remain. The
government
confronted by a need for
still
fundamental change.

The Commission is particularly active in the field of democratic transition and elections,
through voter education projects, for example, and training courses for electoral observers.
South Africa in 1994 and West Bank/Gaza
Strip in 1996 are very good examples
where Commission support, both in terms
of election observation and assistance
to
contribution
successful
proved
mitigate the conflict.
In the field of
parliamentary activities, the Commission
enable
supported
has
their
parliamentarians
democratic
in
Ethiopia. In the field of civil and political
rights, Community aid has provided legal
assistance for victims of human rights
violations, for instance in Armenia, where
in 1998 the EC supported an International
Federation for Human Rights legal aid
programme. In the field of freedom of
expression and the independent media,
Community funding has supported the
development of
independent press and
broadcast media for example by raising
professional
In the Federal
Republic of Yugoslavia support from the
Commission and the Member States
helped convince public opinion that there

The European Commission and two Member States are
financing the Partnership for Governance Reform in
13.2 million
Indonesia (the Commission is providing
). Set up by the UNDP, the World Bank, and the Asian
Development Bank, the Partnership, which is financed
via a Trust Fund, seeks to develop cooperation between
the international donor community and Indonesia in the
following sectors: judicial reform, civil service reform,
empowerment,
electoral management,
and
media
strengthening,
decentralisation, and anti-corruption measures. The
Partnership should ultimately provide Indonesians with
better governance.

What
the Partnership’s institutional set-up
means that Indonesia takes the lead in programming, so
creating a strong sense of local ownership.

legislative
regional

standards.

autonomy

is more,

€

7

Bilateral or regional programmes financed under the following regulations: PHARE (with Central and
Eastern European Countries), TACIS (with Newly Independent States), CARDS (with Balkan
countries), MEDA (with Mediterranean countries), ALA (with Asian and Latin American countries) as
well as under the EDF with ACP countries. Since 1994, the European Initiative for Democracy and
Human Rights (EIDHR) also gives support (100 meuros in 2000), on a thematic and world-wide basis,
to NGOs and international organisations working in these fields.

13

was indeed a viable alternative to Milosevic. In the field of good governance, the EC is
supporting the "Partnership for Governance Reform in Indonesia". (see BOX).

As part of its support to civil society, the Commission has also provided extensive support to
initiatives by and/or for women within the framework of the Beijing process, following on
from the 1995 World Conference on Women. Examples include promotion of the Euro-Arab
dialogue between women, establishment of a Women's Centre in Gaza and inter-community
initiatives in Cyprus launched by women. A European Council Resolution8 stresses that a
gender perspective must be paramount in emergency operations and crisis prevention. In a
report of last October9, the European Parliament urges Member States to systematically
encourage the participation of women in official conflict
resolution processes. The
Commission is preparing a Communication on gender equality in development co-operation
which will identify certain areas where specific actions are required.

For countries showing conflict potential, more targeted actions will be implemented, where
appropriate, to open the way to a more favourable democratic environment. In particular
increased emphasis will be placed on support to electoral processes, parliamentary activities
and the administration of justice.

In doing so, the Commission will in particular promote the equal participation of men and
women in social, economic and political life.

Reforming the security sector

The security sector has not traditionally been a focus of Community co-operation. However in
many countries, achieving structural stability may require a fundamental overhaul of the state
security sector (i.e. the police, the armed forces and democratic control of the security forces
as a whole). In El Salvador and Guatemala in 1998, Community action helped the police
services to become more professional and more impartial, as judged by recognised
international standards. In these cases, equipment and training programmes in subjects such as
human rights and ethical issues were funded from the EC budget.

countries

the security sector

showing conflict potential,

For
should be analysed
systematically. Where support from the Community can offer added value, the Commission
should then focus on this sector. Where Member States are better placed to assist (as, for
example, in the case of the reform of armed forces), they will be encouraged to do so as a
matter of priority, during discussion of the Country Strategy Papers. In this way,
the
Commission will be able to ensure that Community support
for the security sector
complements the efforts of other partners. For instance the Community could support the
conversion of military sources to civilian use and other structural reforms of the security
sector. A case in point has been the significant effort through the International Centre for
Science and Technology in Moscow to ensure that nuclear weapons scientists from the former
Soviet Union do not pass their knowledge to other countries.

Within the limits of its competencies, the Commission intends to play an increasingly active
role in the security sector area. This will take the form of activities aiming at improving police
services, promoting conversion and decommissioning both as regards weapons of mass
destruction and conventional weapons. The Commission could support human rights training

8

9

European Council Resolution on Integrating Gender in Development (20 December 1995)
EP report on women’s participation in the peaceful resolution of conflicts (October 2000)

14

for the whole security sector.

Specific post-conflict measures

A post-conflict situation - or one in which conflict has been 'frozen', as today in the South
Caucasus - generally calls for targeted assistance to rehabilitation programmes. One example
of Community involvement with such activities is Abkhazia/Southern Ossetia (Georgia).
There, through agreement with the parties to the conflict, the Commission has been able to
fund rehabilitation projects in a number of sectors, including water, gas and electricity supply,
new school buildings, agricultural development and railways.

In order to provide a secure physical environment for reconstruction, demining operations
have also been made a priority in post-conflict situations (e.g. Bosnia). A draft Regulation on
antipersonnel landmines, which is still on the table of the Council, provides for destruction of
landmines and specific rehabilitation programmes both for affected individuals and
communities. The Commission hopes that the Council will adopt the Regulation before the
end of the first semester of 2001.

Another important area - not least in its link to stabilising the security situation - is that of
the
Demobilisation, Disarmament and Reintegration (DDR). Too often in the past,
international community has overlooked the specific concerns of former combatants in
countries emerging from conflict. The assumption has been that once a peace agreement has
been signed, fighters from each side will return quietly to their homes. Fortunately, the
international Community has come to recognise the importance of ensuring adequate
provisions for the reintegration of former combatants and to incorporate such provisions into
the negotiation and implementation of peace agreements.

The Community has a lot to contribute in this area. Along with several other donors, the
Commission intends to support the demobilisation process in Cambodia. This would fit with a
number of activities already planned, especially in the North-West of the country, where
is implemented in
demobilised soldiers are likely to settle. Once the peace agreement
Burundi, the Commission is ready to finance a rehabilitation programme there. As soon as the
ongoing peace process in Eritrea allows, the Commission is ready to support the programme
drawn up in collaboration with the World Bank to demobilise and reintegrate some 200 000
soldiers. The Commission is also preparing a rehabilitation programme for the Democratic
Republic of the Congo (DRC), to support any possible progress under the peace process.

insecurity can interrupt children's normal

A major area where action is often required to prevent the recurrence of conflict in vulnerable
post-conflict situations is the one of children affected by armed conflict. During times of
conflict, displacement and general
learning
environment. Thus, as a direct result of crises, children often spend a long time in refugee
camps without access to education or other value-creating activities, and as a consequence,
they are often left with no other choice than joining rebel groups or participating in criminal
activities after the conflict. Thus, emergency education programmes as well as child related
rehabilitation measures are crucial to ensure that children and young adults do not become
destabilizing elements in post crisis situations. Therefore, children are a cross-cutting priority
for EC humanitarian assistance, and the Commission is funding emergency education for
children affected by armed conflict in countries such as DRC, Sudan, Sierra Leone, Kosovo,
Macedonia and Montenegro. Moreover, the Commission is directly supporting international
efforts to improve the availability of hard core data on children affected by armed conflict.

15

The importance of reconciliation processes needs also to be borne in mind. The EU’s well
recognised support for South Africa’s Truth and Reconciliation Commission is a good
example.

The link between relief, rehabilitation and development (LRRD) is central to the overall
purpose of conflict prevention. The [forthcoming] communication on LRRD identifies a range
of measures that could improve the Community’s contribution to international efforts in post-
crises situations. This includes better integration of the long-term perspective into relief
operations, adaptation of development programmes and instruments in order to allow for
quicker and more effective take-over from relief interventions and improved donor co-
ordination.

In post-conflict situations, EC assistance will concentrate on the consolidation of peace and
the prevention of future conflicts, in particular through rehabilitation programmes, child-
related rehabilitation measures and DDR programmes as well as programmes supporting
reconciliation processes.

C.

Addressing cross-cutting issues in a more efficient way

The major challenge of conflict prevention is finding effective and appropriate ways to
address the causes of tension and violent conflict. Every situation, and every conflict, is
unique. Nevertheless, some of the factors in play are cross-cutting issues, and should be
examined as such. This is particularly true of drugs, small arms, access and management to
natural resources, environmental degradation, communicable diseases, massive population
flows, human trafficking and private-sector interests in unstable areas. This list is by no
means exhaustive, but it is a starting point to further stimulate discussion within the Union,
which in turn could provide the basis for a broader international debate. In all these cases, the
Commission intends to bring forward concrete proposals for consideration within the
appropriate international bodies (such as the UN, G8 and OECD).

Drugs

There is a close relationship between drugs and crime. Criminal organisations operating in
drug production and trafficking have effectively turned certain parts of the world into "no-go
areas". The large amounts of money in drugs and money-laundering have also attracted, to a
certain extent, terrorist movements and paramilitary organisations seeking funds with which
to purchase arms. Their targets are generally areas where the social fabric had already been
torn apart by poverty and/or political instability. As a result, violent conflict is a constant
threat all along the two main drug routes to Europe: the cocaine road from Latin America, and
the heroin road from Afghanistan.

EU external activities on drugs are part of the 2000-2004 EU action plan, adopted by the Feira
European Council, which combines demand reduction, supply reduction and international co-
operation (notably with the UN).

Since 1996 the EU has supported the 29 Caribbean countries and entities through a
comprehensive Action Programme. This initiative strengthened both the countries' own
capacities and co-operation with the Union. Programmes implemented in Latin America have
mainly focused on support for development activities (such as alternative development
projects, institution building and rehabilitation for drug-users). In Colombia, the Commission
is about to finance a project using satellite imagery in order to detect illicit crops. At the same
time, the EC is seeking to set up "filters" along the Afghan heroine road, which led to support

16

programmes in Iran, Central Asia, Southern Caucasus, and soon in Ukraine, Moldavia and
Belarus. In the Balkans, the Phare Programme, soon to enter into its second phase, has already
produced some noteworthy results.

The Commission will focus its co-operation/anti-drug actions on the two main routes by
which drugs reach Europe, through the Balkans and between Latin America and the
Caribbean. In so doing, it will continue to draw on the expertise of Member States.

Small arms

Small arms are the “weapons of mass destruction” of the poor. They are responsible for more
deaths and injuries, and have had a greater destructive influence on political and social
structures, than any other category of weaponry. Small arms easily find their way to those
areas that are the most beset with conflict and most vulnerable to its impact. It is here, too,
that they are least likely to be subject to legal control. In the wake of violent conflict or the
collapse of state structures (as, for example, in Albania in 1997, when 700 000 light weapons
were stolen from the country's central munitions store), the omnipresence of small arms can
easily prevent the restoration of the rule of law, while creating conditions in which violent
conflict may easily be reignited. Such weapons are also easily transported to fuel conflicts
elsewhere.

In addition to EU action aimed at controlling the export of conventional arms10,
the
Commission has, on the basis of a 1998 Joint Action, provided financial and technical
in
assistance for projects to combat
Cambodia, South Africa, Mozambique and Georgia/South Ossetia). A small arms collection
project is currently under consideration for the Solomon Islands. Until now these actions have
been limited in scope. The Commission nevertheless considers that this area holds great
potential for EU action. The Commission is also actively preparing the UN Conference on
illegal trade in light weapons and small arms to be held in summer 2001.

the accumulation and spread of small arms (e.g.

In countries with conflict potential, the customs sector, due to its role in preventing trafficking
of various kinds,
including of small arms circulation, deserves particular attention.
Community aid has targeted many countries, and particularly in the ACP region. In Bosnia,
one of the most effective Community programmes has been the CAFAO programme
(Customs and Fiscal Administration Office).

Finally it should be noted that all those actions presently underway within the EU or
Community framework to prevent the spread of nuclear, chemical, biological, dual use and
conventional weapons, and to promote safety in the related civilian sectors, should also be
seen as a contribution to conflict prevention.

The Commission will give higher priority to its support aimed at controlling the spread of
small arms. It will work for an ambitious Union position in view of the forthcoming UN
conference on illegal trade in light weapons and small arms. When managing programmes on
small arms, the Commission will closely examine the situation of the customs sector.

Management and access to natural resources

Competition over natural resources is often a root cause of tension. This may appear within
countries, at local or national level, as well as in a regional context. Sources of conflict can

10

See the 1998 EU Code of Conduct on Arms Export

17

vary from water and geological resources (oil, gas, gems, minerals) to biological resources
(e.g. fishery grounds, forest).

Conflicts over geological resources are particularly evident in many parts of Africa (Liberia,
Congo-Brazzaville, Sudan etc). Particularly important is the illegal trade in diamonds, the
profits from which serve to fuel conflicts. In many cases, control over this source of wealth
also generates conflicts. The Commission welcomes the fact that the major firms operating in
the sector are now seeking to introduce a certification system for rough diamonds. For its part,
the Commission is actively involved in the Kimberley Process, which tries to set up such a
system in line with UN Resolution 55/56. If such a certification system had been in existence
earlier, the UN sanctions against “conflict diamonds” could have been more effective.

The sharing of water resources in water-scarce regions is one of the most common and
complex sources of political tension. Such situations exist today in the Horn of Africa, the
Nile Valley, the Aral Sea basin including the Fergana valley and the Middle East. Sometimes,
conflict over water is aggravated by disputes concerning navigation rights and territorial
boundaries. The Commission has supported a number of initiatives dealing with water-related
conflict, notably in the Aral Sea area, in Southern and Eastern Africa, and in the Middle-East.

For example, a particularly useful project relating to the Middle East Peace Process has been
the establishment of “EXACT”, a regional institutional structure and data bank for water
management” by an Israeli-Jordanian-Palestinian action team with MEDA funding. This
project has led to on-going technical co-operation between Israel, the Palestinian Authority
and Jordan, despite the turbulent political situation.

In the short-term, measures must be built around mechanisms which ensure respect for those
national and international agreements on which water-sharing rights are generally based.
Failure to respect these agreements is a recipe for civil and/or inter-state conflict. In the
longer term, prevention of conflict over water needs to build on co-operation which focuses
on the fair management of shared water resources.

- The Commission will play an active role in the Kimberley task force on the certification
system for rough diamonds and will present a policy paper to the Council by the end of the
year outlining options on this issue.

-Where a clear commitment to regional collaboration exists, the Commission will support
regional actions aiming at a fair management of shared water resources.

Environmental degradation

Environmental degradation, often closely linked to resource problems such as access to water,
may be both a contributing factor to insecurity and conflict and the result of it. For example,
land degradation or climate change may have a destabilising effect on many regions, through
decrease in potential arable land, loss of income opportunities and migration.

Climate change represents perhaps the most challenging environmental problem of all. The
expected increase in sea-level rise, in extreme weather patterns and in effects on productivity
of land and ocean resources pose a significant threat to many people, notably in many small
islands developing states. 60% of the world population live in coastal areas, which are the
most sensitive. Loss of livelihood and migration are likely in many regions.

18

Another example of security risks linked to environmental degradation is forest loss. Apart
from global implications –forests are important to mitigate climate change- forest loss can
create conflicts between local groups, governments and private industry.

In this situation, EC environmental co-operation programmes can play an important role in
building confidence between communities and strengthening cross-border co-operation.

The Commission will address issues of natural resources and environmental degradation
the
through its bilateral and regional programmes and will enhance support
implementation by partner countries of Multilateral Environmental Agreements. High priority
will also be given to environmental rehabilitation projects in post-conflict programmes.

for

The spread of communicable diseases

Few challenges are more profoundly disturbing or more far-reaching in their implications for
social and economic development, and ultimately political stability, than the spread of major
communicable diseases, in particular HIV/AIDS, malaria and tuberculosis. In 1999, over 33
million people world wide were estimated to be living with HIV/AIDS, 95% of them in
developing countries. Malaria and tuberculosis are re-emerging in areas where they were
previously under control and with increasing resistance to drugs they are again on the increase
around the globe. The ravages of AIDS, malaria and tuberculosis reverse decades of
development efforts, send life expectancies tumbling, provoke changes in patterns of
production and cause overwhelming social and economic problems in the countries most
affected.

The Commission has recently presented a Programme of Action for the fight against the
spread of these diseases over the next five years. The programme, which is based on the
Community strategy on communicable diseases developed in the context of the poverty
reduction objective for external assistance, stresses the need to improve access to care and
medicines, in particular through the establishment of a global tiered (or differential) pricing
system and reduce tariffs and other costs for pharmaceuticals, and to strengthen developing
countries' policies and production capacities in the pharmaceuticals sector.

The prospects of success in reaching these goals will be improved by concerted international
action, through the UN, World Bank, World Health Organisation, and NGOs, as well as with
G8 partners and with industry. The December 2000 EU/US summit identified co-operation in
this area as a priority area of Transatlantic co-operation.

Population flows and human trafficking

Although large flows of people (migrants, asylum-seekers, internal and external refugees) are
usually seen as the consequence rather than the cause of conflict, they may also have
destabilising effects contributing to the spread and aggravation of conflict. Coping with such
inflows and their side effects on local or neighbouring populations is especially difficult for
developing countries.

The work of the High-Level Working Group on Asylum and Migration (HLWG), created by
the GAC in December 1998, is a first attempt to develop an external policy of the EU on
asylum and migration which makes use of the different measures offered by the Treaty:
foreign policy, development and economic assistance, migration and asylum, the fight against
discrimination based among others on sex and the fight against illegal migration. Action Plans

19

are currently implemented for Sri Lanka, Somalia, Albania, Afghanistan, Iraq and Morocco.
They all aim at comprehensively addressing the roots of displacement in the country of origin,
thus limiting the potentially damaging consequences of large human flows for neighbouring
countries and the EU. Until now however, the EU approach has been mostly reactive.

Migration flows can also be driven by criminal organisations. The fight against trafficking in
human beings, in particular in women and children, is part of EC co-operation programmes.
For example, an EU-US project to combat trafficking in women in Russia should start soon.

The Commission will seek to deepen its dialogue with specialised organisations in
view of better detecting destabilising population flows at an early stage. Such
organisations could include the International Organisation for Migration (IOM) and
the United Nations High Commission for Refugees (UNHCR).

Role of the private sector in unstable areas

Foreign private sector businesses play a major role in the socio-economic development of
many countries. However, they may also be partly responsible for maintaining, or even
creating, structural causes of conflict. A case in point is when companies run their operations
(for instance, in the field of natural resources) to the detriment of environmentally and
socially sustainable development.

The EC plays an active role, along with the Member States,
in the OECD's work on
implementing the Guidelines for Multinational Enterprises (revised version, June 2000).
These guidelines aim at encouraging businesses to behave responsibly when operating abroad,
and in particular in developing countries. This includes respect for the human rights of local
people, and non-interference in the political process.

Along with the social partners and other civil society organisations, the EC is also actively
involved in initiatives addressing such issues as free trade and voluntary codes of conduct for
undertakings investing abroad. In such cases, our role is principally that of a facilitator,
helping to bring the parties involved together for discussion and debate. In 2001 the
Commission will present a Green Paper on Corporate Social Responsibility (CSR) which will
address the issue of conflict prevention and the role which business can play in this field.

The Commission is committed to promoting actively the OECD guidelines for Multinational
Enterprises which aim at encouraging businesses to behave responsibly when operating
abroad, and in particular in developing countries.

2.

REACTING QUICKLY TO NASCENT CONFLICTS

As well as a long-term prevention strategy the EU will increasingly need the ability to react
quickly where the situation in a particular country seems to be entering a downward spiral.
The earlier the EU can take action, in cases of large-scale human rights violations, recurrent
outbreaks of violence, electoral unrest, the collapse of the machinery of government or ethnic
marginalisation, the more effective it is likely to be.

A capacity for troubleshooting depends crucially on the existence of a proper EU early
warning mechanism, not only to alert EU decision-making and operational centres to an
imminent crisis but also to study its causes and possible consequences and identify the most

20

appropriate response. However to make full use of such mechanisms and in order to be
credible, the EU has to prove political will to do what is needed to avert open conflict.

The Commission therefore strongly supports the idea that the Council should undertake
regular regional reviews so as to identify and monitor potential conflict zones. The
Commission will work with the Secretary General/High Representative, in order to determine
how this might best be done, including the establishment of early warning mechanisms
(indicators, networks, information gathering11, involvement of NGOs etc). The Commission’s
own world-wide network of Delegations gives it considerable scope for monitoring areas of
instability. This information is systematically shared with the Council Policy Unit in order to
improve the EU’s conflict analysis capabilities. The Commission is working to upgrade its
communication tools in order to ensure that the delegations will be able to make a timely and
substantial input, not least in situations of instability or crisis.

The Commission will work with the SG/HR on regular reviews of potential conflict zones,
including the establishment of early warning mechanisms.

A.

Optimising Community instruments

at

in

instruments

Refugees from Kosovo - EU support for neighbouring
countries

Early April 1999 saw a systematic effort to deport Kosovo’s
non-Serbian population to neighbouring states, a move
engineered by Milosevic with the aim of destabilising Serbia’s
neighbours. By 6 April 280 000 refugees had arrived in
Albania and 136 000 in FYROM, while another 60 700 people
were displaced in Montenegro.

Faced with a deteriorating situation
the EU has a number of traditional
(Community)
its
disposal. The Commission can for
example dispatch teams of electoral
in Zimbabwe) or
(as
observers
provide
economic
emergency
assistance. The Kosovo crisis is a
financial
point, where
case
support was made available at short
notice
to neighbouring countries
facing a massive influx of refugees
and displaced persons,
in order to
prevent destabilisation on a regional
scale
(see box). Montenegro is
the way aid
another example of
programmes can provide rapid back-
up for a predetermined political
strategy (see box). In January 2001,
when Israel withheld tax revenue
from the Palestinian Authority, the
Commission stepped in to avert the
economic collapse of the Autonomous Territories with an emergency
injection rapidly released from the Cash Facility. This has been followed by further support.

The host countries suddenly found themselves having to cope
with a humanitarian crisis
for which they were quite
unprepared. In FYROM for example, the influx of refugees
life was
threatened the ethnic balance on which political
based. There was a great danger that the entire region would
the Commission granted the
be destabilised. On 17 April
100
governments of FYROM, Montenegro and Albania
150 million in direct
million for refugee-related costs and
humanitarian aid.

That the Commission was able to overcome the constraints
imposed by administrative procedures and react rapidly to this
politically sensitive and critical situation was a key factor in
avoiding a major regional crisis.

€

€

€

30 million cash

The Commission is pursuing the actions outlined in its Communication on EU Election
Assistance and Observation12 so as to permit rapid deployment of trained EU election
observers.

11

12

also in the context of the recent initiative on Global Monitoring for Environment and Security (GMES)
as part of Europe’s strategy for Space (COM(2000)597)
COM(2000)191 final

21

Furthermore, humanitarian assistance may make an indirect yet valuable contribution to
conflict prevention by helping stem potentially destabilising floods of refugees or mitigate
their destabilising impact on neighbouring countries (e.g. former Yugoslav republic of
Macedonia, Albania, Kenya, Tanzania).

to

and

Montenegro - The EU reacts to a destabilisation risk

In development co-operation, the reform of programming will introduce rolling programming
systems to allow for greater flexibility in
responding both to the needs and to
performance levels of partner countries.
be used both as positive
This can
encouragement
co-
operation. In critical situations, pressure
can be exerted through the use of negative
measures
partial
as
suspension of Community co-operation
programmes.

Montenegro took a neutral position during the Kosovo
conflict. It did so in spite of NATO bombing raids over the
republic, which the government had great difficulty
explaining to its people. The EU provided Montenegro’s
President
leaders with
Djukanovic’s democratic behaviour and his brave stand in
the face of political pressure from Milosevic. It seized every
firm
opportunity to show support. The Community’s
notably
commitment
manifested by high-level visits to Montenegro by a member
of the Commission and the reception of Montenegrin leaders
in western capitals.

B.

Ensuring a swift Community
reaction

behaviour was

democratic

restrict

backing,

political

praising

such

total

or

to

require

otherwise

in a crisis situation,

The Rapid Reaction Mechanism (RRM)
approved by the Council on 26 February
will allow the Commission,
in a single
legal and financial framework, to carry out
a wide range of short-term actions which
would
more
cumbersome decision-making procedures.
For example,
the
Commission will be able to undertake
short-term operations, such as targeted
the 1999 Energy for
assistance (e.g.
Democracy’ programme in Serbia), fact-
finding missions, mediation or the dispatch
of observers. In cases where initial speed
is essential, but actions may need to be
continued over a longer period, the RRM
will allow for quick initiatives in peace-
building, reconstruction and development,
laying the groundwork for
longer-term
action to be taken over by traditional
Community instruments.

Importantly, however, this political support was backed up
by assistance programmes carefully targeted to offset the
tremendous economic pressure being exerted by the
Milosevic-controlled Federal administration (which, among
other things, sealed the administrative borders to put a
stranglehold on Montenegro’s economy and halted Federal
payments to Montenegrin pensioners). Aid programmes
were designed to provide immediate,
tangible economic
support for the population. This included paying family
allowances under the food security programme, providing
agricultural
equipment,
supporting the purchase of electricity from neighbouring
countries and repairing basic infrastructure to provide real
and easily-visible improvements in people’s day-to-day
lives. The overall aim was to maintain social cohesion and
underpin a stable democratic process in the interests of
Montenegro and the region as a whole.

and medical

transport

inputs,

The Commission also prepared support programmes for
independent media and civil
society. By fostering
transparency and a steady flow of information, they have
done much to help people understand the issues at stake.

C.

Political and diplomatic instruments

The EU has a variety of political and diplomatic options available to it where the situation in a
particular country or region looks like deteriorating sharply. These include the formal
statement or the diplomatic démarches, the political dialogue procedure, the dispatch of a fact-
finding mission or a team of EU observers and the appointment of a Special Representative.
In this context the political dialogue and the role of Special Representatives merit special
attention.

22

As a general consideration, it should be reaffirmed that for the EU to be a credible actor, it has
to show its capacity to adopt common political line on sensitive issues. Too often this has not
been the case.

Political dialogue

The EU engages in a political dialogue of varying degrees of formality with all countries with
which it has relations. A long-term dialogue on political issues including human rights and
democratisation can have an early warning role by highlighting problems which could in the
future lead to violent conflict as well as contributing to their early resolution. It is also
particularly important where a tense situation threatens to get out of hand.

To be of use in such situations, the political dialogue clearly needs to be more focused, time-
flexible and more robust than is often the case at present. For this to happen, however, the EU
must be capable of reaching a timely agreement on its policy and position upstream taking
due account of the situation on the ground, the expectations, fears and likely resolve of each
party, and crucially, how determined the EU itself really is to exert its influence. That in turn
means the Member States working out if not a common strategy then at least a common
political line.

The principles of Article 11 of the Cotonou agreement and the political dialogue of its article
8 offer scope for addressing conflict prevention in ACP countries. The Commission considers
that an important objective of the political dialogue is be to prevent as far as possible,
situations of political difficulty or tension from degenerating into armed conflict. Dialogue
should therefore include exchange of views on crises and conflict situations, mediation and
negotiation efforts and support to peace processes. If successful, such political dialogue under
Article 8 will reduce the chances of the situation degrading to the extent that the EU seeks
recourse to Article 96 consultations.

When article 96 is nevertheless applied due to a violation of the essential elements (respect
for human rights, democratic principles and the rule of law), the consultation process allows
the EU to send strong political messages and to try to find acceptable solutions. The case of
Cote d’Ivoire is instructive; the procedure was carried over in February 2001 and a committee
was set up to enable the EU, jointly with the Ivorian authorities, to monitor whatever
measures are adopted, the idea being to foster a cooperative approach.

The Commission considers that more systematic use must be made of the political dialogue
where a crisis appears imminent. Such dialogue should be based on a strong political line. It
should be more focused, time-flexible and robust than in the past. The Commission is
prepared to work with the SG/HR on developing concrete proposals in this field.

EU Special Representatives

The EU Special Representatives can also be useful in defusing potential crises. So far they
have generally been deployed in cases of open conflict (in the Great Lakes region, the Middle
East or the Horn of Africa), but they could undertake preventive diplomacy. The Council
guidelines of 30 March 2000 provides greater clarity for the appointment and management of
EU Special Representatives. However in order to be more effective and credible, Special
Representatives need to be given the role of full mediators on behalf of the Union and to
receive clear mandates from the Council on policy positions to be taken.

23

The Commission considers that the Special Representatives should be used more widely as
mediators, that they should be empowered to adopt a firm position on the situation covered by
the terms of their mandate, and that they should be available for short-term (e.g. six-month)
missions as well. The Commission is prepared to work with the SG/HR on developing
concrete proposals in this field.

D.

Using sanctions

Sanctions have generally been imposed after conflicts have broken out with the aim of
denying a “target” (i.e. country, party, entity) the means to prolong or escalate the violence.
These typically include arms and other war materials, export earnings, foreign capital, other
imported goods and technology, or travel facilities. Other types of sanctions such as visa ban
or the reduction of diplomatic representation are generally meant to give a strong political
signal. There is good reason, however, to look at how sanctions could be used preventively to
deny a potential belligerent the means to start a conflict. Many export control regimes
(targeting atomic energy, missiles, chemical production, small arms etc) are in effect a form
of preventive sanction.

So far the impact of sanctions has been somewhat disappointing. Thanks to poor design and
poor enforcement, it has generally been a question of too little, too late. For the financial
sanctions taken against the government of the Federal Republic of Yugoslavia in 1998-2000
to have been truly effective in preventing FRY interference in Kosovo, for instance, measures
should have been targeted swiftly and unambiguously on individual decision-makers.

In order to target preventive sanctions (“smart sanctions”) and minimise the suffering of
ordinary people, a rigorous preliminary analysis will be necessary. The “Potential Conflict
Indicators” (see above) will be useful in this context, making it possible to identify parties
liable to start a conflict and analyse their existing or potential power base. Such an exercise
would show how far the international community might actually prevent the build up or
consolidation of that power base by denying access to markets for goods, capital, technology
and other tangible or intangible assets. As sanctions often cause serious economic distortions,
any consideration of their use will have to weigh any potential political advantages against the
actual economic damage that they may inflict.

Preventive sanctions might be justified as legitimate countermeasures to serious violations of
human rights or humanitarian law. However as a general rule, they will have to be compatible
with international obligations13, (e.g. WTO rules, provisions of the Cotonou Agreement and
various bilateral agreements).

The Commission will initiate a debate within the Council on ways of enabling the EU to
devise and implement preventive sanctions.

E.

Adapting EU crisis-management machinery

The new civilian and military crisis-management tools currently being developed in the
context of the European Security and Defence Policy (ESDP) could be used to deal with the
earliest stages of incipient conflict. Though initially designed for crisis management they
could be just as effective in a preventive, "pre-crisis" role. On the military side, the modalities

13

If they are imposed in the first instance by the UN, this overrides other obligations, thus ensuring
compatibility.

24

for implementation of Petersberg tasks, including co-operation with third countries and other
organisations such as NATO, need further elaboration in the ESDP framework.

On the civilian side, in a number of areas identified by the Feira European Council – the
police, the rule of law, civil administration and civil protection – the Commission is working
with the Member States to help identify and set detailed, specific targets. The Commission
has already presented a proposal for a draft decision on arrangements for co-ordinating
Member States' civil protection activities, with reference specifically to training and the
deployment of assessment teams. This proposal should be adopted shortly.

In the fields of the rule of law and civil administration, a major problem faced by the Union is
the lack of suitably qualified and available personnel ready for deployment in international
missions. This is a problem faced not just by the Union, but also by the UN, OSCE and other
bodies engaged in international peace missions. In the Commission’s view, the best way to
build up the Union’s capacity in this field is by developing common training programmes as
well as agreed mechanisms to make staff rapidly available. Staff to be deployed should also
be given special gender sensitive training.

Concerning training in the fields of rule of law and civil administration for personnel to be
deployed in international missions, the Commission is encouraging Member States to work
together and with the UN and OSCE. The Commission is prepared to support such training
programmes with Community funds.

One thing is however clear: setting up civilian crisis-management machinery and deploying it
for preventive ends is no substitute for strengthening the capacity of unstable countries or
regions to deal peacefully with their own conflicts.

3.

ENHANCING INTERNATIONAL COOPERATION ON CONFLICT PREVENTION

There are obvious problems in mounting a coherent international response as long as the
situation in a potential trouble spot is still unclear. Whatever form international co-operation
takes, therefore, it must address the need to spot potential outbreaks of conflict at the earliest
possible stage and ensure that any preventive measures are co-ordinated. The need for
international co-operation is just as crucial when it comes to providing a coherent response to
nascent conflicts.

A.

Co-operation with other countries

Conflict prevention is an integral part of the EU’s political dialogue with many industrialised
partner countries such as the US, Canada, Japan, Russia and Norway. However different the
respective approaches may be, the EU clearly shares with them common political goals of
international security and stability. Dialogue with those partners should be used to improve
information exchange and co-ordination of activities including démarches in international
fora. It should also be used to develop common conflict indicators. In this respect, the EU can
learn from countries such as Canada and Norway which have developed quite advanced
conflict indicators and early warning systems for use in development co-operation.

A useful network for co-ordination of international (as well as multinational) donors remains
the Conflict Prevention and Resolution (CPR) network, in which USAID, CIDA (Canada),
the World Bank and certain Member States are particularly active.

25

In post-conflict situations, co-ordination is also fundamental. A promising avenue for co-
ordinating post-conflict assistance with other countries (and international organisations) is the
"Friends of" approach. This approach consists in having the broadest possible number of
international donors co-ordinate their actions in a particular country.

The Commission proposes to integrate more systematically into the political dialogue with
partner countries discussions on early-warning systems and regular monitoring of potential
conflict zones.

In post-conflict situations, the Commission intends to play a more active role within the
"Friends of" approach and to foster exchanges of information among donors.

B.

Co-operation with international organisations

Co-operation with United Nations

East Timor - International cooperation

in

an

on

the

preventing

keeping with

overall mandate

East Timor offers a number of insights into EU action in a
post-conflict scenario.

After the violence started in September 1999, the EU not only
provided immediate humanitarian assistance but saw the
urgent need for rehabilitation further down the road. Two core
needs were identified: to get an administrative system up and
running (i.e. the UN administration) and to prepare a coherent
blueprint for rehabilitation. It was clear from the start that any
approach would need to be well coordinated if it was to
succeed and that the UN Transitional Administration for East
Timor (UNTAET) offered the best vehicle for coordination.
The Trust Fund for East Timor (TFET), an open international
fund managed by the World Bank, became the main vector for
post-conflict rehabilitation.

of
With
maintenance of international peace
and security, the United Nations is a
key partner in conflict prevention.
The EU and the UN often work
together
the
resurgence of conflicts in the context
of peacekeeping operations. In two
recent operations to which the EU
made a heavy political commitment
(Kosovo
two
and Timor),
organisations achieved a division of
labour
their
respective spheres of competence. In
the case of East Timor a trust fund
the World Bank
managed
provided an effective means
for
harnessing donor contributions (see
box on East Timor). In the case of
Kosovo,
has
launched “lessons learned” exercise
on the experience of the UNMIK
economic
and
development pillar. The principle of
complementarity between relevant
actors was recently reconfirmed in
the discussion on co-operation for
peace-building at the 4th High Level
Meeting between UN and Regional Organisations held in New-York in February 2001.

From the outset the Commission and Member States have
channelled significant
financial contributions and human
resources to both UNTAET and the TFET. The results speak
for themselves: East Timor has been one of the most effective
rehabilitation operations ever. There have been minor
problems with the coordination of
reconstruction efforts
between donors, agencies and UNTAET or the speed of work.
But the difficult circumstances – helping build a new nation
practically from scratch in little more than two years – mean
that these post-conflict operations have to be considered an
important step towards the success of the operation.

And there is no doubt that a jointly-agreed political goal, i.e. a
smooth transition to independence with sustainable political
and economic structures, will play its part in bringing the
UNTAET operation to a successful conclusion.

the Commission

reconstruction

by

The Commission is closely following the implementation of the Brahimi Report14 and fully
subscribes to the peace-building approach set out in the Report. In proposing the Rapid

14

Report of 21 August 2000 of the Panel on UN Peace operations

26

Reaction Mechanism (see above),
proposals on establishing quick impact projects for countries emerging from crisis.

the Commission drew inspiration from the UNSG’s

Nevertheless, there is clearly room for a more structured dialogue between the two parties on
the common aim of conflict prevention at both operational and political levels.

Since the EC/UN Framework Agreement of 1999, the Commission is now in a better position
to co-operate with the UN in co-financing activities. The proposal by the Commission for a
new EC Financial Regulation foresees more flexibility in the financing of UN activities, in
particular through programme funding and non-earmarked contributions. The Commission is
currently examining the possibility of supporting the Trust Fund for Preventive Action. This
Fund was created in 1996 to strengthen the preventive capacity of the UNSG as well as his
early warning function in crisis situations.

In connection with environmental issues linked to conflict situations, the UN system plays a
crucial role in multilateral co-operation. A large number of Multilateral Environmental
Agreements provide a legal framework for co-operation and capacity building to mitigate
global, regional or shared environmental problems.

Conflict prevention should be a major element of the enhanced structural dialogue being put
in place between the Union and the UNSG. For its part, the Commission, which has already
developed a programming dialogue with UNHCR and WFP, proposes to establish a similar
dialogue with other UN agencies, funds and programmes.

At operational level the Commission is prepared to exchange its Country Strategy Papers with
the UN Common Country Assessments. It intends to launch a dialogue with UN agencies on
this subject. It is also currently looking at the possibility of providing financial support for the
Trust Fund for Preventive Action.

In the environmental field, the Commission intends to raise the link between natural resource
depletion and security during the preparations for the ten-year review of Rio, the 2002 World
Summit on Sustainable Development in Johannesburg.

Co-operation with the Bretton Woods Institutions

Co-ordination with the World Bank (WB) and the International Monetary Fund (IMF)
will take an important step forward in relation to Poverty Reduction Strategy Papers (PRSP)
prepared by a number of countries receiving aid from these institutions15. Where a PRSP
exists it will form the cornerstone of WB/IMF support and of the Commission's Country
Strategy Papers. The EC is therefore discussing the forthcoming papers both with the
countries concerned and with the Bretton Woods institutions.

Specific needs in terms of budget support should not be neglected in post-conflict situations.
A case-by-case approach in close co-ordination with the Bretton Woods institutions must be
applied.

15

Countries eligible for assistance from IDA or support from the Fund’s Poverty Reduction and Growth
Facility. A number of PRSP have already been prepared e.g. for Albania, Bosnia, Mauritania, Tanzania.

27

Co-operation with OSCE and Council of Europe

The Commission maintains a continuing and permanent dialogue with both the OSCE Chair
in Office (currently Romania) and the OSCE Secretariat. It also participates in joint
programmes or projects (human rights, collection of small arms etc). Detailed discussions are
underway with the OSCE's Conflict Prevention Centre, to exchange information on the
progress of conflict prevention activities, in relation to the OSCE REACT system (Rapid
Expert Assistance and Co-operation Teams) and in the area of training.

The Commission and the Council of Europe have worked together on joint programmes to
raise public awareness of issues in connection with the death penalty in Russia, Turkey,
Albania and Ukraine. Last year the EC extended its co-operation to cover the issue of the
Roma in south-eastern Europe, democratic stability in the northern Caucasus and support for
judicial reform in Moldovia.

The Commission will continue to pursue its co-operation with OSCE and the Council of
Europe in the area of Conflict Prevention, notably by developing common
modules/programmes for staff training for field operations (cf. OSCE REACT system).

Co-operation with others

Within the OECD the Commission is a member of the DAC Task Force on Conflict, Peace
and Development Co-operation, in which we intend henceforth to play a more active role.
This provides a useful forum for building up donor and recipient country conflict-prevention
capabilities.

The G8 Conflict Prevention Official-Level Meeting (CPOM) was set up last year during
Japan's G8 presidency. Following up the conclusions of the Miyazaki G8 Foreign Ministers'
Meeting,
the emphasis was initially on small arms and light weapons, conflict and
development, illicit trade in diamonds, children in armed conflicts, and international civilian
police. During this year's Italian G8 presidency, the list of subjects will be expanded to
include the role of women and corporate social responsibility.

Over and above various humanitarian assistance measures,
the Commission plans to
strengthen its dialogue with the ICRC at the highest level, as well as to maintain on-going
information exchange at working level. The Commission will also give greater attention to
supporting the ICRC in its protection mandate, as international guarantor of the Geneva
Conventions.

In the G8 framework, the Commission plans to use the G8 CPOM to promote the EU's
positions on these subjects and foster coherence between this forum and other international
ones where these issues are discussed.

C.

Cooperation with NGOs

By virtue of their support for the development of civil society and democracy, NGOs are key
actors in long-term conflict prevention. They are often present on the ground in situations
where official state structures are absent. They can also function as grass roots mediators as
well as reliable and neutral observers in situation where there is no international presence.
Mediation activities of specialist NGOs have sometimes proved decisive in a crisis.

28

The Commission intends to stress conflict prevention in its contacts with NGOs (both human
rights-based and others) to try and identify those which might play a significant role in
conflict prevention.

The Commission will give higher priority, through the European Initiative for Democracy and
Human Rights, to activities that contribute to the prevention of conflicts and help to deal with
the consequences of conflicts.

CONCLUSION

It should no longer be necessary to argue the merits of an approach based on long-term
the essentially measured and co-operative nature of
preventive action. What
preventive action is bound to make it more acceptable to the recipient than a peacekeeping
operation that may well involve the use of force. International co-operation and co-ordination
will make it possible to ensure that preventive operations are undertaken on a complementary
basis.

is more,

The Commission is determined to mobilize Community instruments more effectively and in a
co-ordinated fashion to support efforts deployed to prevent conflict, from far upstream to the
last phases of a conflict developing into confrontation and crisis. This will include:

• building the objectives of peace, democracy and political and social stability more clearly
into our assistance programmes. This should be reflected in our general approach as well
as for example by placing greater emphasis on support to the building of stable institutions
and the rule of law (including in policing and the administration of justice);

• ensuring also, in our assistance programmes, that account is taken of indicators of political
exclusion, ethnic, social or regional marginalisation, environmental degradation or other
factors which, if unchecked, might lead to civil strife or violent confrontation;

• bringing added value to international

initiatives on cross-cutting issues which may
contribute to tension and conflict such as international crime, the spread of small arms, the
diamond trade, drug trafficking, child soldiers;

• drawing on other means, e.g.

trade policy instruments and trade and co-operation
agreements, or tools derived from areas such as justice and home affairs, migration, social
or environmental policy;

• developing new approaches and instruments to deal with conflict and crisis situations. The
Rapid Reaction Mechanism for faster mobilisation of Community instruments is one
example. The forthcoming Communication on linking relief and rehabilitation to
development will set out other means to exploit.

Among available instruments, EC external assistance is certainly the most powerful one. It
was used with some success, for example in Salvador and Guatemala, to re-establish a degree
of structural stability. It is currently put to integrated use in the process of reconstruction and
consolidation in the Western Balkans. Practical proposals made in this communication will
help to further mainstream conflict prevention in external assistance.

29

Were the situation in a particular country suddenly deteriorates, long-term preventive work
must give way to rapid reaction informed by a clear and coherent policy. Many ways exist to
improve the quality of our response and in particular to make better use of Community or
CSFP instruments, as discussed in this communication. Important recommendations have also
been made in the Joint Report by the SG/HR and the Commission to the Nice European
Council on conflict prevention. The Commission will closely work with the relevant Council
bodies, and in particular with the SG/HR and the Council Secretariat/Policy Unit on their
implementation.

In the end, our capacity for action in response to conflicts is intrinsically dependent on three
factors: a clear definition of Union objectives, the capacity to act and, most importantly, the
political will to act. The effectiveness of the Union's action will depend, above all, on the
extent to which it expresses a common political approach by the Member States of the EU. At
the moment, conflicts of interest still tend too often to get in the way of rapid decision-
making. The forging of common values and interests into a set of clear common priorities and
objectives on sensitive issues constitutes the real test of our ability to contribute to conflict
prevention.

30

The Commission:

Annex

List of recommendations

Long-term prevention

• will give higher priority to its support for regional integration and in particular regional

organisations with a clear conflict prevention mandate;

• will ensure that its development policy and other co-operation programmes are more

clearly focused on addressing root causes of conflict in an integrated way;

• will use in all Country Strategy Papers appropriate indicators to analyse potential conflict

situations;

• will develop practical programming tools for mainstreaming conflict prevention measures

in co-operation programmes with countries at risk;

• will exchange Country Strategy Papers with corresponding documents from Member

States.

• will set up a pilot system, in close co-operation with Council Policy Unit, for the regular
exchange of information between Commission, Council Policy Unit and Member State
desk officers, for two unstable areas: the Balkans and the Great Lakes.

• is considering co-financing World Bank and IMF funding instruments which will support

the implementation of Poverty Reduction Strategy Papers in the ACP countries;

• will implement, for countries showing conflict potential, more targeted actions, where
appropriate, to open the way to a more favourable democratic environment. In particular
increased emphasis will be placed on support
to electoral processes, parliamentary
activities and the administration of justice. In doing so, the Commission will in particular
promote the equal participation of men and women in social, economic and political life.

• intends, within the limits of its competencies, to play an increasingly active role in the
security sector area. This will take the form of activities aiming at improving police
services, promoting conversion, disarmament and non-proliferation both as regards
weapons of mass destruction and conventional weapons. The Commission could support
human rights training for the whole security sector.

• will, in post-conflict situations, concentrate EC assistance on the consolidation of peace
and the prevention of future conflicts, in particular through rehabilitation programmes,
child-related rehabilitation measures and DDR programmes as well as programmes
supporting reconciliation processes.

• will focus its co-operation/anti-drug actions on the two main routes by which drugs reach
Europe, through the Balkans and between Latin America and the Caribbean. In so doing , it
will continue to draw on the expertise of Member States.

31

• will give higher priority to its support aimed at controlling the spread of small arms. It will
work for an ambitious Union position in view of the forthcoming UN conference on illegal
trade in light weapons and small arms. When managing programmes on small arms, the
Commission will closely examine the situation of the customs sector.

• will play an active role in the Kimberley task force on the certification system for rough
diamonds and will present a policy paper to the Council by the end of the year outlining
options on this issue;

• will support, where a clear commitment to regional collaboration exists, regional actions

aiming at a fair management of shared water resources;

• will address issues of natural resources and environmental degradation through its bilateral
and regional programmes and will enhance support for the implementation by partner
countries of Multilateral Environmental Agreements. High priority will also be given to
environmental rehabilitation projects in post-conflict programmes;

• will seek to deepen its dialogue with specialised organisations in view of better detecting
destabilising population flows at an early stage. Such organisations could include the IOM
and UNHCR;

• is committed to promoting actively the OECD guidelines for Multinational Enterprises
which aim at encouraging businesses to behave responsibly when operating abroad, and in
particular in developing countries;

Short term prevention

• will work with the SG/HR on regular reviews of potential conflict zones, including the

establishment of early warning mechanisms;

• will initiate a debate within the Council on ways of enabling the EU to devise and

implement preventive sanctions;

• considers that more systematic use must be made of the political dialogue where a crisis
appears imminent. Such dialogue should be based on a strong political line. It should be
more focused, time-flexible and robust than in the past. The Commission is prepared to
work with the SG/HR on developing concrete proposals in this field.;

• considers that the Special Representatives should be used more widely as mediators, that
they should be empowered to adopt a firm position on the situation covered by the terms of
their mandate, and that they should be available for short-term (e.g. six-month) missions as
well. The Commission is prepared to work with the SG/HR on developing concrete
proposals in this field;

• is encouraging Member States to work together and with the UN and OSCE, on training in
to be deployed in
the fields of rule of law and civil administration for personnel
international missions. The Commission is prepared to support such training programmes
with Community funds;

32

International co-operation

• proposes to integrate more systematically into the political dialogue with partner countries
discussions on early-warning systems and regular monitoring of potential conflict zones. In
post-conflict situations, it intends to play a more active role within the "Friends of"
approach and to foster exchanges of information among donors;

• considers that conflict prevention should be a major element of the enhanced structural
the
dialogue being put
Commission has already developed a programming dialogue with UNHCR and WFP and
proposes to establish a similar dialogue with other UN agencies, funds and programmes;

in place between the Union and the UNSG. For its part,

• is prepared, at the operational level, to exchange its Country Strategy Papers with the UN
Common Country Assessments. It intends to launch a dialogue with UN agencies on this
subject. It is also currently looking at the possibility of providing financial support for the
Trust Fund for Preventive Action;

• intends to raise the link between natural resource depletion and security during the
preparations for the ten-year review of Rio, the 2002 World Summit on Sustainable
Development in Johannesburg;

• will continue to pursue its co-operation with OSCE and Council of Europe in the area of
Conflict Prevention, notably by developing common modules/programmes for staff
training for field operations (cf. OSCE REACT system);

• plans to use the G8 CPOM to promote the EU's positions on small arms and light weapons,
conflict and development,
trade in diamonds, children in armed conflicts,
international civilian police, role of women and corporate social responsability and foster
coherence between this forum and other international ones where these issues are
discussed.

illicit

• will give higher priority,

through the European Initiative for Democracy and Human
Rights, to activities that contribute to the prevention of conflicts and help to deal with the
consequences of conflicts.

33