Communication from the Commission to the Council and the European Parliament - The 2005 UN Summit – Addressing the global challenges and making a success of the reformed UN
Date: 2005-06-15
Institutions: European Commission
Subjects: European Union, UNO, international affairs, international cooperation

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 15.6.2005 
COM(2005) 259 final 

COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT 

The 2005 UN Summit – Addressing the global challenges and making a success of the 
reformed UN 

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COMMUNICATION FROM THE COMMISSION 
TO THE COUNCIL AND THE EUROPEAN PARLIAMENT 

The 2005 UN Summit – Addressing the global challenges and making a success of the 
reformed UN 

The  UN  Summit  in  New  York  on  14-16  September  2005  is  an  opportunity  for  the 
international community to agree on new, collective action and commitments addressing the 
main  challenges  of  today’s  world,  as  well  as  to  strengthen  the  UN’s  capacity  and  make  it 
more efficient. The EU is firmly committed to effective multilateralism, as expressed in the 
European Security Strategy and the Commission’s Communication on “the European Union 
and the United Nations: the Choice of multilateralism”1 of September 2003 and will live up to 
the expectations of the international community to make a strong contribution to the success 
of the UN Summit. The EU is actively engaged in fostering a concrete Summit outcome that 
matches  its  ambition  to  undertake  substantive  actions  to  support  the  full  implementation  of 
the Millennium Declaration and to better equip the United Nations to help face the challenges 
of the 21st century.  

The Commission’s proposals in the field of development on 12 April 2005, and the ambitious 
commitment made by the EU on the basis of these on 24 May 2005, constitute an important 
demonstration of the EU’s commitment to contributing to a successful Summit outcome. The 
EU is also contributing to advancing the agenda in other areas, including peacebuilding and 
human rights. The resolution adopted by the European Parliament on 9 June 2005 is a highly 
constructive contribution. The EU must also demonstrate its commitment to ensure the timely 
implementation  of  the  Summit  outcome,  and  show  to  partners  how  it  intends  to  contribute 
effectively to that implementation, including through Community policies and instruments. In 
this Communication, the Commission would like to put forward action-oriented suggestions 
for  EU  positions  and  actions  related  to  that  Summit  and  its  follow-up  on  a  number  of  key 
issues, building on agreed EU positions. 

A  HIGH  LEVEL  OF  AMBITION  FOR  THE  SUMMIT  AND  A  FIRM  COMMITMENT  TO 
IMPLEMENTING THE SUMMIT OUTCOME 

The Commission expects to see as many clear and action-oriented decisions as possible to be 
taken at the Summit and to be implemented as soon as possible following the Summit. The 
draft  outcome  document  presented  by  the  President  of  the  UN  General  Assembly  H.E.  Mr 
Jean Ping, on 3 June 20052 indicates in certain cases that further details relating to proposed 
decisions  need  to  be  worked  out  after  the  Summit.  In  that  case,  a  clear  timeframe  should 
wherever possible be set for the process, and this should not put in danger any decisions taken 
at the Summit itself.  

The EU’s engagement in supporting action towards addressing the main challenges of today’s 
world and to UN reform will not end with the Summit itself. The EU should demonstrate its 
commitment  to  ensuring  follow-up  to  and  implementation  of  the  Summit  outcome.  The  EU 

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COM(2003) 526, 10.9.2003; welcomed by the Council on 8 December 2003 and the European Council 
on 12 December 2003. 
http://www.un.org/ga/president/59/draft_outcome.htm 

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should take a clear front-runner approach, in line with its engagement in favour of effective 
multilateralism. 

At this stage of the Summit preparations, not all of the issues to be addressed at the Summit 
could be covered in this Communication, which focuses only on some key issues for the EU 
where the Commission has a specific contribution to make. The resulting limitation of issues 
should therefore not imply that other issues on the Summit’s agenda not covered here are of 
lesser  importance  to  the  EU.  The  Communication  also  addresses  already  ideas  for 
implementation, which should be seen as examples of how the follow-up to the Summit could 
be ensured. 

1. 

DEVELOPMENT:  DELIVER  ON  INCREASING  AID  VOLUMES  AND  IMPROVING  AID 
EFFICIENCY AND POLICY COHERENCE 

The draft outcome document for the Summit tabled by the President of the General Assembly 
contains a number of positive recommendations in the field of development, which provide a 
good basis for a useful outcome in September. The EU hopes in particular that other countries 
will follow the example it has set in undertaking firm commitments to new and ambitious 
targets  in  the  area  of  Financing  for  Development,  in  particular  for  Official  Development 
Assistance (ODA), on the basis of the Monterrey Consensus and the Barcelona Commitments, 
on policy coherence and on a special focus on Africa. The new EU collective commitment 
for  a  GDP  threshold  of  0.56%  by  2010  (which  should  translate  into  €20  billion  more  in 
official development assistance (ODA) per year as of 2010 compared to what is expected for 
2006), and 0,7% by 2015 (which should result in €45 billion more per year as of that time), is 
an important step forward for international solidarity and a clear sign of the EU’s commitment 
to a successful Summit. Furthermore, the EU remains also committed to finding solutions, in 
cooperation  with  International  Financial  Institutions,  to  unsustainable  debt  burdens,  and  is 
committed to full implementation of the enhanced HIPC initiative. It will be vital to agree on 
the  scope  and  modalities  for  further  multilateral  debt  relief  in order  to  secure  the  long  term 
debt sustainability on a case by case approach.  

In addition to volume of aid, the EU has decided to pay particular attention to its quality and 
effectiveness  and  will  work  towards  enhanced  operational  complementarity  in  aid  delivery 
and  further  untying  of  aid.  In  its  forthcoming  proposal  for  a  new  EU  development  policy 
statement the Commission will propose how to ensure that the Summit  outcome  in relevant 
areas is taken into account.. 

With  the  EU  representing  over  50%  of  world  ODA  and  the  European  Community  itself 
accounting  for  10%  of  ODA,  improving  implementation  is  a  key  concern.  The  EU  should 
advocate that the UN Summit is a good forum for stressing improved efficiency of aid. Since 
2000, the Commission has been fully engaged in a process of management reform which has 
substantially  improved  the  speed  and  quality  of  delivery  of  European  Community  external 
assistance.  Major  policy  reform,  strengthened  strategic  programming  and  evaluation, 
streamlined  management  structures,  improved  working  methods  and  devolution  of  decision 
making to Delegations of the European Commission have been the hallmarks of this process. 
This  has  resulted  in  an  external  assistance  programme  which  promotes  co-ordination  and 
fosters coherence at EU level. 

More  finance  and  improved  aid  delivery  are  important  instruments  that  complement  the 
domestic  efforts  of  developing  countries,  whose  primary  responsibility  has  been  recognised 

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by the Monterrey Consensus. To these efforts, which also focus strongly on the mobilisation 
of  domestic  financial  resources  for  development,  the  EU  has  stressed  the  contribution  of 
non-aid  policies  in  attaining  the  Millennium  Development  Goals  (MDGs).  The  EU  has 
adopted a series of concrete commitments to increase policy coherence and to reconfirm the 
pro-development commitments in the non-aid policies.  

The EU recognises the centrality of the eight MDGs for poverty reduction and growth in all 
developing countries and reiterates its commitment to achieving all the goals. The EU should 
fully  recognise  the  link  between  achieving  the  MDGs  and  fulfilling  other  existing 
commitments  from  major  international  conferences.  As  an  example,  a  number  of  issues 
concerning  sustainable  development,  sexual  and  reproductive  health  as  well  as  employment 
and decent work merit being properly reflected in the outcome of the Summit. 

The  Commission  proposes  that  the  EU  expresses  its  readiness,  in  the  context  of  the 
implementation of the Summit, to better align its development policy behind the priorities set 
by  developing  countries  in  their  poverty  reduction  strategies  in  conformity  with  the  MDGs. 
This  would  facilitate  predictable  additional  funding  and  enhance  the  coordination  and 
coherence  of  its  development  cooperation.  The  EU  should  also  encourage  the  international 
donor community to make the necessary alignment. 

The specific poor  situation of Africa and the bleak  prospects  for  meeting  the  MDGs  in  that 
continent deserve special attention. In May the Council adopted – based on the Commission’s 
proposals – a series of commitments to assign a political priority to Africa and to accelerate 
the EU’s actions in a limited number of areas. The EU has confirmed that it will increase its 
financial assistance for Sub-Saharan Africa and will provide collectively at least 50% of the 
agreed increase of ODA resources to the continent. This would translate into €10 billion more 
per year as of 2010 and €22 billion more per year as  of 2015. Scaling up support to Africa 
implies  additional  investments  by  donors  and  partner  countries  in  good  governance,  inter-
connectivity,  food  security,  human,  social  and  economic  development,  delivery  of  basic 
services  and  environmental  sustainability.  The  Commission  confirms  its  intention  to  put 
forward proposals by the autumn for a comprehensive and long-term EU Strategy for Africa, 
to be adopted by the European Council in December 2005. 

As regards the fight against communicable diseases, the EU has renewed and strengthened its 
commitment to confront HIV/AIDS, malaria and tuberculosis (TB) through external action in 
a  new  European  Programme  for  Action  (PfA)  adopted  by  the  Commission  in  April  20053. 
This PfA will facilitate coordination and joint actions by the EU (EC and Member States). As 
requested by the Council in its Conclusions on the PfA, the Commission and Member States 
will draft a roadmap in order to increase the coherence and coordination of the EU efforts to 
confront HIV/AIDS, malaria and TB through EU external action. The PfA and the roadmap 
may also help to establish a link with the UN inter-agency strategy in the fight against these 
three  diseases.  In  this  context  the  EU  should  stress  the  need  to  pay  particular  attention  to 
children from HIV/AIDS positive parents. 

The EU should also attach great importance to a successful outcome of the second phase of 
the  World  Summit  on  the  Information  Society  to  be  held  in  Tunis  in  November  2005,  as 
Information and Communication Technologies (ICTs) play a key role in achieving the MDGs. 

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COM(2005) 179. 

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2. 

TRADE AND DEVELOPMENT: MOBILIZE TRADE AS ENGINE FOR DEVELOPMENT 

The EU should strongly emphasize the mobilisation of international trade as an engine for 
development,  with  a  trade  policy  that  supports  other  policy  priorities  such  as  development, 
poverty reduction, environmental protection and the promotion of decent work for all. A call 
by the Summit for rapid completion of the Doha Development Round, no later than in 2006, 
in a manner that fulfils this development promise should be welcomed. The EU has in May 
20054 confirmed its strong commitment to ensuring a development-friendly, sustainable and 
ambitious outcome of the Doha Development Agenda that maximises development gains and 
thus  contributes  to  the  achievement  of  the  MDGs.  The  EU  will  continue  its  efforts  in  this 
regard  including  in  the  context  of  the  December  2005  WTO  Ministerial  in  Hong  Kong.  An 
ambitious  outcome  would  provide  new  market  access  opportunities  for  goods  and  services 
from developing countries and strong and development-friendly trade rules.  

The Commission recalls the commitment5 to work towards the objective of duty- and quota-
free market access for all LDC products and considers that developed countries should deliver 
on that commitment at the UN Summit.  

The Summit should also recognise the importance of additional funding to support developing 
countries’ own strategies for trade adjustment and integration into the multilateral system. The 
EU  will  also  continue  to  assist  developing  countries  in  integrating  trade  into  their  national 
development strategies and in carrying out necessary domestic reforms. The EU will further 
improve  its  Generalised  System  of  Preferences  and  Rules  of  Origin,  for  the  benefit  of 
developing countries. 

The Summit should also recognise and support the role of regional organisations and regional 
integration  in  a  wide  range  of  areas  including  trade,  provided  of  course  that  they  are 
compatible with WTO law. The EU will further enhance the promotion of regional integration 
as  a  valuable  strategy  for  smooth  and  gradual  integration  of  developing  countries  into  the 
world  economy,  notably  in  the  framework  of  Economic  Partnership  Agreements  with  the 
ACP countries. 

3. 

EMPLOYMENT  AND  SOCIAL  ISSUES:  ADDRESS  THE  SOCIAL  DIMENSION  OF 
GLOBALIZATION 

The Summit should reconfirm the commitment to the follow-up to the Copenhagen Summit, 
and in particular to the promotion of decent work for all (including the combat against child 
labour) should be taken into account in a global partnership for development and  should  be 
part  of  nationally  owned  development  strategies.  Decent  work  includes  not  only  the 
promotion of full, productive employment, but also a range of other key elements such as core 
labour  standards,  conditions  of  work,  gender  equality,  investment  in  human  capital,  social 
security, safety at work and social dialogue. It is necessary to recognise the importance of an 
integrated policy approach and  policy coherence for development, and in this context to 
promote  mutually  reinforcing  economic,  employment,  social  and  environmental  policies  at 
global, regional and national level.  

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General Affairs and External Relations Council, 23-24 May 2005. 
LDC III, Brussels, May 2001. 

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The EU is firmly committed to mobilise all its policies, including its trade, development and 
external relations policies and instruments, to promote decent work and better to address the 
chances and challenges of globalisation. In December 2004 the European Council underlined 
the importance of strengthening the social dimension of globalisation for it to bring maximum 
benefits for all, both men and women, based on the report of the World Commission on the 
Social Dimension on Globalisation and the Commission proposals6. To this end, the EU will 
cooperate with national authorities, social partners and civil society. It will promote efforts to 
ensure policy coherence between the international institutions and encourage the dialogue and 
cooperation between WTO, the Bretton Woods institutions and ILO.  

The  EU  further  intends  to  enhance  its  support  for  fair  trade  as  a  tool  for  sustainable 
development and poverty eradication, and continues to promote the commitment of European 
companies  to  Corporate  Social  Responsibility  (CSR)  as  a  relevant  business  contribution  to 
sustainable development and to poverty reduction.  

4. 

GENDER EQUALITY THROUGH MAINSTREAMING AND SPECIFIC MEASURES 

Gender  equality  is  central  to  development  and  to  the  eradication  of  poverty,  to  peace  and 
security,  and  human  rights,  and  should  be  strongly  reaffirmed  and  promoted  through  a 
combination  of  gender  mainstreaming  and  specific  measures  in  policies  and  programmes  in 
all  spheres  of  life.  This  should  be  taken  into  account  in  all  partnerships  and  in  national 
development  strategies  including  in  poverty  reduction  strategies.  A  gender  balanced 
participation in decision making should be promoted, including in the bodies and agencies of 
the  UN.  A  gender  equality  perspective  should  be  fully  reflected  in  the  outcome  of  the  UN 
Summit, and integrated in the follow up of all major UN Conferences in the economic, social 
and environmental field. This is the commitment taken by the EU at the 10th anniversary of 
the  Beijing  Platform  for  Action.  The  EU  should  aim  for  the  Summit  to  reaffirm  the 
commitment  to  the  full  exercise  by  women  of  all  human  rights  as  well  as  the  readiness  to 
efficiently  combat  trafficking  of  women  as  a  part  of  trafficking  of  human  beings.  Specific 
emphasis should also be on the need to better address the issue of violence against women. 

The  Commission  will  continue  supporting  initiatives  on  gender  mainstreaming  and  specific 
measures in all areas of development cooperation. In that respect, the Commission has taken 
significant  actions  in  relation  to  capacity  building  and  training.  An  expanded  capacity 
building program is planned for 2007-2009 and will focus on strengthening capacities of key 
stakeholders in partner countries. The Commission also supports specific initiatives on gender 
equality  aiming  at  monitoring  trends,  reinforcing  country  dialogue  and  developing  national 
strategic plans from a gender perspective. 

5. 

SUSTAIN  OUR  ENVIRONMENT  AND  PROTECT  THE  NATURAL  RESOURCES  BASE  FOR 
DEVELOPMENT 

If  the  Summit  is  to  meet  its  ambition,  the  recognition  of  the  importance  of  sustainable 
development  and  the  protection  of  the  natural  resource  base  for  development  and  poverty 
eradication  should  be  a  key  feature  in  the  outcome.  Indeed,  achievement  of  Millennium 

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COM(2004) 383, 18.5.2004. 

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Development Goal 7, “environmental sustainability”, is essential if other MDGs on poverty, 
health or gender equality are to be met.  

For  its  part,  the  EU  has  played  a  leading  role  in  fostering  sustainable  development  and  has 
made the links between sustainable development and poverty eradication part of a number of 
its policies. It remains strongly committed to meeting and sometimes exceeding global goals 
and  targets  for  sustainable  development,  at  home  and  internationally.  It  is  tackling 
unsustainable  consumption  and  production  and  working  to  decouple  economic  growth  and 
environmental degradation7. It also developed its own Strategy for Sustainable Development, 
which it is now revising, with the aim to reinforce its international aspects.  

The  EU  is  increasingly  mainstreaming  environment  in  its  development  policy  and  provides 
support  to  help  developing  countries  taking  up  obligations  in  the  context  of  Multilateral 
Environmental Agreements. In the context of its focus on Africa, the EU will strengthen its 
support  to  combat  environmental  degradation.  It  has  promoted  mechanisms  to  protect 
developing countries from hazardous substances and waste, ridding the world from its most 
harmful man-made substances.  

The  EU  will  continue  to  promote  a  number  of  pro-poor  environment-related  initiatives  and 
policies. The EU is, for example, the world’s largest provider of development assistance for 
water and sanitation. In particular, the EU Water Initiative and the ACP-EU Water Facility 
are  tools  built  on  partnership  to  contribute  to  international  targets  for  drinking  water  and 
sanitation.  In  the  field  of  energy,  the  EU  launched  the  EU  Energy  Initiative  for  poverty 
eradication  and  sustainable  development  (EUEI)  and  approved  an  ACP-EU  Energy  Facility 
aimed to increase access to modern energy services, including sustainable use of biomass for 
household energy. The  EU  remains  committed to increase the share of renewable energy in 
the energy mix and will work towards this aim together with its partners in the “Johannesburg 
Renewable Energy Coalition”.  

Among  the  issues  to  be  addressed  at  the  Summit,  the  Commission  believes  the  following 
should receive particular attention:  

•  The  global  challenges  of  climate  change  require  the  widest  possible  cooperation  by  all 
countries and their participation in an effective, cost-efficient and appropriate international 
response in accordance with their common but differentiated responsibilities and respective 
capabilities.  The  Summit  should  decide  to  undertake  concerted  global  action  to  mitigate 
climate  change  and  limit  its  negative  consequences  and  to  start  formal  discussions  on  a 
more  inclusive  international  framework  to  combat  climate  change  beyond  2012  at  the 
Climate Change conference in Montreal in November/December 2005.   

The  EU  has  reconfirmed  its  commitment  to  the  Kyoto  Protocol  and  is  strengthening  the 
integration  of  climate  change  into  its  development  cooperation8.  The  EU  also  recognises 
the need for support for the adaptation efforts of developing countries, in particular those 
that  are  the  poorest  and  worst-affected.  The  EU  has  started  developing  its  medium  and 

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An  integrated  Product  Policy,  building  on  the  life-cycle  approach  to  products,  and  an  Environmental 
Technology Action Plan have been developed; upcoming initiatives include the Thematic Strategies on 
Sustainable Use of Natural Resources and on Prevention and Recycling of Waste. 
“Climate Change in the context of Development Cooperation” - COM(2003) 85 - and the “Action Plan 
to accompany the EU Strategy on Climate Change in the Context of Development Cooperation - 2004-
2008”, the General Affairs and External Relations Council, 22 November 2004. 

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long-term  strategies  for  winning  the  battle  against  climate  change,  inside  the  EU  and 
together  with  the  international  community9.  In  support  of  this,  the  EU  is  engaging  in  an 
open dialogue with its international partners on the future development of the international 
climate  change  regime  post-2012  and  how  it  can  support  the  sustainable  development  of 
developing countries. 

•  The  WSSD  targets  on  biodiversity  are  far  from  being  fulfilled.  According  to  the  UN 
Millennium Ecosystem Assessment, "an unprecedented effort would be needed to achieve 
by 2010 a significant reduction in the rate of biodiversity loss". Preserving our biodiversity 
is key to achieving MDGs, notably those on poverty, water, health and environment. The 
Summit  should  therefore  call  upon  all  Governments  to  significantly  strengthen  efforts, 
individually and collectively, to implement the Convention on Biological Diversity and to 
achieve  the  Johannesburg  commitment  for  a  significant  reduction  of  its  rate  of  loss  by 
2010. 

For its part, the EU has pledged to stop the decline of biodiversity in Europe by 2010, and 
the Commission is proposing to review the EU Biodiversity Strategy to achieve this target. 
It  will  also  increase  earmarked  funds  for  biodiversity  and  strengthen  measures  to 
mainstream biodiversity concerns in development assistance. 

•  Desertification often affects the most marginalised people in some of the poorest countries 
on  earth.  However,  the  UN  Convention  to  Combat  Desertification  has  so  far  not  had  its 
intended result. The Summit should call for greater attention to desertification in sectoral 
policies and strategies in order to accelerate implementation and should request the Parties 
to  the  Convention  to  set  measurable  targets  at  the  national  and  regional  level  for 
achievement by 2015, with a global process for measuring progress. 

•  Sustainable  resource  use  and  governance  of  the oceans,  a  resource  common  to  mankind, 
are essential to sustainable development. The EU supports the key contribution that the UN 
plays  in  Oceans  management  under  the  UNCLOS  and  the  2002  Johannesburg  Plan  of 
Implementation  of  the  WSSD.  The  Commission  has  started  the  process  of  preparing  a 
Green Paper to be adopted in the first half of 2006, constituting a first step towards an all-
embracing Maritime Policy and addressing issues such as international ocean governance 
and  the  Law  of  the  Sea,  data  exchange,  research,  maritime  security,  environmental 
protection, and the economic use of the ocean and its resources in a sustainable manner. 

6. 

STEP UP DISASTER PREPAREDNESS AND PREVENTION 

The  vulnerability  to  natural  disasters  is  a  key  concern,  and  the  EU  should  support  a 
commitment  to  establish  at  the  Summit  a  worldwide  early  warning  system  for  all  natural 
hazards and to implement fully the outcome of the World Conference on Disaster Reduction 
held in Kobe in January 2005. It is essential that disaster preparedness and prevention is taken 
into  account  in  MDG  oriented  strategies,  poverty  reduction  strategy  papers  and  national 
sustainable development strategies.  

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“Winning the Battle Against Global Climate Change” - COM(2005) 35 - and European Council, , 25-26 
March 2005. 

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The EU is committed to assisting the victims of such disasters, including those resulting from 
environmental degradation, whether they are within the affected country or have had to cross 
a national border to seekshelter, bearing in mind that global warming alone could put at risk 
200 million people by 2050.  

The Commission has in addition outlined measures10 to reinforce the EU’s disaster response 
capacity,  stressing  that  the  Hyogo  Declaration  and  Framework  for  Action  adopted  at  the 
World Conference on Disaster Reduction should be the starting point for the EU strategy to 
reinforce preventive measures, early warning and disaster preparedness. The EU should, inter 
alia,  put  particular  emphasis  on  integrating  disaster  risk  reduction  into  sustainable 
development  policies  and  into  programmes  in  countries  that  have  been  affected  by  disaster, 
and  on  the  strengthening  of  institutions,  mechanisms  and  capacities  at  all  levels  to  build 
resilience to hazards and disaster preparedness (both inside and outside the EU).  

7. 

PEACE AND COLLECTIVE SECURITY: INCREASE THE EFFICIENCY OF THE SYSTEM  

The  Commission  considers  that  it  is  important  that  the  Summit  outcome  recognises  the 
interlinkages between threats to security that know no boundaries (including poverty, armed 
conflicts, violence against civil populations – in particular women and children, weapons of 
mass  destruction,  terrorism,  organised  crime,  environmental  degradation  and  infectious 
diseases),  as  well  as  the  need  to  address  those  threats  preventively  and  in  an  integrated 
manner (including through development assistance to address root causes). The emergence of 
a new security consensus should be based on this recognition. 

7.1.1 Peacekeeping 

The  European  Union  has  recently  redoubled  its  efforts  to  strengthen  international  crisis 
management  capabilities,  including  in  the  field  of  peacekeeping.  This  contribution  is  fully 
acknowledged  by  the  draft  outcome  document.  Recognizing  the  importance  of  including  a 
regional  approach  to  peacekeeping,  the  EU  has  established  a  Peace  Facility,  which  can 
provide  support  to  African  peacekeeping  capacities.  The  Commission  will  continue  to 
contribute to the further development of EU crisis management capabilities. 

7.1.2.  Peacebuilding Commission 

A consensus on establishing a Peacebuilding Commission (PBC) is essential. Such a body 
would fill a clear gap in the UN system. The EU should support a broad mandate entailing a 
holistic approach to peacebuilding, i.e. covering the whole continuum from peace-keeping to 
longer-term  development  issues.  In  the  stabilisation  and  development  phase,  strong  focus 
needs to be given to the consolidation of sustainable peace and to preventing the reoccurrence 
of  conflict.  The  Summit  should  decide  on  the  creation  of  the  PBC,  as  well  as  on  the  basic 
features of its mandate, its reporting links to the UN Security Council as well as to ECOSOC, 
the modalities pertaining to its composition, and a timeframe for when it becomes operational. 
The Summit should furthermore decide to establish a Peacebuilding Support Office, and could 
also  decide  to  set  up  a  multi-year  standing  fund  for  peacebuilding  (the  modalities  of  which 
could be worked out after the Summit). The Commission proposes that the EU supports the 

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COM(2005) 153 on reinforcing EU disaster and crisis response in third countries, and COM(2005) 137 
on improving the Community Civil Protection Mechanism. 

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deadline  of  31  December  2005  for  setting  up  the  Peacebuilding  Commission,  that  has  been 
proposed by the President of the General Assembly.  

The  EU  will  certainly  contribute  actively  to  the  future  work  of  the  Peacebuilding 
Commission,  using  European  Community  and  CFSP  instruments,  in  line  with  the  European 
Security  Strategy.  The  EU  has  already  for  many  years  been  providing  a  substantial 
contribution  to  peacebuilding  efforts  around  the  world  ,  including  through  European 
Community  instruments  under  its  external  relations  and  development  policies.  In  the 
following, elements related to the first pillar are highlighted. 

The EC is  well  placed to address post-conflict challenges  given the financial amounts at its 
disposal  and  its  all-embracing  geographical  coverage.  It  does  so  through  a  wide  range  of 
external  assistance  policy  frameworks,  through  targeted  economic  measures  (relief, 
rehabilitation, reconstruction and development), and through special programmes for human 
rights,  gender  equality,  institution  building,  democratization  and  rule  of  law.  Additionally, 
managing  the  trade  policy  of  the  biggest  trading  partner  in  the  world,  it  can  bring  in  trade 
related instruments which have played and can play a critical role in addressing post-conflict 
challenges.  

There  are  numerous  examples  in  recent  years  of  the  European  Community  providing 
substantial assistance to peacebuilding activities globally, be it in Afghanistan, Iraq, Kosovo, 
DRC,  Sudan,  Ivory  Coast,  Liberia,  to  the  African  Union  and  three  regional  African 
organisations, in Central and Latin America, etc. The Commission will reflect on the lessons 
learned  from  these  and  other  experiences  and  best  practices,  so  as  to  contribute,  in  close 
cooperation  with  the  High  Representative/Secretary  General,  to  the  EU’s  input  into  the 
deliberations at UN level on the creation and the workings of the Peacebuilding Commission. 

Given these experiences and its contributions to peacebuilding efforts around the globe, the 
European  Community  should  fully  participate  in  all  meetings  of  the  Peacebuilding 
Commission. 

7.1.3. 

Sanctions 

The EU has consistently underlined its commitment to the prompt implementation of all UN 
Security  Council  sanctions.  It  should  express  its  support  to  all  efforts  to  enhance  their 
effective  implementation  by  the  entire  membership  of  the  UN.  The  need  to  further  enhance 
the effectiveness of targeted individual sanctions should be reflected in the Summit outcome, 
while seriously considering further improvement of listing and delisting procedures so as to 
ensure  respect  for  fundamental  rights.  The  EU  should  emphasize  that  the  sustainability  of 
targeted individual sanctions - which have emerged as an instrument of choice in many UNSC 
sanctions  regimes,  not  least  in  the  fight  against  terrorism  -  depends  also  on  the  respect  of 
human rights and appropriate means to ensure such respect at UN level. 

7.1.4. 

Small arms and light weapons 

The accumulation and proliferation of small arms and light weapons (SALW) continues to 
threaten  international  security,  human  safety,  as  well  as  socio-economic  development.  The 
Commission  shares  the  analysis  of  the  UN  Secretary  General11.  This  problem  has  a 

11 

UN Secretary General’s “In Larger Freedom“ report, March 2005. 

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particularly negative influence on peace and sustainable development, especially in Africa. It 
is  therefore  important  that  the  Summit  agrees  to  develop  a  legally  binding  international 
instrument  to  regulate  the  marking,  tracing  and  illicit  brokering  of  small  arms  and  light 
weapons.  Consensus  on  such  a  convention  should  be  reached  by  next  year’s  Review 
Conference  on  the  Programme  of  Action.  Leaders  should  also  commit  to  expedite 
negotiations on an instrument on illicit brokering in the supply of arms. The Summit should 
also encourage negotiations on an International Arms Trade Treaty. The Summit should look 
for  a  better  incorporation  of  actions  aiming  at  the  destruction  of  SALW  surpluses  into 
demobilisation,  disarmament  and  reintegration  (DDR)  and  development  processes.  The 
Commission  underlines  its  firm  support  to  the  UN  Firearms  Protocol.  There  are  several 
ongoing  initiatives  of  EU  Member  States  and  Europol  in  the  area  of  combating  illicit 
trafficking  of  firearms  that  are  likely  to  have  an  impact  concerning  conflict  prevention  and 
combating terrorism. 

Landmines  continue  to  be  one  of  the  major  threats  to  human  security  in  many  countries,  in 
particular  in  post-conflict  regions.  Continued  assistance  to  mine  clearance  and  stockpile 
destruction  as  well  as  the  promotion  of  the  universal  adherence  to  the  Ottawa  Convention 
should be ensured.  

7.1 5.  Terrorism and organized crime 

The Summit outcome should endorse and commit to the implementation of the UN Secretary 
General’s  proposal  for  a  comprehensive  UN  strategy  for  the  fight  against  terrorism.  The 
Summit should also support the conclusion of a comprehensive convention on terrorism in the 
course of the 60th General Assembly, and not later than in June 2006 (as has been suggested 
by the President of the General Assembly). It is also of essence that the need to address the 
root  causes  of  terrorism  and  the  importance  of  fully  respecting  human  rights  in  the  fight 
against terrorism are recognized in the Summit outcome.  

The  effective  prevention  and  combating  of  terrorism  requires  us  to  work  within  our  own 
countries and with our partners in the world. In addition to dialogues at political level, the EU 
is  actively  pursuing  international  co-operation  on  technical  assistance  to  help  countries 
implement UN Security Council resolution 1373 as well as assisting in capacity building and 
promoting the values of freedom, security and justice, the rule of law and good governance.  

The  Commission  also  supports  the  development  of  multilateral  approaches  to  combat 
organised  crime,  working  to  ensure  comprehensive  ratification  and  implementation  of 
international  instruments,  such  as  the  relevant  UN  Conventions,  and  the  development  of 
international standards and provisions developed in other fora such as the Council of Europe, 
G8,  OSCE  and  OECD.  The  Commission  and  UNODC  have  enhanced  their  cooperation  in 
combating organised crime and illicit drugs by signing a cooperation agreement12.  

Transparency and good governance in the financial, tax and judicial areas are essential to 
address  concerns  linked  to  the  fight  against  the  financing  of  terrorism,  the  financing  of 
organised  crime,  money  laundering,  corporate  and  financial  fraud,  tax  fraud  and  tax 
avoidance, corruption and other malpractices. The EU should therefore encourage its partners 
to  adopt  the  highest  standards  of  transparency,  exchange  of  information  and  cooperation 
among competent authorities. 

12 

Exchange of letters, signed in January 2005. 

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7.1.6.  Environment and security 

The Commission shares the view that due to the interconnectedness of security, development 
and  human  rights,  we  must  tackle  the  security  concerns  of  all  States  and  address  in  an 
integrated manner their economic, environmental and social dimensions. The link between the 
exploitation of natural resources (such as diamonds or timber) and conflict has emerged as 
a constant in some of the most brutal conflicts of recent times. The Summit should recognise 
the  importance  of  the  environment  for  global  security  and  the  threat  that  environmental 
degradation  poses  to  security.  The  UN  should  fully  integrate  environmental  issues  at  the 
programming  and  policy  making  level  in  conflict  prevention,  humanitarian  assistance, 
peacebuilding and reconstruction activities. In addition, the Commission believes that further 
consideration should be given to:  

•  Strengthening  the  monitoring  of  scarce,  degraded,  valuable  and/or  transboundary 
environmental resources, especially in areas where they could lead to conflict or when their 
common management could lead to better neighbourly relations. 

•  As part of an effort to tackle root causes of conflict in a more systematic manner, setting up 
of a UN structure to examine the link between natural resources exploitation and conflict. 

•  Encouraging donor governments to work closely with commodity producing countries that 
face  the  risk  of  conflicts  to  enhance  governance,  transparency  and  traceability  in  key 
commodity sectors.  

The EU can contribute to the strengthened monitoring of natural resources, notably through 
the  joint  European  Commission  and  European  Space  Agency  initiative  which  aims  to 
establish  by  2008  a  European  capacity  for  global  monitoring  of  environment  and  security 
(GMES). 

8. 

HUMAN  RIGHTS,  DEMOCRACY  AND  RULE  OF  LAW:  IMPROVE  THE  SYSTEM 
PROMOTING THEIR REALIZATION 

8.1.1.  Human rights 

The  EU  should  fully  support  the  replacement  of  the  UN  Commission  on  Human  Rights 
(CHR)  with  a  standing  Human  Rights  Council  (HRC)  elected  directly  by  the  General 
Assembly. Given that membership of the HRC would imply a particular resolve to advance 
and protect human rights, prospective members should be expected to demonstrate a readiness 
to examine and improve their own human rights record. This might include the preparation of 
a  presentation  detailing,  e.g.  commitments  to  ratify  and  implement  human  rights  treaties, 
fulfilment  of  reporting  requirements  to  human  rights  treaty  bodies,  active  co-operation  with 
UN  special  mechanisms,  and  other  domestic  and  international  activities  to  promote  and 
protect human rights.  

The HRC should retain the positive features of the current system, including the country and 
thematic  special  procedures.  The  proposed  peer  review  system  would,  however,  institute  a 
distinct and novel role for the new body. All UN Member States should be susceptible to the 
process and all human rights should be encompassed by it. The levels of ratification of key 
human rights instruments vary widely, and the system should therefore not be based solely on 

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fulfilment  of  human  rights  obligations  as  ratified  by  particular  States  under  scrutiny,  but 
should also measure progress against a wider range of human rights standards.  

There would, however, need to be a clear perspective as to where such a review might lead. 
This  could  be  recommendations  for  improvement,  possibly  accompanied  by  technical 
assistance, but also critical censure. The HRC should in any case be able to draw, at any time, 
attention to sudden and significant deteriorations of the human rights situation in a particular 
country. This “alarm function” would be an important task for the HRC; another would be to 
support  and  monitor  the  integration  of  human  rights  into  all  activities  of  other  UN  organs, 
including of the Security Council and the Peacebuilding Commission. 

It  is  desirable  that  the  new  HRC  is  put  into  place  as  rapidly  as  possible  following  the  UN 
Summit and the expected adoption of further details regarding its composition and functions 
at the 60th session of the GA. The implications for the process of finalising arrangements for 
the new HRC on the 60th UN General Assembly’s Third Committee and the 62nd Session of 
the  CHR  should  be  taken  into  immediate  consideration  by  the  EU.  In  order  to  secure  the 
effective  participation  of  States  in  the  peer  review  process  a  clear  timetable  for  States’ 
participation in the review should be established well in advance. The EU could anticipate the 
logic  of  peer  review  –  rooting  co-operation  on  human  rights  in  a  sound  assessment  of  the 
needs of particular country, with the active engagement of that country – in its reflections on 
possible action on country situations. 

An  invigorated  OHCHR  is  an  indispensable  supplementation  to  the  creation  of  the  HRC, 
including  the  greater  emphasis  which  would  be  placed  on  co-operation  with  States  to  fulfil 
their  human  rights  commitments.  The  EU’s  support  for  the  OHCHR  should  translate  into 
sustained  efforts  to  ensure  that  the  OHCHR  is  well-placed  to  realise  the  transformation 
envisaged  in  the  Plan  of  Action  which  was  submitted  to  the  UN  Secretary-General  in  May 
2005.  The  EU  should  ensure  that  its  response  takes  into  account  the  emphasis  placed  on 
greater  country-level  engagement  in  the  Plan,  which  articulates  well  with  the  EU’s  own 
process  of  vesting  country-level  operations  with  greater  responsibilities.  In  addition  to 
continuing  efforts  to  improve  donor  co-ordination,  this  should  encapsulate  improved  policy 
co-operation.  Regular  roundtables  drawing  together  EU  Member  States’  embassies, 
Delegations of the European Commission, UN and other key players could also be held and 
could  help  identify  shared,  local  human  rights  priorities  for  more  concerted  action.  The 
Commission  will  complement  the  efforts  of  the  OHCHR,  through  provision  of  technical 
assistance aimed at promoting implementation of human rights standards worldwide. 

More  generally,  the  EU  should  stress  that  respecting  and  protecting  human  rights  - 
encompassing all civil, political, economic, social and cultural rights - are central to improve 
people's status and living conditions. 

8.1.2.  Democracy Fund 

The proposed establishment of a Democracy Fund is a welcome initiative. The Commission 
recommends that the EU advocates for the Fund to operate on the basis of country requests. 
However  it  is  important  that  civil  society  is  supported  through  the  Fund  as  well.  The  Fund 
should be available to promote all aspects of democratisation and not just the electoral field. 
Particular  consideration  should  be  given  as  to  how  the  Democracy  Fund  could  be  used  to 
promote  dialogue  on  democratic  values  between  peoples  across  cultural,  religious  and 
political divides.  

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The necessary steps to define the arrangements regarding the operation of the Fund should be 
taken  immediately  after  the  conclusion  of  the  Summit,  with  a  view  to  the  Fund  becoming 
operational  early  2006.  The  Commission  will  provide  input  to  the  EU’s  contribution  to  the 
UN  debate  on  the  proposed  Democracy  Fund,  and  will  ensure  that  its  programmes  and  any 
new UN-led activities for promoting democracy are in complement to each other. 

The Commission has enjoyed for a number of years close partnership with the United Nations 
Electoral Assistance Division (UNEAD) and with UNDP in the electoral field. For example in 
the run up to the Presidential, Constituent Assembly and Kurdish elections in Iraq in January, 
2005,  the  Commission  provided  experts  to  work  within  the  United  Nation's  technical 
assistance team supporting the Independent Electoral Commission of Iraq while at the same 
time  providing  more  than  €30  million  to  a  trust  fund,  managed  by  the  United  Nations  in 
support of the running of the elections themselves. The Commission has also worked closely 
with  the  UN  in  electoral  matters  in  many  parts  of  the  world  including  Afghanistan,  Guinea 
Bissau, Lebanon, Nigeria and Indonesia. The Commission is ready to work closely with the 
Fund as part of the EU’s wider co-operation in support of democratisation. 

8.1.3.  Responsibility to protect 

The EU should support the concept of the responsibility to protect and make sure that this 
concept is translated into meaningful commitments and action on the part of States, including 
making full use of the International Criminal Court. The Summit should endorse the concept 
of  the  responsibility  to  protect.  If  the  Summit  decides  to  invite  the  General  Assembly  to 
continue  the  debate  on  the  issue,  such  an  invitation  should  be  accompanied  with  a  clear 
objective and timeframe (not beyond the 60th General Assembly). 

8.1.4.  Human security 

The  Commission  reaffirms  its  commitment  to  promote  human  security  as  a  means  to 
empower  people  and  address  effectively  insecurities.  In  this  respect  it  will  in  particular 
support measures to protect children affected by armed conflict, not least with the aim to ban 
their misuse as soldiers.  

9. 

HUMANITARIAN AID: STRENGTHEN INTERNATIONAL CAPACITIES 

In the area of humanitarian affairs, the EU should support efforts to strengthen the capacity 
of the humanitarian  system to  respond effectively and equitably to humanitarian crises. The 
EU  should  carefully  examine  the  recommendations  coming  out  of  the  “Humanitarian 
Response  Review”  initiative  of  the  Emergency  Relief  Coordinator/USG  for  Humanitarian 
Affairs and should work together with the UN system to ensure that a concrete follow up is 
given. The EU should, through both its policy work and its action in the field, contribute to 
supporting  the  UN  in  upholding  and  protecting  the  humanitarian  space  and  principles,  to 
ensuring  safe  access  to  vulnerable  populations,  to  pursuing  more  coherent  financing,  to 
improving local capacity in disaster-prone areas, as well as to the strengthening of the UN’s 
own  internal  co-ordination  role  and  the  leadership  role  of  the  humanitarian  coordinator. 
Furthermore,  the  EU  should  work  together  with  the  UN  to  improve  the  acceptance  of  the 
Guiding Principles for Internally Displaced Persons as international norms for the protection 
of IDPs and for adoption of those principles through national legislation. 

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10. 

STRENGTHENING THE UNITED NATIONS: REFORM THE INSTITUTIONAL SET-UP 

10.1.1.  General Assembly 

The EU should underline its support to the revitalization of the General Assembly. There is 
a need to reinstate the political stature of the General Assembly, asserting its role as the main 
universal deliberative body and support Summit conclusions in this direction. The agenda of 
the General Assembly should focus more strongly on agreed global priorities of the UN and 
the principal current substantive issues. The EU should also support increased participation by 
civil  society  in  the  work  of  the  UN,  and  the  recommendations  contained  in  the  Cardoso 
Report.  

10.1.2.  ECOSOC 

The EU should express its support for ECOSOC reform, for it to becomemore operational. 
The  Summit  outcome  should  emphasize  its  role  in  all  pillars  of  sustainable  development, 
making  sure  that  any  reform  of  the  ECOSOC  and its  activities are compatible  and coherent 
with the reforms of the General Assembly and its committees. ECOSOC’s role as a bridge to 
other  institutions,  and  in  ensuring  coherence,  coordinated  implementation  and  follow  up  to 
major UN conferences and summits needs to be reinforced in the fields of development and 
economic governance, as well as on other economic, environmental and social aspects. 

10.1.3.  Security Council 

Discussions  should  continue  among  the  UN  membership  on  comprehensive  reform  of  the 
Security  Council  and  how  to  make  it  broadly  representative  and  more  transparent.  It  is 
however in this context essential to ensure that the UN Security Council reform discussions 
do not hinder progress on other areas on the Summit agenda. 

10.1.4. Human Rights Council 

The HRC may be established as a main charter body in due course but, given that this requires 
revision of the UN Charter, an interim solution could be adopted, with the HRC created as a 
subsidiary  organ  of  the  General  Assembly  (GA).  The  EU  should  also  make  sure  that 
mechanisms  for  fully  associating  NGOs  to  the  work  of  the  HRC  are  set  in  place.  As  the 
review  system  of  the  HRC  develops,  successful  engagement  with  it  and  with  the  special 
mechanisms might also be expected to enhance a State’s prospects for election to the HRC. 
The  EU  should  explore  the  idea  of  this  linkage  further  with  other  members  of  the  Western 
Group and with other UN regional groups and should also seek to “lead by example”.  

10.1.5.  UN Secretariat 

Reform  of  the  UN  Secretariat  is  a  crucial  element  for  the  implementation  of  UN  reform. 
The  EU  should  emphasize  its  support  to  the  UN  Secretary  General’s  reform  efforts  and  its 
commitment  to  reviewing  the  functioning  of  the  UN  machinery  for  operational  activities  of 
the UN in accordance with the outcome of the Summit.  

10.1.6.  UN system coherence 

The  UN  system  of  agencies,  funds  and  programmes  has  been  expanding  over  time  in  scale 
and  scope  of  activities  leading  to  significant  duplication  of  mandates  and  actions  between 
different bodies within the system. The EU should participate actively in efforts to improve 

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the  coherence  and  effectiveness  of  the  UN  system,  particularly  in  its  activities  at  country 
level.  This  improvement  in  coherence  and  coordination  must  also  lead  to  better  and  more 
systematic  cooperation  with  other  partners,  including  the  World  Bank.  Accordingly,  UN 
agencies, funds and programmes should organise their technical activities at country level to 
effectively  assist  the  countries  to  develop  and  implement  the  national  poverty  reduction 
strategies to reach the MDGs. To drive this process the role of the UNDP and UNDG guiding 
the  UN  country  teams  is  crucial  and  should  be  strengthened,  together with  the  coordinating 
role  of  the  UN  resident  coordinator.  The  governing  and  executive  boards  of  the  agencies, 
funds and programmes should fully support this process and the EU should play a central role 
in this important part of the UN reform. 

Strengthening  coherence  is  also  central  when  creating  new  UN  structures  and  bodies.  In 
particular, the new Peacebuilding Commission and the Human Rights Council will need to be 
well  integrated  into  the  UN  system,  including  by  setting  up  effective  links  between  each 
other. 

10.1.7.  Environmental governance 

Improved environmental governance at all levels is an important part of poverty reduction 
and  the  global  security  agenda.  Immediate  action  is  needed  to  review  the  mandate  of  UN 
agencies,  funds  and  programmes  in  order  to  further  integrate  environment  across  the  UN 
system. Partnerships between UN bodies should be encouraged wherever necessary.  

The  Summit  should  adopt  a  clear  decision  to  launch  the  process  of  developing  a  UN 
Environment  Organisation,  with  a  timeline  for  further  steps.  The  Organisation  should  be 
built  on  UNEP  with  an  integrated  and  updated  mandate,  based  on  stable,  adaptable  and 
predictable  financial  contributions,  on  equal  footing  with  other  UN  specialised  agencies.  A 
UN  Environment  Organisation,  with  headquarters 
the 
environmental dimension of sustainable development in an integrated and coherent way and 
cooperate closely with the multilateral agencies to that end, each making optimal use of their 
comparative advantages. 

in  Nairobi,  would  advance 

10.1.8.  Relationship between the UN and regional organisations 

The Commission proposes that the EU should welcome the UN Secretary General’s intention 
to  conclude  agreements  (or  Memoranda  of  Understanding)  between  the  UN  and  regional 
organisations,  and  should  give  due  consideration  to  concluding  such  an  agreement  or 
Memorandum  of  Understanding  with  the  UN  in  order  to  provide  a  general  institutional 
framework  to  the  cooperation,  building  on  existing  co-operation  modalities  As  regards  the 
strengthening of the capacity of regional organisations, the EU will increase its support to 
the capacity building of the African Union. It will support the implementation of reforms that 
the  Africa  Peer  Review  Mechanism  will  trigger  and  has  invited  the  Commission  to  make 
concrete  proposals.  The  EU  will  increase  its  support  to  the  African  Union  and  other  Sub-
Regional  organisations  in  the  field  of  peace  and  security,  within  the  framework  of  the 
European action plan for peace and security in Africa and through the Peace Facility. 

CONCLUSION 

As  the  preparations  for  the  Summit  are  stepped  up  and  have  received  a  critical  momentum 
with the presentation of a draft outcome document, there is a clear potential for the EU, even 
strong  expectations  from  many  international  partners,  to  play  a  leading  role  in  the  coming 

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months to make this Summit a success and to translate its achievements into action. Based on 
its commitments in the field of development and its regular input to many important aspects 
of  the  debate,  the  EU  should  already  at  this  stage  be  ready  to  look  beyond  the  Summit  and 
present a view on how to effectively implement the Summits results as well as how to swiftly 
solve  remaining  outstanding  issues.  In  particular,  in  the  Commission's  view,  the  EU  should 
continue to keep the ambition for the Summit high and to reach out to the other stakeholders 
in the reform debate, in particular other UN member states and civil society representatives, 
as well as to support to the best possible way the UN Secretary-General and his team, as well 
as the President of the GA in preparing a successful Summit. The EU has so far demonstrated 
its clear will to make an impact in order for the Summit to succeed. It will be up to the EU to 
stay the course so that others can follow this path. 

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