The Senior Minister of State, Department for Communities and Local Government & Foreign and Commonwealth Office (Baroness Warsi)
My Lords, I am grateful to the noble Baroness, Lady Cox, for tabling today’s timely debate, and I thank all noble Lords for their informed contributions. I also commend the continued work of the Associate Parliamentary Group for the Republic of Sudan and South Sudan, of which the noble Baroness is a member, as are other noble Lords who are here today.
I particularly thank the noble Lord, Lord Triesman, for bringing his experience of the region to this debate and the tone with which he dealt with the debate. Of course, this is the second time I have had the opportunity to participate in a debate on Sudan and South Sudan, both of which remain high foreign policy priorities for this Government, but other Ministers before me have debated this topic on numerous occasions, in lengthier debates and in Oral Questions.
Our focus this evening has been on the internal conflicts within Sudan but I will also take the opportunity to update noble Lords on the broader context of the relations between the two countries. When I spoke about this subject in October last year, there was reason for cautious optimism about relations between Sudan and South Sudan. We and our international partners welcomed the signing of nine agreements on 27 September, and we made clear that we expected to see their full implementation, as well as resolution of the remaining disputes between the two countries. As the noble Earl, Lord Sandwich, has said, there have been many cliff-hangers on this journey, and this appears to be another one. It is deeply frustrating that since the signing of those agreements we have seen a lack of progress in their implementation, despite further negotiations occurring on a number of occasions thereafter.
At the start of the year hopes were raised again that we might see progress when the Presidents of Sudan and South Sudan met on 5 January and were able to recommit to making rapid progress on implementation. However, by the time the Presidents met again at the African Union summit later that month, it appeared that the good faith that had previously been shown had now gone, leaving no obvious way forward beyond the vague promise of further discussions. Like other noble Lords, I find that deeply frustrating and disappointing.
It is now crucial for both countries to take concrete and substantial steps forward on implementation of those agreements, particularly on security arrangements, demilitarisation of the border zones and allowing the export of oil. The UK Government will continue to give their full support to the African Union high-level implementation panel as it seeks to find a lasting solution to these issues.
As the noble Baroness, Lady Cox, said, our concern about relations between Sudan and South Sudan should not lead us to overlook the serious conflict going on within Sudan’s borders. Ten years after the outbreak of significant violence, we remain deeply concerned by the continuing conflict in Darfur and the resulting humanitarian situation. More than 300,000 people have died as a result of the conflict in the past decade and approximately 2 million have been displaced, the majority of whom are still reliant on humanitarian aid.
Recent clashes in the gold-mining area in North Darfur highlight that the nature of the conflict may have changed but its effects remain as concerning as ever. Since the start of this year, more than 100 villages have been destroyed and 100,000 people displaced. That is already half the total number of people displaced in 2012. We hope to use this anniversary period in the run-up to the donor conference to make progress on the ground and ensure that Darfur remains on the international agenda, including in the UN Security Council. The UK remains committed to seeing the causes of the conflict addressed. We will continue to support Darfur by responding to humanitarian needs, fostering development opportunities and promoting a peaceful political solution.
We support the Doha document for peace in Darfur, which contains welcome provisions to address the needs of ordinary Darfuris and bring justice for the crimes committed. However, implementation of the Doha document has been disappointingly slow and has not focused sufficiently on areas that will make the most difference to the security and basic needs of communities. We are pressing the Government of Sudan to honour their commitments under the agreement, encouraging rebel groups to end their violence and obstruction of the peace process, and also working closely with Qatar, which continues to take an international lead on this issue.
We are deeply concerned by the continuing conflict in South Kordofan and Blue Nile and the impact that it is having on the communities in those areas. Some of the consequences of the conflict have been graphically described this evening. The refusal to allow independent humanitarian access to civilians in all of these areas, particularly the rebel-held areas, is of deep concern. The UN Office for the Co-ordination of Humanitarian Affairs has told the Security Council that it believes that more than 1 million people have been displaced or severely affected by the conflict. We are working to ensure that the issue remains at the top of the international agenda, in particular within the African Union and the UN Security Council. The situation deserves the full and credible independent investigation that the Foreign Secretary called for at the start of the conflict, and for those responsible for abuses or international crimes to be held to account. This remains our position.
It is crucial that the Government of Sudan and the Sudan People’s Liberation Movement-North comply with obligations to ensure humanitarian access and agree a full cessation of hostilities. The African Union has invited the parties to direct talks on 5 March. We are encouraging both sides to attend and to engage in serious talks without preconditions, focusing first on achieving a cessation of hostilities and full humanitarian access. Until that time, the UK teams in Juba and Khartoum will continue to work closely with the Office for the Co-ordination of Humanitarian Affairs, other donors and NGOs to ensure that assistance reaches all those in need who are accessible, and that we are ready to move rapidly to respond to a broader opening up of access.
I will respond to the specific issues that were raised. The noble Baroness, Lady Cox, asked about the provision of life-saving food and medical aid to civilians in South Kordofan and Blue Nile. All donors share the view that negotiated access from within Sudan is the best way of providing humanitarian assistance. Donors co-ordinate closely, and many of them are looking carefully at all options for getting aid to those in need. We currently judge that the risks of cross-border assistance mean that the UK should not pursue this approach at this stage.
The noble Baroness also asked what representations the UK had made on halting aerial bombardments in Darfur. The recent Panel of Experts report highlighted the Government of Sudan’s use of military aircraft in violation of UN Security Council Resolution 1591. We condemn such actions and most recently expressed our concerns through the UN Security Council discussion adopting Resolution 2091, which extended the panel’s mandate for a further year.
My noble friend Lord Avebury asked why the Panel of Experts report had not been published. I am pleased to inform him that a decision has been taken to publish the latest report on Darfur from the Panel of Experts. It has not yet appeared on the United Nations website, but my officials will pass on a copy to the noble Lord as soon as it becomes available. He also raised the question of whether the Government should consider the use of drones against Sudanese aircraft in Darfur. We argue consistently for the strict enforcement of UN sanctions in Darfur. It has not been possible to agree measures to toughen the sanctions regime in the United Nations Security Council, and any actions that we take must be consistent with existing UN Security Council resolutions.
The noble Earl, Lord Sandwich, asked for reassurance that FCO resources for Sudan would not be reduced. I can assure him that Sudan remains a high priority for the FCO. There are many competing priorities, including in Africa, but no decision has been taken to reduce FCO resources devoted to Sudan and South Sudan. The opening of an embassy in Juba has meant an increase in overall staff resources over the past two years.
The noble Lord, Lord Alton, raised the question of the views of the Independent Commission for Aid Impact and its criticism of the project in Darfur. We believe that this report is outdated. The UK has already transformed our humanitarian response in Sudan to help address the root causes of conflict rather than simply relying on emergency aid. It is disappointing not to see this reflected in the ICAI’s report. Our new programme will help the poorest people become better able to cope with the impact of conflict or man-made disasters, such as being able to access local markets and regular food supplies.
The noble Lord also asked about the potential denial of diplomatic status for senior members of the NCP. As we have set out before, at this stage the UK will maintain a diplomatic relationship with Sudan. We use our diplomatic relations with Sudan to press for the Government to resolve conflicts, address humanitarian and development needs and end human rights abuses. Having a senior ambassador in Khartoum ensures that we have influence and access to the right levels of government, as well as to a full range of political opposition and civil society groups. It is not ideal, but we feel that downgrading our relations would reduce our ability to achieve our objectives—indeed, any objectives—in Sudan.
The right reverend Prelate the Bishop of Exeter asked some quite specific questions: what support are we providing to those being victimised by the Government of Sudan? Our embassy in Sudan monitors the situation closely and makes regular representations to the Sudanese authorities. The specific question was raised about the humanitarian situation in South Sudan. Of course we remain extremely concerned about the refugee situation in both Unity and Upper Nile states caused by the influx of almost 180,000 refugees from South Kordofan and Blue Nile, as well as the wider humanitarian situation in South Sudan. My honourable friend Lynne Featherstone saw the refugee conditions for herself when she visited the camp in October.
The noble Lord, Lord Alton, asked for a response to the letter to the UN Security Council; we look forward to receiving that letter and I can assure him that it will be considered seriously and responded to. I am acutely aware of the time. I think the right reverend Prelate the Bishop of Exeter asked about the expulsion of expatriates from Sudan. We are aware of a number of expatriates who have been expelled, in particular those with connections to religious organisations. We have raised these concerns with the Sudan ministry responsible for religious affairs and European Union colleagues are intending to make representations to the Minister of Justice.
In conclusion, we have come tantalisingly close to a settlement of the dispute on many occasions, but it will take a serious renewed effort in good faith from both countries to properly and peacefully settle their remaining differences. The international community will do what it can to bring the parties to the various internal conflicts into peace talks, and to address the humanitarian consequences, but Sudan will not be at peace until it addresses the inequalities and marginalisation that lie behind all of these conflicts.
The AU high-level implementation panel and other countries will have a vital role to play, and we should commend their efforts so far. For our part, we stand ready to add value to the process in whatever way we can, and to work closely with our international partners. It is a priority for us to ensure that agreements are finalised and implemented and for all conflicts to be resolved. We want to have a positive and constructive bilateral relationship with both Sudan and South Sudan through our bilateral aid programme in both countries, and we remain fully committed to delivering humanitarian aid and development projects. We will continue to provide assistance to respond to the humanitarian needs of conflict affected populations, to support security and access to justice, to build basic services and to encourage a more transparent and accountable government in Sudan and South Sudan.