Reconciliation: Role of British Foreign, Defence and International Development Policy
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, it is a particular privilege for me to respond on behalf of the Government to this important Motion. I thank the most reverend Primate not only for tabling it but for introducing it with his characteristic authority and insight. I am sure that he will agree that this has been a debate of notable depth and quality. Indeed, I can say without fear of correction that the messages and ideas articulated by your Lordships are deserving of close consideration within government.
I begin by acknowledging the obvious: that reconciliation is a vital part of ending violent conflicts which claim so many innocent lives and immeasurably harm the lives of so many others. Reconciliation is also the ultimate safeguard to prevent a relapse into conflict or repeating cycles of violence.
We see about us how the scourge of violent conflict continues to affect many parts of the world. Over the past decade, the number of conflicts has increased, and we have observed a disturbing pattern in civil wars. More than half—57%—of countries that experienced a civil war between 1945 and 2009 have again relapsed into violence. It is vital that we continue to strive to prevent, reduce and bring to an end conflict wherever we can. As the most reverend Primate has argued, this requires a strategic approach.
Addressing, as we must, the root causes and drivers of armed conflict requires three broad strands of activity: early prevention, crisis response, and conflict resolution. Our Building Stability Overseas Strategy, published in 2012, and the introduction in 2017 of the fusion doctrine in the national security capability review, have given the UK a firm basis on which to develop our conflict response work. We can, I think, take some pride in the scale of this work. On average, between 2007 and 2016, the UK has been the second-largest OECD donor supporting civilian peacebuilding, conflict prevention and resolution. In 2016, the UK spent $581 million—up from $291 million in 2008—on conflict, peace and security. Although some people’s perceptions may be different, our work in this area is truly cross-Whitehall in nature. It is co-ordinated through the National Security Council and the Cabinet Office and involves the specialist skills of the Foreign and Commonwealth Office, the Department for International Development, the Ministry of Defence and the Stabilisation Unit, all supported by supported by the £1.2 billion Conflict, Stability and Security Fund, the CSSF.
Promoting reconciliation is a vital ingredient in this activity. However we define it, and there are a number of definitions out there, reconciliation is about transforming the relationships between the parties to a conflict—between victims and perpetrators of violence—while addressing elements of the past and using approaches that are properly inclusive. In short, as my noble friend Lady Stroud described so well, it is a process of moving from a divided past to a shared future. The UK supports reconciliation in a number of ways. We have recently doubled our contribution to the United Nations Peacebuilding Fund from £16 million to £32 million annually between now and 2020, a valuable means of supporting international peacebuilding efforts. We strongly support the Secretary-General in his “sustaining peace” agenda. We also work with international non-governmental organisations that specialise in reconciliation and peacebuilding.
A number of noble Lords have referred to the importance of promoting transitional justice mechanisms, which can include truth commissions, judicial processes, mechanisms for reparations as a means of making amends, and supporting longer-term institutional reforms. Again, this is central to much of our work. I completely agree with the comments of the noble Lords, Lord Anderson and Lord Boateng, on that theme. We also lend direct support to local reconciliation projects on the ground. For example, the CSSF is funding a multifaceted reconciliation process in the Nineveh plains and Kirkuk in Iraq, involving civil society events and community-level engagement projects. As noble Lords have pointed out, this is far from straightforward. Conflicts become more complex by the day: they become more internationalised, their non-state armed groups become more fragmented and the war economies that they create become more powerful. All this makes conflicts more intractable. Half the conflicts in the world today have been with us for more than 20 years. This complexity dictates that Governments, including our own, should approach conflict resolution with sensitivity and care.
Reconciliation cannot be imposed from outside: it can only be fostered. Often, the best approach is for us to actively support specialist organisations which can build dialogue and trust, and can nurture reconciliation through community-led action. The Government favour that approach but, as noble Lords have suggested, we can undoubtedly do more to build on that. That includes looking to see how we can strengthen societal resilience, not least to political and economic shocks. I was grateful to the noble Lord, Lord Alderdice, for stressing that.
As we consider the potential for reconciliation in the conflicts that dominate the headlines today, we must also recognise the need to exercise sensitivity and care in the UK’s own interventions. The situations in Yemen, Syria, Cyprus, Kashmir, Cameroon and Haiti might merit separate debates in their own right, for each of those conflicts is unique in its causes and complexity. They are big topics. Each of them will require time and patience, as well as well-judged engagement and support, if they are to be satisfactorily resolved.
However, this debate has highlighted that there is scope for us to do more, in three areas in particular. First, as the noble Lord, Lord Ramsbotham, and my noble friend Lord Trimble illustrated so well—my noble friend Lady Fall also spoke powerfully about it—any society on the road to reconciliation has to take ownership of that process. So there is undoubtedly more we can do to enhance our work with civil society, supporting grass-roots reconciliation efforts through engaging opinion leaders such as religious figures, community leaders and leaders in the local private sector. Of course, in answer to my noble friend Lord Taylor, we can do this, as we do now, through the good offices of our overseas embassies.
In that context, the noble Baroness, Lady Andrews, reminded us of the admirable and varied work of the British Council, including the UK’s Cultural Protection Fund, which the British Council manages. That fund does wonderful work, currently supporting 45 projects across 12 countries to protect vital cultural heritage that is at risk due to conflict in the wider Middle East and north Africa region. There is £30 million in the fund, which supports efforts to keep cultural heritage sites and objects safe, as well as the recording, conservation and restoration of cultural heritage, helping to bolster a positive vision of shared identity at a time of crisis. It is helping to position the UK as a prominent actor in cultural protection in many parts of the world, and I believe that it is seen as a model of best practice, enabling communities to play a pivotal role in the care of their own heritage. I can tell the noble Baroness that, as we approach the end of the funding period, we are working closely with DCMS on opportunities to continue and expand the fund beyond 2020. This includes targeted funding, disaster preparedness and the protection of cultural heritage post disaster.
Secondly, the noble Lord, Lord Collins, and other noble Lords were right to urge us to collaborate ever more closely with international partners, including through multilateral organisations such as the UN, to prevent conflict and support sustainable peace. The direct involvement of the United Kingdom in UN peacekeeping operations has considerably increased in recent years, and we do our best to lead by example, in training and mentoring peacekeeping teams from other countries. I was grateful to the noble Lord, Lord Hannay, for his remarks on this point, and to the noble Lord, Lord Campbell, who spoke about the importance of maintaining hard power. However, a feature of peacekeeping operations is that they are becoming more dangerous: they are less and less about policing a brokered peace settlement, and more and more involve the enforced separation of warring factions. Reconciliation in such circumstances can often be a distant prospect.
However, even in situations of that kind, where there are factions which merely coexist in an uneasy truce, with little or no mutual trust or shared values, there are opportunities. When I attended the UN peacekeeping conference in Vancouver last year, I made a particular point of strongly endorsing the Secretary-General’s drive to include more women in peacekeeping roles as a way of promoting a culture of gender equality and of interacting more effectively with local populations. The noble Lord, Lord Campbell, referred to the variable quality and sometimes unacceptable behaviour of peacekeeping troops; I can tell him that we actively promote the Secretary-General’s Action for Peacekeeping initiative, which is designed to address exactly that issue.
Thirdly, even though we do our best in government not to operate in departmental silos, I am sure that we can do better as regards interdepartmental joint working to bring the collective skills of our defence, development and foreign policy experts towards a more co-ordinated approach. There are mechanisms at working level, such as the CSSF and the National Security Council, to fulfil part of that remit, but these can be broadened. The most reverend Primate has proposed the creation of a joint reconciliation unit. A concept of that sort, if it is designed correctly, could make a contribution to addressing gaps in our work, and on behalf of the Government I undertake to consider it seriously.
There are some improvements we can make in, for example, linking our horizon-scanning and early warning systems to well-targeted and rapid responses to crises as they arise. If I sound a little cautious, it is because I think we need to be realistic about what could be expected to flow from such a unit. Clearly, we would need to make sure that it represents the best mechanism for achieving our desired ends. For example, it might be more effective to focus our efforts and resources even more on mobilising fellow spirits, such as peer Governments, multilateral organisations and reputable organisations from civil society, to deliver conflict prevention and mediation.
On, I hope, an encouraging note, I can tell the most reverend Primate—and indeed the noble Lord, Lord Boateng—that there is now a cross-government working group, led by the Stabilisation Unit, which has been tasked by the National Security Adviser to explore cross-government collaboration platforms on reconciliation.
My noble friend Lady Brady questioned whether the UK’s aid budget is spent in a way that promotes our national interest. Some 50% of DfID’s aid budget is spend in fragile states because poverty is increasingly concentrated in these areas. Conflict and fragility will become the main reasons why extreme poverty exists. Our aid budget is also vital to ensure that we tackle the great global challenges, from the root causes of mass migration and disease to the threat of terrorism and global climate change, all of which directly threaten the UK’s national interest. The noble Lord, Lord Collins, was absolutely right to bring that point out.
DfID’s building stability framework, the BSF, aims to change how aid is delivered in fragile states and to ensure that we also work on—not only in—conflict, so that all our development programmes have a dual dividend; namely, reducing poverty and contributing to long-term stability. This approach will help states and communities to find pathways out of conflict to a sustainable peace.
My noble friend Lord Holmes focused on the imperative of inclusion, specifically inclusion of the disabled; and, in a more general way, the right reverend Prelate the Bishop of Coventry did the same. Inclusion is a vital component of building peace, starting from peace agreements through to local development projects. In December this year, the DfID Secretary of State, Penny Mordaunt, launched her department’s five-year strategy for disability-inclusive development. However, we continue to understand and learn about inclusion. The Government are supporting the UK peacebuilding organisation Conciliation Resources, which is conducting research into the inclusion of disabled people in peace processes. We have a long way to go on that but the Government, and DfID in particular, are adamant about the central aim, which is to leave no one behind.
I hope I can help my noble friend Lord Elton on the respective roles of the Conflict, Stability and Security Fund and the Stabilisation Unit. I believe that he misunderstands not only their roles but their relationship with individual departments. It is the departments that make and hold the policy and agree on an approach. The Stabilisation Unit then implements that policy—for example, by finding staff to deploy overseas to assist with stabilisation and post-conflict work—and the CSSF that works through its £1.2 billion pot. Therefore, the CSSF and the Stabilisation Unit are the instruments of the FCO/MoD/DfID; it is not the other way round. I hope that brief explanation is also helpful to my noble friend Lord Taylor.
The noble Lord, Lord Jay, asked about the extent to which the National Security Council engages with NGOs, faith groups and others, and I hope I can reassure him on that. The members of the NSC—that is, Ministers—have frequent engagement with non-government figures such as faith leaders and NGOs. Similarly, officials who advise the NSC also have frequent contact with non-government actors to discuss conflicts and other international issues.
The noble Lord, Lord Boateng, spoke of the importance of investing in diplomatic skills, including language skills. I hope he is glad to hear that the FCO has reopened its language school, which was closed in the early 2000s. This is enabling the FCO to give its staff the required skills to both speak and listen effectively to their interlocutors overseas. The FCO has also established the Diplomatic Academy, which offers training to both FCO staff and staff from across Whitehall engaged in international issues.
There is never time in debates of this intricacy and depth for me to cover all the questions that have been asked of me, and I willingly undertake to write to noble Lords on any matters that I have not properly addressed. There are many parts of the body to form the whole, as Corinthians 12 reminds us. However, it is perhaps appropriate for me to end by reflecting on what I think we all recognise—that reconciliation is a long road, and it is one that is rarely documented or adequately supported. We must learn to persevere and to support communities and nations emerging from violence not just to coexist but to make reconciliation what it ultimately is—a personal experience based on truth-telling, inclusiveness and a sense of justice.
Twenty-three years after the Dayton agreement, citizens in Bosnia still identify primarily along ethnic lines and not as Bosnians. Lessons such as that can be observed and, as speakers in this debate have highlighted, we have the tools both to learn from them and to apply that learning to better effect. I say to the most reverend Primate that the will to do so is as strong as he would wish.