Yemen: Giving Peace a Chance (International Relations Committee Report)
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The Minister of State, Foreign and Commonwealth Office (Lord Ahmad of Wimbledon) (Con)
My Lords, I thank all noble Lords who have participated, particularly my noble friend Lord Howell for securing this debate on the conflict in Yemen and for his long-standing commitment to the subject, not just as chair of the International Relations Committee but in his engagement and involvement with the field of foreign affairs. The Government welcome the committee’s report and thank it for its detailed examination of the issue. I am especially grateful that we have been able to have this debate before the formal response from the Government. As ever, I am grateful for the insight and expertise that noble Lords have provided.
I assure noble Lords that achieving progress in Yemen is a top priority for the UK. That is why my right honourable friend the Foreign Secretary visited Yemen earlier this month. I am sure many noble Lords acknowledge his shuttle diplomacy. It is why he also attended the Stockholm peace talks in December, and why we are using our unique position—as the noble Lord, Lord Hannay, with his deep insight into the United Nations, reminded us—as penholder at the UN Security Council to find a way to end this devastating conflict. As Minister for the United Nations, I acknowledge the importance of our role.
Before I go into the report itself, I shall first address the concerns raised by the noble Lord, Lord Collins, in particular, regarding recent media reports of the involvement of UK military personnel in Yemen and the use of child soldiers in conflict. I hope noble Lords will recognise that I cannot comment in detail on specific deployments, but I can clarify that a small number of British personnel are working in a liaison capacity in Saudi headquarters. They are not, as some have suggested, based in so-called command centres. British personnel have no role, to repeat what my right honourable friend said in the other place, in setting coalition policy or executing air strikes in Yemen.
The noble Lord, Lord Collins, also raised the issue of child soldiers. I reassure the noble Lord that the Government give priority to this matter. He will no doubt recall, as will other noble Lords, that the office of United Nations special representative Virginia Gamba is funded by Her Majesty’s Government. I continue to work very closely with the special representative on this issue. I assure all noble Lords that our position on the recruitment and use of child soldiers is clear and unequivocal: it is simply unacceptable. We condemn it, and I assure the noble Lord that we are committed to ending it in all circumstances. If we have reports to this effect, we will continue to raise the issue vigorously with all parties concerned.
Unfortunately, regrettably and tragically, this is not the first time we have heard reports of child soldiers being used in the Yemen conflict. The UN group of eminent experts found that the Houthis had also forcibly recruited children—some, tragically, as young as eight—in schools and hospitals, and had used them in combat and to plant explosive devices. We raise our concerns about this with all parties to the conflict in Yemen, as I have said, and I can state as Minister for Human Rights that our officials also raised the use of child soldiers as a key issue in the last universal periodic review of Yemen.
I turn to the specific recommendations of the report and the issue of arms exports raised by several noble Lords, including my noble friends Lord Howell and Lord Jopling, the noble Lords, Lord Hannay and Lord Alton, and the noble Baroness, Lady Coussins. The Government do not accept the report’s assertion that our actions on arms exports are,
“narrowly on the wrong side”,
of the law. The UK will not export items if there is a clear risk they may be used in a serious violation of international humanitarian law.
I assure my noble friend Lord Jopling, among others, that all export licence applications for Saudi Arabia are assessed rigorously on a case-by-case basis, using much fuller information than is available to others. In addition, to answer my noble friend Lord Howell, we have provided training and advice to support Saudi compliance with international humanitarian law. We also regularly raise the importance of compliance on this issue directly with the Saudi Arabian Government and other members of the coalition.
My noble friend asked what tests and factors we apply. In the interests of time, I will write to him specifically on this but, to give an insight, our forward-looking assessment looks at the situation in the round. We include: Saudi attitudes to compliance with international humanitarian law; how the key principles of international humanitarian law such as military necessity, distinction and proportionality are implemented; how incidents of concern are investigated; and, importantly, how those responsible are held to account and how lessons are learned. My noble friend will be aware that, in response, the Saudis set up the Joint Incidents Assessment Team on 29 February 2016. The Saudi Arabian Government have also publicly stated that they investigated reports of alleged violations using this vehicle, and that they act on lessons learned. To date, the assessment team has made over 100 statements from its investigations.
I assure noble Lords once again that the UK Government continue to review all arms exports and take our arms export control responsibilities very seriously; we remain confident that our arms exports are consistent with our licensing obligations. To be absolutely clear, particularly to the noble Lord, Lord Hannay, we continue to raise these issues regularly and will continue to review all applications according to these criteria.
Turning to humanitarian aid, I am grateful to all noble Lords who have raised the important role played by DfID and Her Majesty’s Government in this regard. I share totally the sentiment of noble Lords that this is a tragedy beyond all scope; anyone who has visited, reviewed or been involved with the crisis in Yemen—seeing children deprived of vital food and medicine—will know it to be heart-rending. I am therefore proud of the role the United Kingdom Government are playing. I assure the noble Baroness, Lady Smith, that, for Her Majesty’s Government and the Foreign Office, this will remain at the forefront of our priorities on the world stage, notwithstanding the domestic issues of what is happening with Brexit and the Foreign Secretary’s recent engagement. I returned from another United Nations meeting on important issues regarding peace- keeping and the role of women, which I will come on to, only last week. My travel schedule probably reflects the fact that this will remain a high priority on the world stage.
The noble Baroness was quite right to ask for reassurance that aid is reaching those in need. The statistics cited on Hodeidah and Saleef concern the aid that has been delivered, but I fully acknowledge that there is a real challenge in the distribution of aid within the country. The noble Lord, Lord Collins, asked about additional support; that is why additional support is going in. The UK has a zero-tolerance policy on the diversion of UK aid funds, and all the UK Government’s partners and programmes are subject to rigorous and regular due diligence. However, I fully admit that this remains a major challenge for all Governments, not just the United Kingdom. We will continue to work with all parties to ensure that this happens. This concern about how we are ensuring the distribution of aid was also expressed by my noble friend Lord Jopling. At the moment we are working stringently with the UN and NGO partners to ensure that we get full reports of any delays in accessing necessary permits and agreements to deliver vital assistance. I will continue to inform the House regularly on how this situation is unfolding.
At the UN’s Yemen pledging conference in February, we committed an additional £200 million of support for the next financial year. The noble Baroness, Lady Amos, asked about its distribution, which will start shortly; this figure will build on the aid that has already been distributed from our previous year’s commitment. As noble Lords have acknowledged, this takes the overall commitment of the UK to Yemen to over £770 million since the conflict began in 2015. Our support will continue to focus on providing life-saving aid to millions in a country where a staggering 80% of the population are now in need of direct humanitarian assistance. I pay tribute to the work of the noble Baroness, Lady Amos, in this regard; I will continue to look to her deep insight and expertise as we provide support and assistance on this programme.
As my noble friend Lady Anelay also mentioned, the conflict in Yemen has further exacerbated the vulnerabilities faced by women and girls. It is unacceptable that the number of incidents of gender-based violence, for example, have reportedly risen by more than a staggering 60% since the start of the conflict. The UK fully supports women and girls across Yemen through our funding of the United Nations High Commissioner for Refugees and the International Organization for Migration. My noble friend is absolutely right; women have to be involved at the table—not in some corner room or a room in some remote part of a conference centre or hotel. They must be present. As the noble Baroness, Lady Amos, rightly pointed out, they have been absent. This was a key area of focus at the UN Commission on the Status of Women recently, where I represented and led the delegation. We continue to implore both parties through the good offices of the special envoy to ensure that women play their rightful role at the heart of conflict resolution. It is not an option. It is a necessity, and we will play our part to try to make it happen.
I also assure noble Lords that we are working with special envoy Martin Griffiths. In acknowledging his work in this respect, we ensure that his priorities in support of the initiatives we have already set up, such as those acknowledged by noble Lords, including the Yemeni Women’s Pact for Peace and Security, continue to be strengthened. We are also extremely concerned about the recent increase in cholera cases, and are working closely with all levels of the UN response, which is currently being scaled up to the 38 most affected districts in Yemen. Last year the UK contributed 25% of the costs of the first ever cholera vaccination campaign in Yemen through our funding for the global Vaccine Alliance. We will continue to prioritise these schemes as we support humanitarian efforts across the country.
The committee report also recommended a further UK contribution to the UN, including support for the UN verification and inspection mechanism, or UNVIM. I can confirm that we will provide a further £1.3 million to UNVIM this year to support its work in facilitating commercial imports into Hodeidah and Saleef ports and ensuring that weapons are not smuggled in on commercial ships. We have also deployed UK experts to Djibouti, whose presence has increased the number of ship inspections more than tenfold. This has helped to stabilise the level of vital imports going into the ports of Hodeidah and Saleef. In February, for example, the total commercial and humanitarian imports into Yemen met 114% of the country’s monthly food needs. However, I totally acknowledge that distribution is a vital part of that—it is not just about getting it through the ports but about ensuring that it is distributed.
Noble Lords, including the noble Lord, Lord Luce, and my noble friends Lady Anelay and Lord Jopling, raised the important issue of the political process. We note that the committee called on the Government to redouble our diplomatic efforts to achieve peace. I assure noble Lords that we continue to believe—as all noble Lords have pointed out, particularly the noble Lord, Lord Hannay—that a political settlement is the only way to address the worsening humanitarian crisis and bring long-term stability to Yemen. Important progress has been made in this regard. The December talks in Stockholm were a landmark—the first time the parties had come together in over two years. The significance of that cannot be overestimated. The ceasefire in Hodeidah has largely held; challenges remain, but it has led to a significant reduction in military activity across the governorate.
I assure noble Lords that we continue to engage with all parties. The noble Viscount, Lord Waverley, raised the issue of keeping dialogue open, not just with the Kingdom of Saudi Arabia and other parties, including the Houthis, but directly with Iran. I stress that Her Majesty’s Government continue to engage in relationships across the piece to ensure that all parties to the conflict are engaged and play their part in bringing a resolution to it. I also assure noble Lords that there has been sustained British diplomatic effort in support of the political process at both ministerial and senior official level, including urging parties to refrain from provocative action in Hodeidah and to maintain the ceasefire.
The noble Lord, Lord Alton, rightly raised the unfolding issue of the humanitarian crisis. I assure him that our diplomatic efforts are beginning to pay dividends. The situation is vulnerable and still fragile, but we are encouraged by recent steps that have been taken, at least with regard to the increase in humanitarian aid on the ground in Yemen itself.
This year, visits to the region have been made by my right honourable friend the Foreign Secretary, and the former Minister for the Middle East and North Africa, my good friend and former colleague in government, the right honourable Alistair Burt. I join the tributes that have been made from across this House and elsewhere to the unstinting work, focus, dedication, application and expert knowledge that he has shown in the discharging of his duties. He is a colleague and friend who will be sorely missed, and, as someone who led several initiatives in the Middle East, his expertise and insight were vital. I hope that, whatever prevails, in the near future we will see him return to the Government Benches.
I assure noble Lords, particularly the noble Lord, Lord Hannay, whose insights on the UN I always welcome, that we continue to use our seat on the UN Security Council to good effect. Indeed, following the Stockholm agreements, we recently put forward proposals for a mandate to establish a UN mission in support of the Hodeidah agreement. Our work at the Security Council on resolutions has galvanised international support, and it was no small feat to get unanimity behind those resolutions.
I assure noble Lords that the Government have also carefully considered the committee’s recommendation, raised by my noble friends Lady Anelay and Lord Howell and the noble Lord, Lord Hannay, to appoint a London-based special representative on Yemen. At present, in light of my right honourable friend the Foreign Secretary’s personal efforts to advance peace in Yemen, it has been decided not to make such an appointment, but we will keep the situation under continual review.
The noble Baroness, Lady Coussins, asked about the Government’s position on southern inclusion. Governance arrangements for southern Yemen are ultimately a question for the Yemeni people, but I assure the noble Baroness that the UK’s position on southern inclusion is clear: their voice must be heard to ensure lasting peace in Yemen, and the UN special envoy has publicly acknowledged this important role. He has advised his office to help to support the work by including all southern groups, including, as the noble Baroness rightly noted, the STC.
In conclusion, I am extremely grateful to all noble Lords for their contribution. The noble Lord, Lord Judd, gave his perspective. I know that he believes strongly in the attributes of the United Nations, and I listened carefully to his words. On the sentiments raised with regard to arms sales, I assure noble Lords that we take that seriously. I strongly believe that the committee’s report is both timely and important, and we will certainly take note of the contributions made in this debate to ensure that they are also reflected in the formal government response.
I assure noble Lords that the UK is doing all we can to bring parties to the table, to sustain the delivery of humanitarian and fuel aid into Yemen and, ultimately, to find a way to end this devastating conflict. We are at the forefront of diplomatic efforts, including at the UN Security Council, to find a political solution to the conflict—as I know from direct experience—and we are leading on the humanitarian response. I assure all noble Lords, and indeed everyone across this House and the other place, that we are putting our full weight behind the work of the UN special envoy Martin Griffiths—to which I pay tribute—and the UN-led peace process. We are constantly engaging with him to ensure that our efforts are aligned, and we will continue to show leadership as part of international efforts to end this appalling conflict, which has gone on for far too long and has caused millions to suffer.