European Union (Definition of Treaties) (Second Agreement amending the Cotonou Agreement) Order 2011

Debate between Baroness Northover and Lord Triesman

Monday 17th October 2011 Grand Committee

[Lord Triesman]

My Lords, I thank the Minister for introducing the order. I should say at the outset that we support it. The changes and the coherence to be added are welcome; trade arrangements will improve; all of that is positive territory.

The Cotonou agreement as a whole has proved, as it was always intended to, an essential framework, fostering development, co-operation, economic and trade integration and security of political institutions in the ACP countries. It makes complete sense for the EU to have embarked on this course, not only because of our long-term economic and political interests in the ACP countries but also because it reflects the colonial past, the legacy of that past and the obligations that we plainly face in dealing with it.

It is encouraging that when the predecessors of the EU in the European Coal and Steel Community forged those institutions in 1951, many of them were still colonial powers in the very countries in which these arrangements are now in place as a result of the Cotonou agreement. That is positive in many ways.

The continued mutual obligations plainly mean that we continue to have a shared EU-ACP interest in co-operation. In many respects, this has matured from simple co-operation into interdependency. Those interdependencies are created for pragmatic, economic and moral considerations. It is encouraging to be able to talk about the work of the EU in such a positive way; we do not always seem to do that in our House; so I am a little encouraged to have had the opportunity to look at that without people snarling about it.

The renewal of Cotonou comes at a critical juncture. Last year, the World Bank estimated that 64 million people had been pushed into extreme poverty by the financial crisis. Of course, most of those were in countries in the developing world. Noble Lords have already mentioned the impact of climate change and famine, which have had an amplified effect because of the financial challenges in the international community, especially in those countries where we are still slipping backwards on the millennium development goals. Those tasks demand a multifaceted response, and that is what the Cotonou agreement and the changes and revisions now help us to produce.

There is a good deal of independent research in Australian universities and universities across Europe that demonstrates that it is the interpenetration of democracy and institution-building with economic progress which gives economic progress the greatest prospect of success. Much of that research also shows that in those countries where you do not have those institutional and democratic opportunities, economic development is tried to the greatest extent.

It is not a perfect agreement. The point has already been made that, even with the new language on non-discriminatory practices, one area has still not been resolved in any way that I think we would regard as satisfactory in Europe. The democratic, economic and civil rights that have been extended in so many ways seem still to exclude those who are in same-sex relationships. That is a great pity. I know that people in the EU have attempted to see these issues raised in the European Parliament and elsewhere but have not perhaps made the progress with the countries on the other side of the agreement that they would have wished for. I just hope that we will not say, “Well, we are where we are”, but take every opportunity that we have in all the revisions that still lie ahead over the 20 years that the agreement will be in place to see whether greater progress can be made.

The Cotonou agreement has carried forward the EU’s 1992 human rights and democratisation policy. We supported it at that time; we have supported it on all occasions since, from its inauguration through its revisions; and we support it today.

[Baroness Northover]

My Lords, I thank noble Lords for the all points that have been raised and for the general welcome for this move forward. The noble Lord, Lord Teverson, is quite right that the agreement came about as a result of countries moving into the EU wanting to make sure that what had been part of their former empire was not disadvantaged. So it is a historic agreement looking after those countries and does not necessarily make best sense as we move forward. Looking at the current revisions to the Cotonou agreement, one is struck by the fact that it is moving towards looking at the regional dimension that may be more relevant for some ACP countries in the future. In the mean time, it is extremely important that those countries have access to the EU markets, which has benefited them enormously.

A number of points have been raised in the debate, and I welcome the Committee’s continued interest in the EU’s relationship with ACP countries and the Cotonou agreement. Europe is playing a major role in supporting developing countries, particularly in Africa, to meet the many challenges that they face. The second amendment to the Cotonou agreement is an important development in this regard.

Europe is not only a significant provider of development assistance but also an important global actor. The impact on poor countries of its policies in areas such as trade and the environment can be significant. We will continue to work with the Commission and other EU member states to call for further improvements in the effectiveness, results focus and transparency of EU aid, including the EDF.

The noble Lord, Lord Chidgey, is absolutely right that regional co-operation will be extremely important. It is excellent to see the emphasis being put on the African Union and its further development. He noted the fragility of some of these states; others are less fragile. Therefore, we agree that the emphasis on good governance is extremely important.

The noble Lords, Lord Chidgey and Lord Triesman, asked about discrimination. As we know, discrimination over sexual preferences remains a serious problem in many African states—there have been various pointers towards that recently. In effect, noble Lords are asking why we do not insist on the inclusion of a clause on non-discrimination. Article 8 clearly gives the EU a mandate to raise issues of discrimination of any kind in ACP countries, and the ability to have a dialogue to make progress on all issues of discrimination. It is a very important factor. The Cotonou revision gives the EU that mandate, but we realise that that is not, perhaps, as far as some might wish to go. However, this is a collective agreement, and at least it has that mandate in it. I expect we will find that that is taken further forward in the future.

My noble friend Lord Chidgey mentioned climate change, and its significance. We welcome the stronger statement on the global challenge of climate change in the agreement. The references give the EDF a clearer mandate to spend on these priorities. It is clearly recognised now that the mitigation of climate change—ensuring that we are not making things even worse, because it hits the poorest hardest and first—is extremely important to factor in when we look at development policy. The agreement acknowledges that that has to be integrated with development strategies.

My noble friend Lord Chidgey also emphasised the importance of civil society organisations, as well as governance. The EU certainly attaches great importance to the role of civil society organisations, and provides significant support to help them engage effectively on issues such as governance, democracy and human rights, across the ACP.

Looking at taxation, the importance of domestic revenue management is rightly something people are very concerned about. Many DfID country offices work with partner governments to strengthen tax policy and tax administration. That is certainly seen as important. For example, TradeMark East Africa, funded by DfID, has helped the newly established Burundi Revenue Authority to increase the country’s tax income by 30 per cent—which I am sure would be welcome in this country—from the first quarter of 2010 to the same period in 2011.

Then there is the question about Busan and whether parliamentarians will be present at the conference on aid effectiveness. I know that my noble friend Lord Chidgey is attending.