Iran: Nuclear Issues

Tobias Ellwood Excerpts

Tuesday 24th November 2015 Commons Chamber

[The Parliamentary Under-Secretary of State for Foreign and Commonwealth Affairs (Mr Tobias Ellwood)]

I beg to move,

That this House takes note of the following unnumbered European Union Documents concerning restrictive measures against Iran: a Council Decision (CFSP) 2015/1050 of 30 June 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1099 of 7 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1130 of 10 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1148 of 14 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1336 of 31 July 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1327 of 31 July 2015 amending Regulation (EU) No. 267/2012, a Council Decision (CFSP) 2015/1337 of 31 July 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1328 of 31 July 2015 amending Regulation (EU) No. 267/2012, a Council Decision (CFSP) 2015/1863 of 18 October 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1861 of 18 October 2015 amending Regulation (EU) No. 267/2012, and a Council Implementing Regulation (EU) 2015/1862 of 18 October 2015 implementing Regulation (EU) No. 267/2012; supports the Government’s view that, had the suspension of certain EU restrictive measures against Iran not been extended in the final stages of negotiations, the prospects for reaching an agreement would have been significantly diminished; and agrees that the amendments to EU legislation to meet the obligations set out in the Joint Comprehensive Plan of Action contribute to ensuring that Iran’s nuclear programme will be exclusively peaceful.

Over four months have passed since the E3+3 and Iran reached agreement on the joint comprehensive plan of action and the historic deal that now imposes strict limits and inspections on Iran’s nuclear programme. During that time, there have been a number of important developments. In recent weeks, crucial steps have been taken to begin implementation of the agreement. Earlier, in the summer, my right hon. Friend the Foreign Secretary marked another diplomatic breakthrough with Iran when he travelled to Tehran to reopen our embassy there. This is therefore a welcome opportunity to discuss the nuclear agreement with Iran. I am grateful to the European Scrutiny Committee for its recommendation that the House debate these matters and for its work in examining the many EU measures that relate to the negotiation and implementation of the deal.

The past few months have not been easy. The review processes in Washington and Tehran saw tough and impassioned debate. Opponents of the deal, on all sides, will continue to challenge it.

[Mr Jim Cunningham (Coventry South) (Lab)]

Has Washington actually approved the deal—by “Washington”, I mean the Senate and Congress?

[Mr Ellwood]

The hon. Gentleman is absolutely right. If I may, I will come on to the developments in the region and the wider E3+3 context later.

Crucially, we remain on track for successful implementation. The deal was adopted as planned on 18 October. Adoption day was an important landmark. It means that the deal is now in force and Iran is beginning to take the required steps to limit its nuclear programme. We are therefore on track towards implementation day.

Let us be in no doubt about the significance of successful implementation. An Iranian nuclear weapons capability would constitute a major threat to national, regional and global security. Full implementation of the agreement will remove that threat. Iran will grant the International Atomic Energy Agency unprecedented access so that it can verify compliance with the strict limits placed on Iran’s nuclear programme. Those limits mean that Iran’s break-out time to acquiring sufficient fissile material for a weapon will be at least one year for at least 10 years.

The UK, along with its E3+3 partners, played a crucial role in more than a decade of negotiations to resolve this most challenging of issues. The UK is committed to playing its part in ensuring that a nuclear weapon will remain beyond Iran’s reach. I hope that the Government continue to enjoy support from both sides of the House in our efforts.

In recommending that this debate be held, the European Scrutiny Committee referred a number of different documents to the House. Given the time constraints, I hope that hon. Members will forgive me if I give only a general description of them. Broadly speaking, they fall into three different categories. I will give an overview of each in turn.

When, in November 2014, the E3+3 and Iran agreed to continue negotiations on Iran’s nuclear programme, the interim agreement—the joint comprehensive plan of action—was extended until 30 June 2015. This provided for the continuation of voluntary measures by Iran to freeze the most concerning aspects of its nuclear programme in exchange for limited US and EU sanctions relief. As the negotiations reached the end game, all parties felt that an agreement was indeed within reach, but was unlikely to be secured by the 30 June deadline. As such, the first group of documents extended the suspension of EU sanctions for a few days at a time, as the negotiations edged towards the key date of 14 July. I cannot stress enough how sensitive the negotiations were at that stage. Had the limited sanctions relief lapsed, the prospects for keeping Iran at the negotiating table would have diminished, if not disappeared completely.

[Sir William Cash (Stone) (Con)]

Did the sensitivity of the circumstances that the Minister describes lead to the delay in debating this matter, given that so much time has since passed?

[Mr Ellwood]

There were of course delays, but, as I have articulated, had we not taken the measures, and introduced and pursued the documents we are now discussing, we would not have kept Iran at the negotiating table, which it was important to do to get the result we now have.

[Mr Jacob Rees-Mogg (North East Somerset) (Con)]

I am not entirely clear about my hon. Friend’s answer to my hon. Friend the Member for Stone (Sir William Cash). Were there sensitivities prior to the agreement on 14 July, or did they come afterwards and therefore contribute to the delay in having the debate in this House?

[Mr Ellwood]

I do not believe that there was a delay in debating the matter in this House. I am delighted to be here today. I will certainly look at the detail of the point that my hon. Friend raises. I am articulating why there were delays and, indeed, extensions in the discussions and in the requirements for the documents to be in place in order to secure agreement with Iran.

Following the agreement of the joint comprehensive plan of action on 14 July, the second set of documents extended the limited sanctions relief, this time for a longer period. That created a window to allow Iran to take the required steps to limit its nuclear programme and to allow the International Atomic Energy Agency to confirm that those steps had been taken ahead of full sanctions relief. Had the limited sanctions relief not been extended, the incentive for Iran to complete those actions would have been greatly diminished.

The final set of documents deals with the crucial matter of the implementation of EU commitments under the deal by providing the legal framework for the termination of the nuclear-related economic and financial EU sanctions on Iran. Those measures were passed on adoption day, 18 October, as was required by the joint comprehensive plan of action. In adopting those measures, we and our partners demonstrated our intention to honour our commitments fully and in good faith. Iran still has plenty of work to do to live up to its commitments. That is why the sanctions relief will come into effect only on implementation day, when the IAEA verifies that Iran has completed the crucial steps in its nuclear programme.

To conclude, I will emphasise three crucial points that are illustrated by the documents and their adoption. First, the documents highlight the importance of close engagement with our diplomatic partners. The success of the negotiations was based on strong co-operation among the E3+3. Maintaining the pressure and the effect of EU sanctions was vital to bring Iran to the negotiating table. That required the co-operation of all 28 member states. The smooth implementation of the agreement and robust enforcement of the sanctions that remain in place will require a similarly united effort in the coming months and years.

Secondly, by providing the opportunity, through sanctions relief, for Iran to re-engage with the world economically, this deal and these documents are allowing the Iranian people to feel the tangible benefits of international co-operation.

[Kevin Foster (Torbay) (Con)]

The point that the Minister is making is a strong one. Although the deal focuses on nuclear issues, it sets a framework for bringing up other issues that we have concerns about in Iran, not least the continuing persecution of Christians.

[Mr Ellwood]

My hon. Friend raises an important point. Yes, Iran has come to the table and we have an agreement in place. That allows us to have a dialogue, through the opening of our embassy and so forth, with a country that has a long way to go on human rights, the introduction of justice systems and so forth. The strength of our relationship will allow us to be far more frank on the issues that he rightly raises.

There are opportunities for the United Kingdom. The Government are determined that British businesses should be well placed to benefit when the sanctions are lifted. The Foreign Secretary and the Minister of State for Trade and Investment have visited Tehran with UK delegations that included representatives of the engineering, infrastructure, banking and oil and gas sectors. Together, they are beginning to build the crucial links that will allow British businesses to take advantage of the opportunities in Iran.

Finally, the documents show that we are ready to implement the deal fully and robustly. As we enter the implementation process, our aim will be same as it was throughout the negotiations: to give the international community confidence that Iran’s nuclear programme is and will remain exclusively peaceful. That is why we could accept a deal only if it shut off all possible routes to an Iranian bomb, and why the sanctions relief will not take effect until the IAEA verifies that Iran has taken the agreed steps to limit its nuclear programme.

[Mr Jim Cunningham]

To return to my original question, has the American Senate gone along with this agreement? I am sure the Minister remembers that the Republican party was not that happy about the deal.

[Mr Ellwood]

The hon. Gentleman is right. There were extensive negotiations in America and concerns were raised, as they were in this House, but I understand that the Senate has now confirmed American support for this deal.

[Sir William Cash]

rose—

[Mr Ellwood]

In conclusion, the IAEA will have unprecedented access to verify that Iran continues to honour its obligations. The Government were grateful for support that they received from across the House throughout the negotiation process. As our attention turns towards a robust interpretation of this historic agreement, we look forward to enjoying similar support as we ensure that the threat of an Iranian nuclear bomb never materialises.

--- Later in debate ---

[Sir William Cash (Stone) (Con)]

I am sorry the Minister thought it unnecessary to give way to me towards the end of his speech. I always take these things in good part, but I did want to ask him a question.

There is an enormous crisis in the middle east, with ISIS/Daesh and the other factors at play—not to mention the Russians—and the interaction between all that and the peace and stability we all earnestly wish for. The reality is that this kind of document—in fact, it is not just one document; I have counted them and I think there are 14 in all—and the deal being done must have some bearing on the current situation. It would be unthinkable that there would not be such interaction at a diplomatic level, given the importance of Iran in the whole middle east crisis we are experiencing at the moment—all the documents, the involvement of the United Nations Security Council, which endorsed it on 20 July, and the interaction with not only our own Prime Minister but the President of France and Chancellor Merkel, who put out a statement in September 2015. That is not unimportant to say the least in relation to the events taking place at this time.

My main message is this: given the importance of the diplomatic interaction, and bearing in mind the fact the matter relates to nuclear issues and potential nuclear threats and their relationship to Israel, not to debate this subject at the right time really did not give the House of Commons an opportunity to discuss it when it really should have been discussed. That is the main point I want to make. I am so grateful that the Minister has now decided to come to the Dispatch Box.

[Mr Ellwood]

I thank my hon. Friend for his courtesy in allowing me to intervene, despite my being discourteous to him, for which I apologise—I thought we were going to go round in circles on the issue of the date. On his first point, as soon as the deal was made, the Foreign Secretary made a statement to the House, but given Government business, this was the first date we were given for coming to the House. On the second point, I am pleased that Iran is now participating in the Vienna talks. He is absolutely right that this is the first indication of what I hope will be a more responsible attitude from Iran towards regional security.

[Sir William Cash]

I do not intend to go into the complexities of the foreign policy implications, because that would warrant a much longer debate and involve not only the Minister for Europe but the Foreign Secretary —with respect to this Minister’s pay grade. This is vital to our security. One needed only to witness the discussions as they unfolded in Switzerland, at which the Foreign Secretary was present, the to-ing and fro-ing and the analysis that was brought to bear to realise the importance of this issue. That was the point I wanted to make about the timing. It is important, when we say a European document is of legal or political importance, that the matter is debated on the Floor of the House in the appropriate manner and at the right time. The UN Security Council voted to adopt resolution 2231 on 20 July, and these documents have been pouring out ever since. There is a more recent document, dated 18 October, which is getting nearer to now, but we are at the end of November. But I have made my point clearly enough.

--- Later in debate ---

[Sir William Cash]

One must indeed hope so. In the extremely complex and dangerous world that we now inhabit, we must also hope that some sensible diplomatic and useful solution—I would not call it a compromise—can be found.

To conclude my remarks, in September 2015, our own Prime Minister, the President of France and the Chancellor of Germany were saying:

“Iran will have strong incentives not to cheat”—

the opposite, I think, of what Roger Boyes was saying—

“The near certainty of getting caught and the consequences that would follow would make this a losing option.”

The first moment of truth is due to come at the end of this year, which I think the Minister understands very well, when the International Atomic Energy Agency is due to report on whether Iran has fulfilled the commitments that will enable international and thus EU sanctions to be substantially lifted, which is not the same as the fact, as many people seem to think, that they have been lifted already. This is a process, and this is what will transpire towards the end of the year.

[Mr Ellwood]

rose—

[Sir William Cash]

I think the Minister will confirm that.

[Mr Ellwood]

I can confirm that, but let me add that we shall have another yardstick to examine in February, when elections will be held for the Majlis, the Iranian Parliament. The type of candidate who will be allowed to stand will give the world the first indication of whether Iran is moving in a new direction. We hope that moderate candidates will step forward and will be allowed to stand, given that they have been denied that opportunity in the past.

[Sir William Cash]

I remind the House of what was said by my hon. Friend the Member for North East Somerset (Mr Rees-Mogg). We need to deal with the substance, and that is what the European Scrutiny Committee is there to do. It is there to go beyond the purely textual confusion that can arise from our having to debate a number of different documents—14 of which have not been fully set out—within a fairly limited time span. We need to get to the heart of what this is all about.

I am glad that the Minister said what he said just now. We want to be positive, but we also want to hold him and the Government to account. This is a hugely serious matter, and it is essential for it to be debated in good time. We could have debated it earlier, and, while we understand the position, we regret and deeply deplore the fact that it has not been debated until now.

Given what the Minister has said, I have nothing further to add, other than to express the hope that the Foreign Affairs Committee will note the significance of what is going on here—I know that my right hon. Friend the Member for New Forest East (Dr Lewis), the Chairman of the Defence Committee, already does—so we can start to have a proper discussion that it is properly timed, not only in the context of the IAEA and the end of the year, but in the context of the February discussions in Iran to which the Minister referred.

--- Later in debate ---

[Mr Jacob Rees-Mogg (North East Somerset) (Con)]

It is a great pleasure to follow the hon. Member for Strangford (Jim Shannon), who always makes interesting and important points, none more important than those he was making today about the persecution of Christians.

I want to cover initially the question of the scheduling of this debate, which has been raised in interventions both by me and by the hon. Member for Glenrothes (Peter Grant) because the scrutiny of European Union decisions by this House is important. It is a fundamental democratic right that this House is able to scrutinise the decisions made by the Government, and that needs to be done in a timely fashion. This debate was asked for in September; we are now two months on. It is worth bearing it in mind that the longest outstanding demand for a debate was one first made nearly two years ago. The second anniversary will come up in January, and if we have not had the debate by then I shall no doubt hold a birthday party for it. It is quite improper of Her Majesty’s Government to treat the House of Commons in that fashion. When debates are asked for, if the Government do not want to give them, there is a procedure under Standing Orders to put a motion before the House to refuse the debate.

[Mr Ellwood]

I say in all politeness and courtesy to my hon. Friend that we are now spending a lot of time discussing when the debate should happen. It is happening now. With respect to the European Scrutiny Committee, we have made it very clear that this is the earliest I have been requested to come to the House. I would have been delighted to come earlier. I make it clear that we have had other debates. Now that we are here, I suggest that we focus on the issues.

[Mr Deputy Speaker (Mr Lindsay Hoyle)]

Order. We do not want to get into a debate about when we should have the debate. I know that the hon. Member for North East Somerset (Mr Rees-Mogg) wants to get back to the issue and is going to bring us back to it now.

--- Later in debate ---

[Mr Ellwood]

With the leave of the House, Mr Deputy Speaker, I will respond to the debate. Let me first say that I did not realise how hugely anticipated it was; now I certainly realise. I am grateful to be able to respond to some of the important contributions that have been made.

I am grateful to the Labour spokesman, the right hon. Member for Wolverhampton South East (Mr McFadden), for his support and that of his party. He is right to pay tribute not just to the EU and the work that has been done with Federica Mogherini, but to Baroness Ashton. I certainly join him in that.

The Chairman of the European Scrutiny Committee, my hon. Friend the Member for Stone (Sir William Cash), articulated the balanced arguments on how we move forward in taking advantage of the opportunities but deal with the huge challenges that remain.

I would point out that there is an irony in spending 30 minutes of a 90-minute debate on discussing its timing. I suggest that if we want to continue to scrutinise what is happening on this important issue, the Backbench Business Committee should be approached. In response to one remark, I should make it clear that I have no power over that, but I look forward to further scrutiny of this matter.

The hon. Member for Glasgow North (Patrick Grady) made an important remark on the links between Glasgow and the current President of Iran. The hon. Gentleman spoke about the importance, as we embark on a new relationship with Iran, of establishing cultural and educational ties. We are certainly trying to do that.

My hon. Friend the Member for Hendon (Dr Offord) made a detailed speech that covered a large number of issues and concerns. I very much appreciate that he has concerns about companies linked to the IRGC. I can confirm that sanctions will remain on individuals listed for terrorism and abuses of human rights reasons, and many companies listed as linked to IRGC members are not due to be considered for delisting for eight years. I hope that that will reassure him.

The hon. Member for Strangford (Jim Shannon) made a passionate speech. He is now recognised in the House for his passion and commitment on human rights. He was absolutely right to raise such matters from the very start. The Iran nuclear deal is out of the way, but we must use the new links at every opportunity, whether through the Foreign Secretary speaking to Foreign Minister Zarif or the visits that will now take place with parliamentarians going to Tehran. Indeed, I raised these very matters when I met the deputy Foreign Minister during his recent visit to the United Kingdom only three weeks ago.

My hon. Friend the Member for North East Somerset (Mr Rees-Mogg) reminds us that other nations are seeking to procure nuclear weapons, and there is also North Korea. I absolutely agree with him that we need to prevent those on the margins of international order from gaining a nuclear weapon. I would add that there are also non-state actors about which we need to be concerned.

We may possibly hear again the speech of my right hon. Friend the Member for New Forest East (Dr Lewis) on Thursday. I certainly agree with him that this is an opportunity for reform, but one that needs to be handled absolutely correctly.

The nuclear agreement reached in July was certainly a major achievement. The deal will ensure that for the next 10 years, even if Iran reneges on the deal, it would take it at least 12 months to acquire even the necessary fissile material for a single nuclear weapon. Iran’s enrichment capacity will be reduced by more than two thirds of the current level. For 15 years, it will enrich uranium only to the level of 3.67%, which is way below the 90% level required for a nuclear bomb. Its stockpile of enriched uranium will be reduced to just 300 kg, down from more than 8 tonnes.

There will be no nuclear material, uranium enrichment or enrichment research and development for 15 years at the underground Fordow site, which will be converted into a nuclear physics and technology centre. Iran’s research and development will be limited, and it will not be able to enrich with advanced centrifuges for 10 years. The Arak heavy water reactor will be redesigned and rebuilt, so it will no longer be able to produce weapons-grade plutonium. Both the uranium and plutonium routes to a bomb will therefore be cut off. With the passing of adoption day last month and the agreement of the official document for the Arak project last week, Iran has begun to take the actions necessary to bring its nuclear programme within the limits I have outlined.

The deal and the restrictions are now very much in force, but I make it very clear that we are not starry-eyed. This is an agreement based not on trust, but on transparency and verification. Iran will grant the International Atomic Energy Agency unprecedented access to verify Iran’s actions to give us confidence that it is complying with its commitments. Some of the monitoring commitments, such as the implementation of the additional protocol, will last indefinitely. Put simply, if Iran did renege on its commitments and attempted to break-out for a bomb, we would know and have time to respond.

Looking ahead, allowing Iran to receive significant economic and financial benefits through the gradual lifting of sanctions will be vital to ensuring that it continues to abide by its commitments. We want Iran to feel the benefits of the deal. By adopting these measures, we have kept our side of the deal. It is now up to Iran to take the required actions on its nuclear programme. Only when those actions have been taken and the IAEA has verified that they are complete will the nuclear- related financial and economic sanctions be lifted. If at any stage we suspect Iran to be in breach of its commitments, all previous UN, EU and US sanctions can be re-imposed.

To conclude, the past year has been one of the most momentous for British relations with Iran, but we are under no illusions about the challenges ahead. Iran’s interference in regional affairs and its support for terrorist groups remain sources of deep concern. We will continue our robust support for the security of our allies in the region. However, not capitalising on the momentum that has been created by the nuclear deal and refusing to re-engage with Iran would be a perverse response to the progress that we have made.

If mutual trust and confidence can, gradually, be built, there is an opportunity for Iran to realign its approach to regional and global affairs. This opportunity, if embraced, offers Iran a route towards playing a constructive role in the region and feeling the economic benefits that re-engagement with the world will bring. We want to see signs that Iran is willing to move in the right direction. That is not just what we want, but, I believe, what the people of Iran want.

We, too, have a burden of responsibility to live up to our side of the deal. Iran must feel the benefit of sanctions relief if it is to continue to abide by the terms of the agreement in the long term. As such, the UK is working to encourage British businesses to take advantage of the opportunities that will arise once sanctions are lifted. With the embassy in Tehran open again, British diplomats can engage with Iran fully to find a way to work together in the struggle against ISIL, to speak candidly about human rights, and to build a trade and investment relationship that brings benefits to both our countries.

We are going into this deal with our eyes open. We remain optimistic about what can be achieved, but realistic about the challenges we face.

Question put and agreed to.

Resolved,

That this House takes note of the following unnumbered European Union Documents concerning restrictive measures against Iran: a Council Decision (CFSP) 2015/1050 of 30 June 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1099 of 7 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1130 of 10 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1148 of 14 July 2015 amending Decision 2010/413/CFSP, a Council Decision (CFSP) 2015/1336 of 31 July 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1327 of 31 July 2015 amending Regulation (EU) No. 267/2012, a Council Decision (CFSP) 2015/1337 of 31 July 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1328 of 31 July 2015 amending Regulation (EU) No. 267/2012, a Council Decision (CFSP) 2015/1863 of 18 October 2015 amending Decision 2010/413/CFSP, a Council Regulation (EU) 2015/1861 of 18 October 2015 amending Regulation (EU) No. 267/2012, and a Council Implementing Regulation (EU) 2015/1862 of 18 October 2015 implementing Regulation (EU) No. 267/2012; supports the Government’s view that, had the suspension of certain EU restrictive measures against Iran not been extended in the final stages of negotiations, the prospects for reaching an agreement would have been significantly diminished; and agrees that the amendments to EU legislation to meet the obligations set out in the Joint Comprehensive Plan of Action contribute to ensuring that Iran’s nuclear programme will be exclusively peaceful.