The European Union and the Middle East Peace Process, April 2002

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Series Details 20.4.02
Publication Date 20/04/2002
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  • This In Focus has been updated by 'In Focus: Quartet aims to guide Middle East on the road to peace'

Over the course of spring 2002 the world has witnessed the situation in the Middle East deteriorate. The suffering of hundred of Arabs and Israelis in Jerusalem and the West Bank has highlighted the urgent need for a solution to the long-standing problem in the Middle East. In this context, the European Union is increasingly seeking a role in the peace brokering process. Not only is it keen to see peace and stability brought to this area not far from its own borders but the situation also offers the European Union the opportunity to carve itself a role as a more powerful player on the global stage.Such ambitions were made clear at the Barcelona European Council on 16 March 2002 in a declaration on the situation in the Middle East, which stated,

"The EU is determined to play its role... in the pursuit of a solution. Following on its present effort, the EU will make a full and substantial economic contribution to peace-building in the region... The EU remains convinced that, in order to be durable, peace in the Middle East must be comprehensive"

However, many commentators have questioned the ability of the European Union at this stage to play a leading role in resolving such a deep, complicated and long-running conflict. Most believe that the European Union will once again have to find its voice by echoing that of the United States.

Background

  • The Middle East conflict

The origins of the conflict in the Middle East can be traced back to the period after World War One when the League of Nations granted Britain a Mandate over Palestine. However, this solution proved unworkable because of the competing claims of Zionism and Arab nationalism and so Britain referred the problem to the United Nations in 1947.

In November 1947 the United Nations called for the partition of Palestine into an independent Arab state and an independent Jewish state. Jerusalem was to be a corpus separatum under a special international regime administered by the UN. Following Britain's withdrawal in May 1948, the State of Israel was declared, and, immediately it sought to extend its control beyond the boundaries envisaged in Resolution 181 leading to heavy fighting which ended in 1949.

In 1964 the Palestine Liberation Organisation (PLO) was formed and in its charter it called for the elimination of Zionism in Palestine. In the "Six Days War" in 1968, Israel gained control of the West Bank, Gaza Strip, East Jerusalem, the Golan Heights and the Sinai Desert.

The UN responded by calling for the withdrawal of Israeli forces from "territories occupied in the recent conflict", for the termination of all claims, and for recognition of the sovereignty, territorial integrity and political independence of every State in the area.

In 1973 Egypt and Syria attacked Israel. Again following UN intervention, disengagement agreements were reached in 1974, leading to some demilitarisation of the Golan Heights. In 1979 an Egypt-Israel Treaty (based on 1978 Camp David negotiations) brought peace between Israel and Egypt, and returned the Sinai to Egypt.

In November 1988 the Palestinian National Council declared a Palestinian state followed by a statement by Yasser Arafat in December 1988 which renounced terrorism and affirmed Israel's right to exist, opening the way to dialogue with the United States.

Ina historic step forward, all parties met face to face in Madrid in October 1991 following US efforts and a peace process was launched. There were four key strands to the peace process:

  • a 'Palestinian track' (Israel-PLO)
  • a 'Syrian track' (Israel-Syria)
  • a 'Lebanese track' (Israel-Lebanon)
  • a 'multilateral track' with working groups on economic development, arms control and security, water, the environment, and refugees.

The structure of the current peace process is almost unchanged although it is the "Palestinian" track which tends to dominate the headlines.

The European Commission's DG External Relations outlines the multilateral track.

MidEast web also offers a series of documents charting the Middle East conflict.

  • The EU and the Middle East Peace Process

The European Union first affirmed its basic official position on the Middle East situation at the Venice European Council in June 1980, recognising the 'traditional ties and common interests which link Europe to the Middle East'. In the Venice Declaration on the Middle East the European Community, as it was then, expressed its concerns at "the growing tensions affecting this region" saying they,

"constitute a serious danger and render a comprehensive solution to the Israeli-Arab conflict more necessary and pressing than ever.

In response to this need, the Member States agreed that,

"the time has come to promote the recognition and implementation of the two principles universally accepted by the international community: the right to existence and to security of all States in the region, including Israel, and justice for all the peoples, which implies the recognition of the legitimate rights of the Palestinian people".

This statement clearly outlines the EU's position which has been reaffirmed numerous times since at General Affairs Councils of Foreign Ministers and at several European Councils, notably in Berlin, Cologne and Helsinki in 1999 and in Feira; Biarritz and Nice in 2000.

From this basic position, the European Union plays both a political and economic role in the peace process.

Political Role

The European Union fulfils a political role in the peace process in several ways:

  • EU Member State leaders regularly hold meetings with the main actors involved
  • The EU Troika made up of the present and incoming Presidency, the High Representative for CFSP Javier Solana, and the European Commission also hold regular meetings with the main actors involved
  • The EU Special Envoy for the Middle East Peace Process, Spaniard Miguel Moratinos closely monitors the situation and provides EU input where appropriate
  • The EU Presidency makes frequent Common Foreign and Security Policy statements responding to the situation and reiterating the need to overcome the stalemate of the process or supporting the progress achieved.
  • Under the auspices of the Common Foreign and Security Policy the EU also carries out joint actions in the area such as the monitoring of the Palestinian elections in early 1996 and the training of Palestinian policemen.
  • The EU also works closely with the US on the Middle East Peace Process through the Transatlantic dialogue. This resulted, inter alia, in the EU-U.S. Declaration on the Wye Memorandum, in December 1998
  • The Euro-Mediterranean Partnership also offers a means of conducting regional dialogue and the Barcelona Process and the Peace Process are complementary. Indeed without the agreement at Madrid in 1991, it would not have been possible to achieve current form of the Barcelona Process in 1991. Moreover, the Euro-Mediterranean Partnership offers the opportunity for dialogue to be pursued between Mediterranean Partners involved in the MEPP in a context of regional meetings on all questions of common interest. It remains the only multilateral forum outside the United Nations where all the conflict parties meet. The Palestinian Authority is recognised as equal Mediterranean Partner.

Economic Role

In the economic sphere, the European Union contributes perhaps more to the Middle East Peace Process than any other organisation. It is consistently the largest donor of non-military aid to the MEPP providing an average of €179 million a year over the past six years in direct support of the Palestinian Authority, refugees and regional Peace Process projects. This, coupled with indirect support to the Peace Process (bilateral and regional aid) to Israel's four neighbouring countries means the EU provides more than €810 million a year in EC grants and EIB loans .

In addition to helping Palestine, the European Union was the first trading partner and major economic, scientific and research partner of Israel as well as being a major political and economic partner of Lebanon, Syria, Jordan and Egypt.

It also offers bilateral economic and financial cooperation to all parties involved in the MEPP (except Israel due to its high GDP level), through the MEDA Programme of the EU budget. As one of the main instrument of the Euro-Mediterranean Partnership, this aims to create the conditions for peace, stability and prosperity in the region.

The EU's Growing Role

Although the EU has undoubtedly played a political and economic role in the peace process over the last two decades, it has not been at the forefront of negotiations, that position has been occupied by the United States.

The Camp David summit organised by President Clinton in July 2000 made significant progress in moving the process forward although there was no agreement. This was later followed by the decision at Sharm-el-Sheikh to establish a group to report on the situation and a set of talks at Taba in January 2001 brought the sides closer together. In fact, the EU did play a greater role at Taba where Migual Moratinos and his aides were the only team of outsiders present and they produced what is seen as the only official document from the talks. Following on from Taba, the Mitchell Committee presented its report on 21 May 2001 and this was accepted by all the parties and strongly endorsed by the EU and US. The need to implement the Mitchell package in full kickstarted more diplomatic efforts.

However, in the time it had taken for the Mitchell Committee to prepare its report the Bush administration had come to power and it made clear that neither Ariel Sharon, the Israeli Prime Minister, nor the US was bound by what had been discussed at those negotiations.

With the change of power in the US, the potential for the EU to play a bigger role in the Middle East appeared to grow as President Bush was keen to concentrate on domestic policies. Moreover, Yassir Arafat increasingly urged the EU to become more involved in the Middle East Peace process and this was echoed by calls from the Crown Prince Abdullah of Saudi Arabia who said in June 2001 that the EU should play a "more prominent role than the one that is currently hardly noticeable".

Indeed, European security officials did help Yassir Arafat's Palestinian Authority implement a ceasefire with Israel in June 2001 following suicide bomber attacks by Hamas and in September 2001 Miguel Moratinos, played an important part in mediating an end to Israel's reoccupation of parts of Beit Jala, the Palestinian-ruled town. Although the EU still lacked the US level of leverage and also the trust of Sharon, these efforts represented, as one Financial Times journalist put it,

"an exercise in damage control that could prevent a worsening of the crisis"

The Current Situation

The events of 11 September 2001 have had a clear impact on the situation in the Middle East and to some extent have turned President Bush and his administration's attentions on to the region. This coupled with the escalation of violence caused by an increased number of Palestinian suicide attacks and Israel's response of combating this terrorism through a military campaign have once again highlighted the need for international efforts to find a solution to the problem.

Meeting at Laeken in December 2001 it was quite clear that the European Union felt on the one hand under pressure from the US to isolate Arafat and yet on the other frustrated by the lack of Washington's efforts to resolve the crisis. However, the EU maintained in its declaration on the situation that Arafat was needed by Israel "as a partner to negotiate with in order to eradicate terrorism and to work towards peace". It also supported a UN resolution for a third-party monitoring mechanism in the area that was vetoed by the US.

Following on from this assertive stance, the EU, led by France, sought to launch a new peace plan in February 2002. The plan suggests that the deadlock could be broken by Yassir Arafat's Palestinian Authority seeking a fresh mandate through elections. Germany have also suggested that the Palestinians first hold a referendum based on three elements: agreement for a Palestinian state, an end to violence and a new mandate for peace negotiations with Israel.

Although Javier Solana, High Representative for the EU's Common Foreign and Security Policy, continues to remind the Member States that above all else they must speak with one voice, there are tensions between agreeing a co-ordinated EU line and individual Member States, often with historical interests in the region, pursuing individual initiatives.

Nevertheless, efforts do reflect the increasing role the EU and its Member States are prepared to take in the Middle East peace process. However, their efforts were somewhat hampered by the escalation of violence in March 2002 and the further deterioration in negotiations. Faced with the difficult situation the EU have been able to make little progress and recognise the need for US input. To this end they increased pressure on Washington in early April 2002 to present a coherent policy on the Middle East with a general consensus that different views are being presented throughout the administration. While the US President, Henry Kissinger, one infamously said "When I want to speak with Europe, who do I call?" Europe seems to be facing that dilemma with the US now, with one European official recently commenting that when it comes to the Israeli-Palestinian conflict they do not know to whom to turn in Washington.

Following this pressure, Bush intervened in the situation in the Middle East on 5 April 2002 and with it won the EU's co-operation for US efforts. In a statement on 8 April 2002, President of the European Commission, Romano Prodi, said,

"We support US Secretary of State Powell's efforts to halt the violence and bring sanity back to the region".

This support was reinforced in a meeting on 11 April 2002 in Madrid when representatives from the UN, Russia, the US and Europe met to discuss the Middle East conflict and presented the Palestinian Authority and Israel with a united front. In a declaration issued by the group they called for an immediate ceasefire, for Israel to withdraw immediately from the Palestinian self-rule areas, and for Mr Arafat to unequivocally denounce suicide bombers.

Conclusion

As the Middle East conflict continues it is clear that the EU does have a part to play and is increasingly developing it's own voice. It may not yet have the necessary weight to act on its own but it has succeeded in putting pressure on the US to intervene in the crisis. Moreover, while it may therefore be recognising that the US is the only power capable of playing a leading role it does demonstrate that the EU is beginning to take on some responsibilities in foreign affairs. Furthermore, Palestine and other Middle East countries are increasingly seeking its involvement. If the EU is not too ambitious then it could find some success in terms of its Common Foreign and Security Policy in the Middle East and more importantly help to bring an end to the suffering on both sides.

Further information within European Sources Online:

European Sources Online: Topic Guides
The European Union's Common Foreign and Security Policy
 
European Sources Online: European Voice
05.10.95: EU to run Palestinian elections
12.10.95: Timely boost for Israel
26.10.95: Euromed more than an empty gesture
09.11.95: Europe moves to underline its support for Israeli premier
14.03.96: EU woos Syria into peace talks
09.05.96: EU aims to secure heightened role in Middle East peace process
25.07.96: Union adopts waiting policy towards Israel
05.09.96: Union prepares to step up pressure on Netanyahu
24.10.96: EU presses its case in search for peace role
16.01.97: The EU has welcomed the Israeli-Palestinian agreement
03.04.97: Israel welcomes EU pragmatism
17.07.97: Israel under fire on peace agreement
02.10.97: Code aims to aid Middle East talks
20.11.97: EU tensions rise over Jerusalem
22.01.98: Israel attacks "surprise" Union paper
29.01.98: Santer tours Middle East to stress region's importance to EU
26.03.98: EU debates taking hard line on Israel
18.06.98: EU leaders expressed their "very grave concern" at the lack of progress in the Middle East peace process...
25.06.98: Marín seeks support over Israel
23.07.98: Israel bows to EU trade pressure over Palestine
01.10.98: Tel Aviv's change of heart eases tensions between EU and Israel
05.11.98: Peace deal in Middle East boosts trade hopes
19.11.98: New peace and stability charter to top agenda at Euro-med talks
07.01.99: Threat to punish Israel by research funding exclusion
04.02.99: EU strives to keep Middle East peace talks alive
04.02.99: Arab-Israeli stalemate threatens EuroMed programme
08.04.99: Israel holds key to fate of EuroMed talks
30.03.00: Bid to clarify Union's role in Middle East
27.04.00: Commission bids to bolster Euro-Med ties
11.05.00: New signs of life in Euro-Med partnership
02.11.00: Arabs to boycott Euro-Med talks as violence continues
09.11.00: Middle East peace process tests EU's foreign policy ambition
08.02.01: Patten backs extra aid for Palestinians
15.02.01: EU ministers to tackle funding
08.03.01: Lindh joins Patten mercy mission for Palestinians
31.10.01: "Aggressive" EU stance demanded on Middle East
08.11.01: EU leaders in Mid East peace mission
15.11.01: EU risks losing "honest" broker status, warns Israel
22.11.01: A fruitful mission...but is the Middle East ripe for peace?
22.11.01: The beauty of European foreign policy is not its uniformity but its flexibility
13.12.01: Bus bomb "big blow" to Solana hopes of Middle East respite
24.01.02: Middle East envoy resolute despite retaliation killings
14.03.02: EU needs "resolute" Middle East stance
21.03.02: Israel set to escape claims over damage to EU sites
04.04.02: Palestinians seek EU arms ban on Israel
 
European Sources Online: Financial Times
20.04.01: European Union struggles to find political role in the Middle East
17.05.01: EU puts peace onus on Israel
06.06.01: EU helps Arafat carry out ceasefire
25.06.01: Europe urged to do more to bolster peace in Middle East
07.09.01: EU diplomacy
17.10.01: In defence of Europe's foreign policy
06.11.01: EU downbeat on Middle East peace talks
12.11.01: EU to step up pressure on US over Middle East
17.11.01: Brussels steps up diplomacy
17.12.01: US pressure on EU over Mid East resolution
11.02.02: EU aims to launch radical Mid East peace plan
13.02.02: Washington turns deaf ear to Europe's divided voices
01.04.02: Europe frustrated by 'inconsistent' Washington Middle East policy
04.04.02: EU attacks "inadequate" action by US
06.04.02: Brussels welcomes US intervention
11.04.02: EU throws its weight behind Powell's mission to the region [FT.com]
11.04.02: Prodi urges Israel to quit Bethlehem church [FT.com]
15.04.02: Israelis warn EU not to impose sanctions [FT.com]
15.04.02: EU ministers favour diplomacy over sanctions [FT.com]
16.04.02: Ministers support Powell's ceasefire efforts [FT.com]
To trace further sources, carry out an 'Advanced Search', add the subject in the Keyword field and enter the relevant publication name in the Series Title field.

Further information can be seen in these external links:
(long-term access cannot be guaranteed)

EU Institutions
European Commission DG Press and Communication
Press Releases:
16.01.98: The role of the European Union in the Middle East peace process and its future assistance [IP/98/37]
15.11.01: EU troika to visit Middle East [IP/01/1597]
20.11.01: Statement of Romano Prodi, President of the European Commission, and Guy Verhofstadt, President of the European Union, on the Middle East Peace Process [IP/01/1613]
02.04.02: Statement by Romano Prodi, President of the European Commission, on the situation in the Middle East [IP/02/485]
02.04.02: Commissioner Chris Patten urges immediate ceasefire in the Middle East [IP/02/488]
03.04.02: Statement by Romano Prodi, President of the European Commission, on the situation in the Middle East [IP/02/489]
05.04.02: Chris Patten Commissioner for External Relations welcomes statement from President Bush on the Middle East [IP/02/507]
08.04.02: Statement of the President of the Commission Romano Prodi on Middle East and of Commissioner Nielson on humanitarian situation [IP/02/512]
09.04.02: Information note on Commission funded humanitarian activities in the Palestinian Territories [MEMO/02/71]
09.04.02: Situation in the Middle East [SPEECH/02/143]
 
Speeches:
06.10.99: The Middle East Peace Process [SPEECH/99/123]
19.01.00: The Middle East Peace Process [SPEECH/00/12]
01.02.00: The Middle East Peace Process [SPEECH/00/28]
04.09.01: Commission statement on the situation in the Middle East [SPEECH/01/366]
12.12.01: Situation in the Middle East [SPEECH/01/627]
05.02.02: Situation in the Middle East [SPEECH/02/45]
 
European Commission: DG External Relations
Homepage
The EU and the Middle East Peace Process
Documents and Links on the Middle East Peace Process
The EU's relations with Israel
 
Council of the European Union
Homepage
Press Releases
27.05.98: Middle East - EU Human Rights Watch Report: Occupied territories November 1997 - March 1998 [PRES/98/155]
23.05.00: Declaration of the European Union on the Middle East Peace Process [PESC/00/73]
13.09.00: Declaration by the European Union on Middle East Peace Process [PESC/00/129]
13.10.00: Declaration by the Presidency on behalf of the European Union concerning the Middle East [PESC/00/155]
08.12.00: Declaration by the European Council on the Middle East [PESC/00/188]
29.03.01: Declaration by the Presidency on behalf of the European Union on the deteriorating situation in the Middle East [PESC/01/69]
18.04.01: Declaration by the Presidency on behalf of the European Union on the escalation of violence in the Middle East [PESC/01/152]
18.05.01: Dr. Javier Solana, EU High Representative for the Common Foreign and Security Policy, Visit to the Middle East, 20-23 May 2001 {PESC/01/91]
20.05.01: Dr. Javier Solana, EU High Representative for the Common Foreign and Security Policy, appeals for a cease-fire on his departure for the Middle East [PESC/01/92]
23.07.01: Visit of Dr. Javier SOLANA, EU High Representative for the Common Foreign and Security Policy, to the Middle East 23-26 July 2001
12.10.01: Middle East - EU Human Rights Watch Report: Occupied territories November 2000 - August 2001
29.10.01: Declaration by the European Union on the Middle East [PESC/01/171]
 
International Organisations
 
United Nations
Question of Palestine
 
United Nations: Permanent Observer Mission of Palestine to the United Nations
Homepage
 
United Nations: Permanent Mission of Israel to the United Nations
Homepage
 
National Organisations
 
Israel: Israeli Government
Homepage
 
Israel: Prime Minister's Office
Homepage
 
Israel: Ministry of Foreign Affairs
Homepage
 
Palestine: Palestinian National Authority
Homepage
 
Palestine: Palestinian Liberation Organisation
Negotiation Affairs Department
 
United States: Department of State
Middle East Peace Process
 
United States Report on the Middle East
Homepage
 
United Kingdom: Foreign and Commonwealth Office
Homepage
 
France: Ministère des Affaires étrangères (Ministry of Foreign Affairs)
Homepage
Situation au Proche-Orient
 
Germany: Auswärtiges Amt (Foreign Office)
Homepage
Federal Minister Fischer to meet Nabil Shaath
 
Miscellaneous Organisations
 
MidEast web
Homepage
Middle East Historical and Peace Process Documents
Timeline of the Palestinian Israeli History and the Israel-Palestine Conflict
 
Bertelsmann Foundation
Homepage
Project Overview: Europe and the Middle East
Strategy Paper - Kronberg III/1997
Strategy Paper - Kronberg IV/1998
Strategy Paper - Kronberg V/1999
Strategy Paper - Kronberg VI/2000
Strategy Paper - Kronberg VII/2002
 
News Organisations
 
BBC News Online
 
06.01.99: Israel seeks EU support on peace
12.02.99: Israel accuse EU of Pro-Palestinian bias
11.03.99: EU re-ignites Jerusalem sovereignty row
18.01.00: Peace talks delay concerns EU team
01.07.00: Arafat seeks support from EU
07.12.00: Arafat to meet EU envoy
23.02.01: Arafat wants EU role in Middle East
23.03.01: Analysis: Europe and the Middle East
21.05.01: EU seeks Mid-East ceasefire
21.05.01: EU tries to ease Mid-East tensions
24.07.01: EU tries to shore up ceasefire
22.09.01: New EU peace drive in Mid-East
12.11.01: US promises new Mid-East initiative
17.11.01: EU begins Mid-East peace tour
18.11.01: Sharon warns EU on Palestinian funds
05.12.01: Mid-East splits Europe and US
13.12.01: US and EU to maintain Arafat link
07.02.02: Europe's growing MidEast role
08.02.02: EU denies rift with US
09.02.02: EU split on Middle East
13.02.02: Analysis: EU split on Middle East
21.02.02: EU counts cost of Israeli-hit projects
27.02.02: Mid-East diplomacy stepped up
04.04.02: EU team meets Israeli leaders
04.04.02: EU abandons peace mission
15.04.02: Q&A: Middle East peace conference
15.04.02: EU ministers reject Israel sanctions

Further and subsequent information on the subject of this In Focus can be found by an 'Advanced Search' in European Sources Online by inserting 'Middle East' in the keyword field.

Helen Bower
Compiled: 20 April 2002

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