Credit: MAEE
On Tuesday 9 November 2021, Luxembourg's Minister of Foreign and European Affairs, Jean Asselborn, delivered his annual foreign policy address to the Chamber of Deputies (Parliament).
In front of Luxembourg's Members of Parliament (MPs), Minister Asselborn presented the main aspects of the Grand Duchy's foreign and European policy, reviewing the major issues on the European and international agenda.
Introduction
Like last year, Luxembourg and its diplomatic activities have been impacted by the COVID-19 pandemic in 2021. Minister Asselborn said the crisis has revealed both strengths and vulnerabilities at the national, European and global level. Luxembourg and the European Union (EU) have been confronted with many challenges from which it is now a question of drawing lessons, whether at the social, economic or political level.
How to get out of the crisis
Luxembourg's Foreign Minister stressed the importance of vaccination as the only means of effectively combatting coronavirus. He praised the EU vaccination strategy which has enabled the delivery of enough vaccines for the entire European population, despite still persistent disparities between Member States. He added that Luxembourg and the EU have shown solidarity by redistributing more than a billion vaccines to other countries around the world.
Minister Asselborn recalled that the pandemic has also threatened European achievements, particularly the free movement of people which has been restricted since the start of the crisis. He emphasised that Luxembourg is committed to ensuring that such restrictions do not hinder the fundamental rights of European citizens. Finally, he welcomed the development and implementation of the EU Digital COVID Certificate at the European level, a tool which is expected to facilitate travel within the EU and beyond.
Lessons to be learned
Faced with the reappearance of national reflexes, Luxembourg's Foreign Minister emphasised the fundamental role of cooperation between European states. During the pandemic, cross-border regions suffered particularly from border controls. In this context, Minister Asselborn indicated that Luxembourg has submitted, together with its Belgian and Dutch neighbours and the three Baltic states, a proposal at the European level aimed at better taking into account cross-border realities in future European decisions.
Investment in recovery and resilience for the future
Minister Asselborn also discussed the NextGenerationEU recovery plan as well as the Multiannual Financial Framework (MFF) for the period 2021-27, which will be of crucial importance to mitigate the economic impact of the health crisis within the EU. The Foreign Minister pointed out that the decisions taken in response to the pandemic have made it possible to put in place hitherto unprecedented measures at the European level. Recalling that the COVID-19 crisis has reinforced social inequalities in the EU, he stressed that the economic recovery initiated must be fair and inclusive, so as to create upward social convergence in the Member States.
Commercial policy
Luxembourg's Foreign Minister went on to emphasise the importance of the single market in ensuring the economic, social and ecological recovery of the EU. Noting that the pandemic has had a significant impact on logistics and supply chains globally, he welcomed the debate conducted at the European level on the development of the EU's open strategic autonomy with the aim of promoting the competitiveness of European companies while avoiding falling into protectionism.
He added that Luxembourg is also committed to a commercial policy which is more respectful of the environment and human rights. He recalled that the Grand Duchy is in favour of strengthening the provisions on sustainable development in EU trade agreements. Luxembourg was also among the first European countries to call for the development of concrete initiatives at the European level aimed at ensuring that human rights are taken into account in the context of supply chains.
In this context, Minister Asselborn recalled that the Luxembourg government has set up an interministerial committee, under the coordination of the Ministry of Foreign and European Affairs, which is responsible for analysing issues related to the possibility of legislating on a duty of diligence in human rights issues for companies in Luxembourg.
Climate policy
As in previous years, the year 2021 was characterised by the climate emergency and its consequences at the global level, as demonstrated by forest fires and floods. Minister Asselborn referred to the European Green Deal, which provides for a 55% reduction in greenhouse gas emissions by 2030. He also recalled that an ecological transition generates profound transformations, which may have an impact on the financial income of European citizens. In this context, he welcomed the proposal of the European Commission to set up a €72 billion Social Climate Fund.
In the context of the 26th United Nations Climate Change Conference (COP26) which is taking place in Glasgow (UK) from 31 October to 12 November 2021, the Foreign Minister expressed his hope that countries will manage to make the necessary commitments to pursue a policy more ambitious environmental policy for the next few years, which will be decisive. For its part, Luxembourg has committed to reducing its methane emissions by 30% by 2030.
How to defend our values in the post-crisis world?
Luxembourg's Foreign Minister addressed the deterioration of the rule of law in several countries around the world, and more particularly within the EU. After expressing his concern at the latest developments in certain Member States, he stressed the importance of the implementation of the conditionality regime within the framework of the European budget, a mechanism making it possible to make the payment of European aid conditional on respect for the rule of law. As a community of values, the EU must defend its democratic principles, particularly in the face of attacks on the independence of the judiciary and the new hybrid threats posed by disinformation campaigns, added the minister.
Subsequently, Minister Asselborn highlighted the appointment of Luxembourg as Vice Chair of the OECD Ministerial Council, chaired by the United States. Within this international organisation, Luxembourg has put the themes of green transition, digital development and the defence of the rule of law at the centre of discussions.
The year 2021 is also marked by Luxembourg's election to the UN Human Rights Council for the first time on 14 October. Minister Asselborn presented Luxembourg's four priorities for the 2022-24 mandate: support for the rule of law, climate action based on human rights, the defence of gender equality and the protection of children's rights. In addition, he emphasised that the defence of journalists and press freedom as well as a feminist foreign policy continued to be an integral part of Luxembourg's foreign policy.
Migration
Regarding migration-related issues, Minister Asselborn insisted that Luxembourg's commitment to the protection of human rights goes hand in hand with its commitment to a humane migration policy. Recalling that migratory flows resumed in 2021, the minister recalled the ongoing negotiations concerning the Pact on Migration and Asylum. Concerning the reception of refugees, he insisted on the need to agree on a fairer system, stressing in particular the importance of establishing a compulsory solidarity mechanism.
The Foreign Minister also spoke of the importance of combining the protection of the EU's borders and respect for human dignity, denouncing the conditions in which many refugees are held pending the processing of their asylum applications.
He finally recalled that the Grand Duchy was actively contributing to solidarity efforts, in particular by continuing to participate in relocation and resettlement operations for refugees.
Afghanistan
Luxembourg's Foreign Minister looked back at the events in Afghanistan this past summer. The fall of Kabul in mid-August, marking the Taliban's takeover of power in the country, resulted in a concerning humanitarian situation. The minister recalled that Luxembourg has provided assistance to vulnerable people who have had to leave Afghanistan for their safety. In addition to emergency evacuations organised in collaboration with European partners, the Grand Duchy has issued humanitarian visas and processed family reunification applications.
Minister Asselborn also reviewed the current situation with regard to decision-making in matters of international protection for Afghan applicants. He recalled that due to the recent Taliban takeover, it has been difficult to access objective and verified information allowing a decision on the asylum applications of Afghan refugees. In the interest of these persons, requests not allowing a ruling in favour of the person concerned are being put on hold for now. According to Minister Asselborn, Luxembourg has thus chosen to follow an approach that is both humane and respectful of its international and European obligations.
Non-proliferation
In the field of disarmament, Luxembourg is continuing its commitment to the non-proliferation of weapons, particularly weapons of mass destruction. Minister Asselborn recalled that Luxembourg's efforts in this area are in line with the objectives set by international treaties and conventions, such as the Treaty on the Non-Proliferation of Nuclear Weapons, the Convention on the Prohibition of the Development, Production, Stockpiling and Use of Chemical Weapons and on their Destruction, and the Biological Weapons Convention.
The minister also emphasised that Luxembourg actively participates in multilateral exchanges with partner countries, encouraging the opening of an in-depth and transparent dialogue between all actors.
Competition
Luxembourg's Foreign Minister went on to recall that the Grand Duchy and the EU operate in a multipolar world marked by new regional rivalries and changing power relations. In this constantly changing world, the EU must strengthen its position as a point of reference in terms of solidarity, the defence of human rights and the rule of law, stressed Minister Asselborn.
He added that Luxembourg must adapt to political developments outside its borders. Exchange with European partners, and more particularly with its direct neighbours, is crucial in defending national and European positions abroad. In this context, Minister Asselborn announced the upcoming opening of a Luxembourgish embassy in Ireland.
EU enlargement and the Western Balkans
Minister Asselborn recalled that Luxembourg supports the prospect of the accession of the Western Balkans to the EU. For Luxembourg's Foreign Minister, respect for the rule of law, the independence of the judiciary and the fight against corruption are fundamental criteria for membership; he stressed that these reforms determined the speed with which countries were moving forward on the path to EU membership. In the context of the latest developments in the region, he nevertheless regretted the lack of progress in several areas, notably with regard to democratic values in some countries.
Turkey
Minister Asselborn regretted the fact that Turkey was moving away politically from the EU. He said he was very worried about the evolution of the rule of law and respect for human rights in the country, notably denouncing the imprisonment of journalists, academics and political opponents without any form of trial. However, he recalled the importance of preserving the lines of communication with Ankara.
Belarus
Luxembourg's Foreign Minister also denounced the repression of opposition movements that challenge the authoritarian abuses of Belarus' President Alexander Lukashenko. He also strongly criticised the instrumentalisation of refugees by the Belarusian government to exert pressure on the external borders of the EU.
Russia
Relations with Russia remain marked by significant tensions. Minister Asselborn regretted the closure of Russia's diplomatic representation to NATO in Brussels. He said that channels of cooperation between the EU and Russia exist and should be exploited, whether in the fields of the protection of the environment, the fight against terrorism, the peace process in the Middle East or the energy sector.
EU southern neighbourhood
Minister Asselborn reiterated Luxembourg's commitment to its partners in North Africa. Regarding the latest events in Tunisia, he expressed concern over the rule of law, following presidential decrees seeking to modify the constitution. The minister then noted that the peace process in Libya, although fragile, is encouraging, especially with the prospect of the organisation of elections in December. Finally, on the subject of Mali, he deemed coordinated cooperation with European partners necessary to support the Malian authorities in the fight against terrorism and thus to prevent the recruitment of foreign mercenaries.
Africa
Recalling the importance of Africa for the EU and Luxembourg, Minister Asselborn referred to his participation in the ministerial meeting between the African Union and the EU in Rwanda in October, ahead of the EU-African Union Summit scheduled for February 2022. Referring to the many opportunities for an in-depth partnership for the two continents, the minister stressed the importance of redefining relations between Europe and Africa.
Luxembourg's Foreign Minister emphasised that Africa must not be reduced to an area characterised by wars, violence or migration. The African continent holds many political and economic potentials that the EU and Luxembourg must seize, in a context where other global players are showing growing interest. The minister recalled that bilateral relations between Luxembourg and its African partners encompass democratic values and respect for human rights.
Ethiopia
Minister Asselborn reflected on the worrying situation in Ethiopia. He deplored the state of war in the country, which started a year ago in Tigray. Seven million people are currently dependent on humanitarian aid. In this context, Luxembourg's Foreign Minister insisted that only a political dialogue can lead to a peaceful solution, and he welcomed in this context the recent diplomatic initiatives under the aegis of the US and the African Union.
China
Regarding diplomatic relations with China, Minister Asselborn reaffirmed that Beijing remains an important partner for Luxembourg, while regretting the persistent discrepancies in terms of respect for human rights. The Foreign Minister referred to the Xinjiang internment camps and Chinese sanctions against European actors, taken in response to the sanctions taken by the EU. He reaffirmed Luxembourg's will to commit to human rights in Xinjiang. On the other hand, dialogue and cooperation with China on other subjects, such as the fight against the COVID-19 pandemic or the climate issue, require strengthening.
Cyberspace
In his speech, Minister Asselborn also addressed the issue of cyberspace, which is becoming a new field of conflict between states. Although accessible to all, cyberspace is now being used by some countries for the purposes of disinformation, espionage and sabotage in order to influence the internal affairs of other countries, noted the minister. He added that cyber attacks and disinformation campaigns threaten our political systems and our societies, making the application of international law in cyberspace necessary.
Luxembourg's economy in the world
The Foreign Minister turned his attention to the efforts of the Luxembourg diplomatic network in promoting local companies around the world during the pandemic. While COVID-19 has made exchanges between players more complex, the diplomatic and consular network, particularly in Asia, can assist Luxembourg companies in preserving their economic relations in established markets, such as China, Japan and South Korea.
EU security and defence policy
Minister Asselborn recalled that Luxembourg can only evolve in a multipolar world within a strong EU. He referred to the EU's “strategic compass”, whose work should give new directions for the positioning of the bloc on the international scene. In this context, he emphasised the need for European consultation on defence policy. A more assertive common security and defense policy will make the EU more resilient to future crises and will strengthen relations with partners across the Atlantic, he concluded.
Transatlantic relations
Luxembourg's Foreign Minister stressed the importance of the transatlantic partnership, in particular within the framework of NATO and economically. He said he was reassured that Luxembourg and the EU could recreate a relationship of trust with US President Joe Biden. This will facilitate exchanges on issues of common interest, particularly in connection with economic relations. In this context, Minister Asselborn welcomed a first step forward with the US' suspension of customs duties on European steel and aluminum which was put in place under the mandate of Donald Trump.
EU foreign policy
Minister Asselborn addressed the major foreign policy projects that the EU must tackle. On the one hand, he spoke of the efforts that must be made to relaunch negotiations on the Iran nuclear agreement, noting that a new meeting is finally scheduled for the end of November. On the other hand, the conflict between Israelis and Palestinians persists and has led to deadly clashes with a peak of violence between April and May 2021. The minister lamented that Israel is currently calling into question the Oslo Accords and the two-state solution. Minister Asselborn called on the EU to put the Middle East peace process back on its list of priorities in order to ensure impartial respect for international law and the right to self-determination of peoples in this region.
European cohesion
Luxembourg's Foreign Minister emphasised that the future of Europe belongs to young people, who have particularly suffered from the health crisis by not being able to study in normal conditions, travel or socialise with friends. Minister Asselborn referred to the Conference on the Future of Europe which brings together European citizens, particularly young people, to lead discussions on future challenges and how to bring the European institutions closer to citizens. The minister stressed that such discussions should take into account the aspirations, hopes and fears of young people.
Luxembourg as a European capital
Minister Asselborn then spoke of Luxembourg's role as a European capital. Recalling the importance of defending the rule of law, he welcomed the start of the operational work of the European Public Prosecutor's Office (EPPO), whose headquarters have been in Luxembourg since 1 June 2021. In addition to legal institutions, the minister mentioned the central place occupied by European financial institutions and bodies in Luxembourg, specifically the European Investment Bank (EIB) and the European Stability Mechanism (ESB), with the latter set to move into its new premises in Luxembourg-Kirchberg. A third European pole, that of digital, continues to develop in Luxembourg, for instance through the installation of the European High Performance Computing Joint Undertaking (EuroHPC).
Conclusion
Minister Asselborn concluded his annual foreign policy address by recalling the difficulties created by the COVID-19 pandemic. The use of digital communication technologies has enabled Luxembourg to engage in parts of the world where its diplomatic network is not directly present, opening up valuable new avenues of cooperation. However, the very meaning of foreign policy requires human contact, direct exchange and impressions gathered on the spot, said Luxembourg's Foreign Minister, who expressed hope for a gradual return to a new normal.
Despite the pandemic, Luxembourg has succeeded in pursuing a foreign and European policy at the service of Luxembourg citizens and residents, imbued with the European ideal of integration and cooperation, noted Minister Asselborn. The Foreign Minister also reiterated that Luxembourg will continue to engage on the international stage to defend its interests, values and convictions.
