OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

OSCE's parlamentariske Forsamling 2004-05 (2. samling)
OSCE Alm.del Bilag 95
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OSCE's parlamentariske Forsamling

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OSCE alm. del - Bilag 95

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FOR

SWISSFOUNDATION WORLDAFFAIRS

PARI I \MENTARY ASSEMBLY

REPORT

Colloquium on

"The Future of the OSCE"

A Joint Project

the OSCE Parliamentary Assembly

and

the Swiss Institute for World Affairs

Washington, 5-6 June 2005

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

This report has been agreed by President of the OSCE PA,

Congressman Alcee L. Hastings and the Swiss Foundation Chairman,

Ambassador Edouard Brunner. It has been drafted by Ambassador

G&ard Stoudmann, Director of the Geneva Centre for Security Policy

and Spencer Oliver, Secretary General of the OSCE PA who served as

co-Rapporteurs during the Colloquium. They were assisted by Nicolas

Kaczorowski, Deputy to Ambassador Stoudmann and Tina Schøn

from the International Secretariat of the OSCE PA. The Report is a

synopsis of views expressed at the Colloquium as seen by the

Rapporteurs, and it also takes into consideration opinions expressed

in the written contributions which were submitted to the project. The

Report has been reviewed by the participants at the Colloquium who

agree with the content. The written contributions are attached to the

Report.

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

EXECUTIVE SUMMARY

to its purpose

The OSCE is facing serious difficulties as well as challenges

Colloquium

and political relevancy. Participants and contributors to the

and relevant

unanimously agreed that the OSCE is still a valuable

critical role in

international organization that should continue to play a

commitments

promoting stability and security in Europe. The political

as in other

made in the Helsinki Final Act and the Charter of Paris as well

preserved and

CSCE/OSCE documents are of great value. They should be

upheld by the Participating States.

most political.

It was also agreed that the crisis of the OSCE is first and fore

tical problems

The structural reform in and by itself will not solve the poli

ents of the 55

that only participating States can address. The governm

ul, credible and

OSCE states should reconfirm their commitment to a usef

ld also commit

professional OSCE that serves the interest of all. They shou

entation of all

themselves, at the highest political levels, to the full implem

in the structures

of their OSCE commitments and to future improvements

and procedures of the Organization.

It was also agreed that:

of security,

1. The strengthening of OSCE activities in the field

nse of the

economy and environment should not be done at the expe

es and

human dimension or to the detriment of basic OSCE valu

by further

principles. The security dimension should be expanded

cts of

elaborating the Code of Conduct on politico-military aspe

rity Co-

security and increasing the role of the Forum for Secu

operation.

ly relevant and

2. Election observation is one of the most political

of these

visible aspects of the Organization. The independence

expanding

missions must be protected and efforts should focus on

ents. It is

electoral standards without weakening existing commitm

their co-

recommended that ODIHR and the OSCE PA increase

ence of the

operation in order to maintain and ensure the independ

ed. Finally,

OSCE election observation that has been recently erod

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

election assessments could be expanded further in Wes

tern

democracies. Double standards in electoral observations shou

ld be

avoided.

3. The role of the OSCE Secretary General should be strengthened

the political, budgetary and administrative spheres. The Secr

etary

General, as well as and in consultation with the Chairman-in-Off

ice,

should be able to speak for the Organization and to mak poli

pronouncements as well as appropriate criticisms when

OSCE

commitments are not observed.

4. The OSCE should improve its ability to make timely deci

sions

through adjusting its decision-making procedure. The cons

ensus

rules could be modified for decisions related to personnel, bud

get

and administration.

5. Transparency and accountability can be improved by requ

iring that

a country which blocks or holds up consensus must do so open

and be prepared to defend such position publicly.

6. The OSCE Parliamentary Assembly could approve the bud

get and

confirm the Secretary General once nominated, by an abso

lute or

weighted majority vote and after appropriate consultations.

7. The budget must be adopted in a timely fash

ion and be

commensurate to OSCE political objectives. A multi-year fina

ncial

plan should be established in order to pursue longer

term

strategies.

8. Structural reform is needed to improve the function

ing of the

Organization: 1) Enhancing the analytical capabilities

of the

Secretariat by the creation of an Analysis and Prospective

Unit; 2)

Building permanent lessons learned capabilities by setting

up a best

Practices Unit; and 3) developing a truly operational civilian

rapid

reaction capability to intervene at time of crisis.

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

ctures. In

9. Professional standards should be raised in all OSCE stru

ts on

order to attract and retain performing staff, fixed term limi

At the same time,

duration of service should be eliminated.

, when

reliance on seconded personnel should be reduced. However

re that

seconded personnel are assigned, Governments should ensu

such assignment is for a substantial period of time -- at leas one

two years.

reinforce

1O. The OSCE needs to increase its network capabilities and

its strategic co-operation with the EU, NATO, and the UN

opening liaison offices in Brussels and New York City.

ept,

The OSCE could export its comprehensive security conc

e its

expertise such as election observation and assistance and shar

values and experience beyond the OSCE area.

ADDRESSING THE POLITICAL CHALLENGES FIRST

relevance are

At a time when the OSCE's purposefulness and political

the colloquium

challenged and put into question, the participants in

comprehensive

unanimously agreed that with its unique composition and

management

security concept as well as its crisis prevention and

vant role to play

capacities, the OSCE still has the potential and has a rele

s, the OSCE has

in a Europe facing new security challenges. In recent year

cal situation that

encountered serious problems and has entered into a criti

requires high-level attention by the participating States.

and should find

The problems are first and foremost of a political nature

ainly needed,

political responses at the outset. Structural reforms are cert

emphasis on these

but the essential problem lies elsewhere. Putting the

then does it make

can only blur the issue and confuse the priorities. Only

g States decide to

sense to proceed with structural reforms. If participatin

resilience, will

support the OSCE in its objectives, they need to commit

n before they

and resources in politically revitalizing the Organizatio

ity to reform will

undertake the structural reform. The OSCE's abil

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

ultimately depend on how much Participating States are committ

ed to and

interested in the Organization's potential.

The OSCE today is in a complex situation. With successive EU

and NATO

enlargements, there is a tendency at the political level to

devote less

attention to the OSCE which has increasingly disappeared

from public

view. In many countries, the OSCE is rarely placed high

on political

agendas in Capitals. The fact that the OSCE Ministerial Council

Meetings

are attended at an increasingly lower political level is

a sign of this

diminishing political interest. These elements all point to

the reduced

political relevance of the OSCE. Political issues relevant to its

mandate and

geographical areas are barely addressed seriously any

more at the

Permanent Council.

The culture of informal discussions and consultations,

which once was

necessary to build up consensus and formal decisions has

been eroded.

Broad consultations should be carried out on current political

issues. The

EU countries in the OSCE arduously negotiate issues amo

ng themselves

before they disclose their common position to non-EU coun

tries. Once a

compromise in the EU has been found, there is very little

scope for

negotiations, which contributes to the shrinking importa

nce of the OSCE

as a political platform. Therefore, rebalancing the decision mak

ing process

and making it more transparent and inclusive is a necessity.

Rebalance the OSCE Multidimensional Approach

The three dimensions of the OSCE have constituted

the early and

innovative recognition of the inseparable link betw

een security,

development and democracy that ensures stability

The OSCE

comprehensive security concept is still current and very

relevant for

addressing the challenges of the XXI century. The expa

nsion of security

related activities should not be done to the detriment of the

importance of

the human dimension. Within the security dimension,

actions should be

taken increase the role of the Forum for Security and

Co-operation, to

involve the OSCE in security sector governance, by inte

r alia elaborating

the code of conduct on politico-military aspects of

security.

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

Maintain the OSCE Lead on Electoral Activities

t politically

Election observation is recognized as the remaining mos

so and the

relevant and visible activity of the OSCE. This must remain

e in this

OSCE should not relinquish its leading comparative advantag

is critical to

field. The involvement of the Parliamentary Assembly

rvation.

maintain the visibility and independence of OSCE election obse

election

Agreement was found on the need to complement the existing

ch should

standards and to continue to improve election observation, whi

dards.

in no way result in a watered-down version of existing stan

OSCE PA

As previously indicated, it is recommended that ODIHR and the

ensure the

increase their co-operation in order to maintain and

been recently

independence of the OSCE election observation that has

ed further in

eroded. Finally, election assessments could be expand

ions should

Western democracies. Double standards in electoral observat

be avoided.

DEMOCRATIZATION OF THE OSCE

Strengthening the role of the OSCE Secretary General

ainable and it

It has been agreed that the present status quo is not sust

n-in-Office

would be in the interest of the organization and the Chairma

General. There is

itself to benefit from a strengthened role of the Secretary

ed role for the

no contradiction or conflict of interest between a reinforc

irmanship. A

Secretary General and the overall responsibilities of the Cha

ctions, lack

Chairman-in-Office rotating annually means ever changing dire

coherent and

of political continuity and difficulty to define a long-term,

etary General

sustainable priorities. The aims and role of the OSCE Secr

should:

rmanship to

1- Ensure better political continuity from one chai

another;

ng the OSCE credibility;

Define long term priorities, thus improvi

3- Serve as the focal point for the Organization;

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

4- Increasing his/her decision making power in pers

onnel and

administrative issues;

5- Speak for the Organization and making political pronoun

cements;

6- Take political initiatives;

7- Propose priorities for resource allocation (financial, hum

an and

administrative) and other activities in particular present a

multi-

year financial plan; and

8- Ensure that budget is adopted in a timely fashion and hum

an and

financial means be commensurate to the political objectives of

the

Organization. A slight increase in the OSCE budget will

greatly

boost its effectiveness.

Permanent Council Procedures: Transparency and

Accountability in the Decision-making

Achieving consensus within the OSCE has become increasi

ngly difficult.

Protracted negotiations on relatively minor issues have

hampered the

effectiveness of the Organization and have, at times, led

to paralysis. It is

recognized that the consensus rule for decisions related

to budget,

personnel appointments and general administrative issu

es should be

modified.

Furthermore, the decision making process has to beco

me more

transparent. A country should only be able to block the cons

ensus openly

and publicly. Debates should be more open and tran

sparent and not

limited to issues where a consensus exists but shou

ld extend to

contentious matters where consensus is lacking. Informa

l consultations

and generally better information sharing are criti

cal to improve

accountability, transparency and visibility of the Organiz

ation.

Strengthened Role of the OSCE PA

The OSCE Parliamentary Assembly remains an essentia

l player because

it is by essence more independent and can take political initi

ative. The PA

should be more closely associated to the OSCE decision

shaping and

making processes as is the case for the Parliamentary

Assembly of the

Council of Europe. The OSCE PA should approve

the budget of the OSCE

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

ination. This

and confirm the OSCE Secretary General after the nom

E Secretary

would ensure the independence and legitimacy of the OSC

General, and reinforce his/her position.

agement,

Furthermore, in the field of conflict prevention and crisis man

organizing "fact

the OSCE PA should take more political initiative such as

could be

finding missions", facilitating negotiations. These initiatives

carried out

public or confidential assimilated to silent diplomacy and

rs (European

alone or in co-operation with other parliamentary acto

pe). Such

Parliament, Parliamentary Assembly of the Council of Euro

ibility and

initiatives would substantially increase the political cred

visibility of the Organization.

INSTITUTIONAL REFORM

Structural adjustments

effective crisis

To regain political credibility, the OSCE has to act as an

OSCE needs

management and conflict prevention/resolution body. The

p action.

effective early warning and an ability to carry out swift follow-u

To this end, three concrete measures are recommended:

riat by the

1- Enhancing the analytical capabilities in the Secreta

ess and

creation of an Analysis and Prospective Unit. It will proc

the field

analyze the wealth of information that the OSCE collects in

. This

and through its network of institutions and missions

ning and

instrument would be essential to set up credible early war

conflict prevention mechanisms.

provide

Establishing a Best Practices Unit in the Secretariat will

This unit

the OSCE with a permanent lessons learned capability.

roving the

will inter alia formulate recommendations aiming at imp

will also

functioning, effectiveness and work of field missions. It

will seek to

analyze working methods of other organizations and

ropriate.

adapt and apply them to the OSCE, when and where app

And,

that could be

3- Developing a civilian rapid reaction capability

d missions.

deployed in time of crisis to supplement the work offiel

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

These teams would provide the OSCE with the opportunity to

react

swiftly to an unfolding crisis, assess the situation and the needs,

and

make policy recommendations to the OSCE executive bod

ies for

future actions. These civilian experts could be recruited on an

ad-

hoc basis.

Increased co-operation with other international organiz

ations

The OSCE should further develop its network capabilit

ies which are

currently too dependent on personal individual contacts.

Permanent

channels of communications must be opened and strategic co-o

peration

with the EU, NATO and the UN must be established through

the creation

of liaison offices in Brussels and New York City. Carefully sele

cted liaison

personnel would have a multiplier effect on networking, wor

king contacts,

and on guaranteeing prime access to strategic thinking

and planned

operations from other organizations. This would imp

rove the OSCE's

ability to respond adequately and swiftly.

OSCE Field Presences

The OSCE field presences offer significant comparative

advantages.

However, current weaknesses and grievances from the field

, institutions

and participating States indicate:

1) deficient recruitment procedures;

2) in some cases, insufficient professionalism;

3) a lack of adequate human and financial resources; and

4) a too often lack of clear political guidance and of coherent priorities.

Consequently, it is recommended that:

clear political guidance be regularly updated and reviewed;

ii)

interaction and support from the Chairmanship, the Secr

etariat

and field missions be revisited with the aim of improvi

ng the

political and administrative functioning of missions;

iii)

Micromanagement from Vienna be avoided; and

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

iv)

Geographic and substantive priorities established for field

missions be periodically reviewed.

Professionalism

The OSCE counts good professionals. The problem is that the Organization

is not able to retain them or attracted experienced senior staff due to

restrictive staff rules that limit the maximum duration of employment to

seven years. These rules have become counter productive. The OSCE loses

not only experience and know-how, but it also lacks the continuity needed

for the successful implementation of programs on the ground. The OSCE

competes directly with other career-based international organizations e.g.

the European Commission, the UN, NATO and Council of Europe, for

experienced trained staff. Addressing this problem is essential to improve

the quality and credibility of the work of OSCE. The OSCE needs to keep

efficient employees for as long as desirable in order not to lose experience,

institutional memory and valuable networks. To that effect, the OSCE

employment rules should be revised. This can be done by eliminating

maximum time limits while maintaining fixed term contracts subject to

periodical, in-depth review of performance. Such system would allowfull

flexibility as well as preserve the best OSCE professional staff.

Despite its financial advantages, the secondment system has shown its

inherent weaknesses, such as the uneven quality of the recruited staff and

the lack of transparency in the recruitment process. The Organization has

little control over who is recruited through this system, and the quality

control is less effective than for contracted personnel. Secondment is a

factor that contributes to diminished effectiveness and credibility of the

Organization. However, secondment in its current form and under specific

circumstances is still useful since it confers flexibility to quickly deploy

large scale and temporary missions such as military observers, but it

should not be used to fill the Organization's core positions that require

continuity. It is recommended to review the OSCE secondment system,

using for instance the UN system, whereby employees have a contractual

relationship with the Organization.

OSCE, Alm.del - 2004-05 (2. samling) - Bilag 95: Report - Colloquium om "The Future of the OSCE"

Additional recommendations include: 1) reducing reliance on seconded

personnel in core positions in thefield; 2) requesting participating States

to second personnel for no less than one year at a time; 3) empowering

regional experts, and 4) pursuing efforts on training. There is an urgent

need to reform the OSCE recruitment policy in order to enhance the level

of continuity among the staff in the field and within institutions, and to

guarantee highest possible professional standards.

Expanding Out-of-Area Activities

On the one hand, the OSCE specific expertise such as election observation

and assistance could be used out-of-area directly or indirectly where it can

contribute positively to the stabilization of an area. On the other hand, the

OSCE should consider exporting its model of comprehensive and

cooperative security to partner countries and beyond (Middle East, Africa,

etc). There is a growing interest in the Organization from areas outside

the OSCE. This opportunity should be seized to share OSCE values and

experience. The OSCE should stand ready to provide assistance with

regard to crisis in other areas. This "out-of-area"policy could be endorsed

at the next Ministerial Council. If approved, appropriate resources should

be allocated to credibly implement this policy.

Increased visibility

The OSCE is not attractive for the media and will never be , unless it

regains political credibility and is perceived as a relevant security actor.

Therefore the issue of visibility is very much limited to the further political

role of the Organization and cannot be fixed technically.

It is recommended to improve co-ordination and cross fertilization

between the various media units in the Organization, in particular between

the Chairmanship and the Secretariat.