Report

From 28 June to 2 July 2014, a delegation of three Canadian parliamentarians attended the OSCE Parliamentary Assembly’s (OSCE PA) Annual Session in Baku, Azerbaijan. The Honourable Senator Ghislain Maltais led the delegation, which also included from the Senate, the Honourable Senator Paul Massicotte, and from the House of Commons, Mr. Bradley Trost, M.P. Ms. Erin Shaw, Advisor, accompanied the delegation.

Overview of the OSCE and Its Parliamentary Assembly

Established in 1975 as the “Conference on Security and Co-operation in Europe” (CSCE), the Organization for Security and Co-operation in Europe (OSCE) was given its current name at the Budapest Summit in December 1994. The OSCE participating countries, currently 57 in number, include all of the countries of Europe, the United States and Canada, as well as the states that made up the former Soviet Union and Mongolia. Eleven other states from the Mediterranean area and Asia-Pacific joined as observers and are known as “Partners for Cooperation.” The organization is designed to be a primary instrument for early warning, conflict prevention and crisis management. It is also recognized as a regional arrangement under Chapter VIII of the Charter of the United Nations, which requires that participating United Nations Member States “make every effort to achieve pacific settlement of local disputes through such regional arrangements or by such regional agencies before referring them to the Security Council.”[1] However, the OSCE is not an international organization in the strict sense of international law and its resolutions are not legally binding on the signatory countries.

The OSCE’s 2014 budget is €142,304,100, a decrease from the 2013 budget of €2.5 million. In 2014, approximately 62% of the OSCE’s budget is dedicated to 17 field missions and other field activities in South‑Eastern Europe, Eastern Europe, the South Caucasus and Central Asia. The OSCE employs approximately 2,480 individuals, the vast majority of whom are assigned to field missions. Approximately 20% of the OSCE employees are seconded by the participating states.[2]

An Inclusive, Global and Cooperative Approach to Security

The OSCE’s unique character derives from its composition, which enables the United States and Canada to participate as full members in an organization that addresses European issues. The OSCE favours inclusive dialogue over selective admission. This enables it to keep communication channels open on key security issues between Western democracies and countries with less exemplary democratic records. It also promotes exchanges between the European Union, Central Asian states (Kazakhstan, Uzbekistan, Turkmenistan, Tajikistan, and Kyrgyzstan) and Mongolia that are not members of the Council of Europe. Whereas the key goals of the Council of Europe is to promote and defend democratic development and human rights, and to hold member governments accountable for their performance in these areas, the OSCE aims to foster the development of an expansive, conflict-free geographic area – from Vancouver to Vladivostok. In this context, the OSCE also aims to foster democratic principles in participating states.

The OSCE’s resolutions and activities stem from a comprehensive understanding of security that extends beyond the political-military model. In the Charter for European Security, adopted at the November 1999 Istanbul Summit, the heads of state and of government of the participating countries agreed to “address the human, economic, political and military dimensions of security as an integral whole.”[3] All forms of peaceful cooperation between the participating countries are considered as having the potential to reduce the risks of conflict in the region. The OSCE’s cooperative approach is confirmed by the fact that all 57 states have equal status. Decisions are made by consensus rather than majority vote.[4]

Operational Capacity

After the end of the Cold War, the OSCE developed its institutions and operational capacities in response to particular and often urgent needs, and not as a long-term strategic plan. The 1990 Charter of Paris for a New Europe laid the foundations for the OSCE’s institutional framework.[5]

Approximately two thirds of the OSCE budget is devoted to its field missions, which are located in South‑Eastern Europe, Eastern Europe, the South Caucasus and Central Asia.[6] The six OSCE missions in South-Eastern Europe account for 57% of the field mission budget and just over one third of the organization’s total budget. The fact that the OSCE has no missions in Western Europe or North America is a point frequently raised by the Commonwealth of Independent States[7] to argue that, although it claims to be cooperative and egalitarian, the OSCE applies a double standard in its relations with the participating countries. The OSCE’s response is that its operations stem from commitments made in a consensual manner and at the invitation of the countries themselves.

The OSCE is led by a rotating “chairman-in-office” selected to serve a one-year term from among the foreign ministers of the participating countries. As the organization’s senior diplomat, the chairman-in-office is supported by the Secretariat and its Secretary General who are based in Vienna.

On 1 January 2014, Switzerland succeeded Ukraine as the chair of the organization. Mr. Didier Burkhalter, the President of the Swiss Confederation and Head of the Swiss Federal Department of Foreign Affairs, is serving as Chairman-in-Office. Serbia will succeed Switzerland as chair of the organization on 1 January 2015.

Italy’s Lamberto Zannier has served as OSCE Secretary General since 1 July 2011. He succeeded France’s Marc Perrin de Brichambaut who served as OSCE Secretary General from 2005 until 2011.

The OSCE Parliamentary Assembly

The OSCE Parliamentary Assembly (OSCE PA) is the parliamentary dimension of the OSCE. It was created by the OSCE (at that time the CSCE) in 1991 following the call set out by the participating states in the 1990 Charter of Paris for a New Europe. Its primary purpose is to facilitate inter-parliamentary dialogue on issues facing the participating states and to issue recommendations for the OSCE, national governments, parliaments and citizens concerning the OSCE’s three spheres of action. Among the OSCE PA’s objectives are the following:

·         to assess the implementation of OSCE objectives by participating states;

·         to discuss subjects addressed during meetings of the OSCE;

·         to develop and promote mechanisms for the prevention and resolution of conflicts;

·         to support the strengthening and consolidation of democratic institutions in OSCE participating States; and

·         to contribute to the development of OSCE institutional structures and of relations between existing OSCE Institutions.

The OSCE PA is organised according to three General Committees representing the three “baskets” of the 1975 Helsinki Final Act and the areas of focus of the OSCE: the First General Committee on Political Affairs and Security, the Second General Committee on Economic Affairs, Science, Technology and Environment, and the Third General Committee on Democracy, Human Rights and Humanitarian Questions.[8] Its work is also carried out by way of ad hoc committees, working groups, and special representatives and envoys. The Parliamentary Assembly also plays a key role in observing elections in the OSCE region and regularly sends parliamentary delegations on field missions.

The Parliamentary Assembly is managed by a Bureau and a Standing Committee. The Bureau comprises a president, nine vice-presidents, a treasurer, the chair, the vice-chair and rapporteur for each of the three General Committees, and the president emeritus. The Bureau is responsible for ensuring that the decisions of the Standing Committee are carried out and takes decisions by majority vote. The Standing Committee of the OSCE PA comprises the members of the Bureau and the 57 heads of delegation of the participating states. The Standing Committee guides the work of the Assembly, approves its budget and appoints the Secretary General. It uses the “consensus minus one” rule when voting on decisions, except in the case of the appointment of the Secretary General, which is done by a majority vote.

The Secretary-General and the Secretariat located in Copenhagen provide administrative support to the OSCE PA. These support structures were established and became operational in January 1993 soon after the creation of the OSCE PA.

Today, the OSCE PA comprises more than 300 parliamentarians who are appointed by their respective parliaments. Observers of the Assembly include parliamentarians from the OSCE’s Mediterranean Partners for Co-operation (Algeria, Egypt, Israel, Jordan, Morocco and Tunisia), Asian Partners for Co‑operation (Japan, Korea, Thailand, and Afghanistan) and Australia, as well as representatives from other parliamentary assemblies and security organizations, such as NATO.

Since its first Annual Meeting in Budapest in July 1992, members of the OSCE PA and representatives of the Partners for Co-operation have convened several times a year to carry out the mandate of the Assembly. The Annual Session, which is held in July and hosted by the parliament of a participating State, is the most important event in the OSCE PA calendar. At the Annual Session, the Standing Committee adopts the budget for the next fiscal year, adopts the agenda for the Session, and hears reports from the President and from the Secretariat. The three General Committees meet separately to hear reports from the Committee rapporteurs, to elect Committee officers, and to debate and adopt draft resolutions. The Assembly also meets in plenary to debate draft resolutions, receive reports, adopt the Session’s declaration, and elect the President, Vice-Presidents and certain other PA officers.

The PA’s three General Committees also convene jointly and separately at the Winter Meeting in February in Vienna, where the OSCE’s headquarters are located. At the Winter Meeting, the Assembly debates issues of importance, receives briefings from senior OSCE officials, and hears presentations by the Rapporteurs of each Committee on their ideas for draft resolutions for the upcoming Annual Session. At the Fall Meetings in September or October, which are hosted by the parliament of a participating state, the Assembly in plenary holds a conference on a topical issue.

The OSCE PA also convenes to discuss more specific topics, either on the margins of these regular annual meetings and at other times. For instance, the Parliamentary Forum on the Mediterranean is held during the Fall Meetings of the OSCE PA, and the Economic Conference is hosted by the parliament of a participating state, normally every second spring.

The OSCE PA Bureau meets at the Annual Session, in April and in December each year. The Standing Committee meets at the Annual Session, the Fall Meeting, and at the Winter Meeting.

The Assembly’s budget covers most of the organizational expenses related to the Annual Session, Winter Meeting, Fall Meetings, Standing Committee and Bureau Meetings, official visits, the election observation programme, as well as the costs of the International Secretariat. Host parliaments of the Annual Sessions contribute significantly by providing considerable support. The Secretariat’s office facilities are provided free of charge by the Danish Folketing (parliament).

The OSCE PA’s budget is approved at the Annual Session. At the 2014 Annual Session in Baku, the Standing Committee unanimously approved a 1.1% increase in the budget. The 2014–2015 budget, therefore, is €3,03 million. For 2014–2015, Canada’s budgeted contribution is €167,559 (approximately C$239,308).

Mr. Ilkka Kanerva (Finland) was elected President of the Assembly at the 2014 Annual Session in Baku. President Kanerva replaced President Ranko Krivokapic (Montenegro). Spencer Oliver (United States) has served as secretary general since January 1993. Dr. Hedy Fry (Canada) was appointed by the OSCE PA President in October 2010 as the Special Representative on Gender Issues and was re-appointed in that role by President Kanerva following the 2014 Annual Session.

2014 Annual Session[9]

For five days from 28 June – 2 July 2014, parliamentarians from across the OSCE area, together with representatives of the “Partners for Cooperation” states met in Baku, Azerbaijan for the 2014 OSCE PA Annual Session. The theme of the Annual Session was “Helsinki + 40: Towards Human Security for All.” The Helsinki +40 process is an effort that is currently underway to strengthen the OSCE as it approaches the 40^th anniversary of the Helsinki Final Act in 2015.

The program began with two plenary sessions and a meeting of the OSCE PA Standing Committee. Over the next three days, the Assembly held meetings of the General Committees, a working lunch on gender issues, and a meeting of the Bureau. The final day of the Annual Session was devoted to a closing plenary session.

During the closing plenary, delegates adopted the Baku Declaration, which contains all of the resolutions passed during the course of this year’s annual session. Mr. Ilkka Kanerva (Finland) was elected as the President of the Assembly for a one-year term.

Over the five days of the Annual Session, Senator Ghislain Maltais, Acting Head of the Canadian Delegation, presented a number of amendments to the three general committee resolutions that were proposed originally by Dr. Hedy Fry, M.P., who was unable to attend.

A.   Standing Committee

The 2013-2014 OSCE PA President, Ranko Krivokapic (Montenegro), chaired the Standing Committee meeting. During its meeting, the Standing Committee heard a report from the PA’s Treasurer, Mr. Roberto Battelli (Slovenia) and approved a budget increase of 1.1% in order to maintain the PA’s activities during the 2014-2015 fiscal year. The Secretary General gave a report to the Standing Committee, in which he discussed a series of seminars being organized by the OSCE PA and leading think-tanks with the aim of making a contribution to the OSCE’s Helsinki +40 project.[10] The Standing Committee also received reports on the OSCE PA’s recent election observation missions, including its observation of the 25 May 2014 Ukrainian presidential elections.

The Standing Committee approved 14 supplementary items for debate at the Annual Session. Supplementary items are resolutions brought forward by parliamentarians to supplement the principal resolution to be debated in each General Committee. New rules of procedure, adopted at the 2013 Annual Session in Istanbul, limited the number of supplementary items that were considered by the Standing Committee and placed on the agenda for debate by the Assembly.[11]

Canadian Participation

Senator Ghislain Maltais represented the Canadian delegation at the Standing Committee meeting. As required by the OSCE PA’s rules of procedure, the 2014 budget increase was adopted by consensus of all heads of delegation present at the meeting.

B.   Inaugural Plenary Sessions and Special Debates

Delegates were welcomed to the Annual Session by the 2013-2014 OSCE PA President Ranko Krivokapic. Ilham Aliyev, the President of Azerbaijan, addressed the opening plenary and discussed the successes and challenges faced by Azerbaijan in implementing its OSCE commitments. The Speaker of the Milli Mejlis (the Azerbaijani parliament), Ogtay Asadov, noted the importance of parliamentary diplomacy in his remarks to the plenary. Delegates also had the opportunity to hear from the OSCE Chairman-in-Office, Didier Burkhalter, President of the Swiss Confederation, who discussed the OSCE’s efforts to mediate the crisis in Ukraine and other initiatives of the Swiss chairmanship.[12] Sergey Naryshkin, Speaker of the State Duma (parliament) of the Russian Federation, and Rulan Koshulynskyi, Deputy Chairman of the Verkhovna Rada (parliament) of Ukraine presented their views on the crisis in Ukraine.[13] Their discussion was complemented by remarks about the Ukraine crisis from Antonius Broek, United Nations Resident Coordinator in the Republic of Azerbaijan.

Following the presentations, delegates had the opportunity to pose questions.

Two special debates were also held in separate plenary sessions. On 29 June 2014, delegates debated the rise of extremism, radicalism and xenophobia and on 1 July 2014, they debated the crisis in Ukraine. Following the Ukraine debate, the plenary considered and adopted a supplementary item proposed by U.S. Senator Ben Cardin on “Clear, Gross and Uncorrected Violations of Helsinki Principles by the Russian Federation.”[14]

Canadian Participation

Senator Ghislain Maltais, Senator Paul Massicotte and Mr. Brad Trost, M.P. attended the inaugural session and the two special debates.

During the debate on the rise of extremism, radicalism and xenophobia, Senator Maltais emphasized that Canada is a nation built on immigration, where discrimination on the basis of race or religion is not acceptable. He noted that xenophobia can lead to violence and, in turn, can undermine peace and security. The Senator stressed the need to combat this pernicious phenomenon wherever it occurs in the OSCE area.

Mr. Trost intervened during the special debate on Ukraine to highlight Russia’s violation of the Helsinki principles and to call for strong political action in response. In his remarks, Mr. Trost underscored the need for clear action to support Ukraine and its territorial integrity. Senator Maltais also spoke during the Ukraine debate, underlining Canada’s ongoing support for Ukraine’s territorial integrity and for the Ukrainian people. He called for all OSCE parliamentarians to support Ukraine and to work to bring an end to the crisis.  

C.   General Committee on Political Affairs and Security

Chair: Vacant

Vice-Chair: Azay Guliyev (Azerbaijan)

Rapporteur: Pia Kauma (Finland)

The Committee considered and debated a draft report and resolution on the topic of “Helsinki + 40: Towards Human Security for All,” submitted by the Rapporteur, Ms. Pia Kauma of Finland. Presenting her report, Ms. Kauma discussed the crises in Ukraine and emphasized the relevance of the existing framework for conventional arms control in Europe, including the OSCE’s Vienna Document 2011, the Treaty on Conventional Armed Forces in Europe and the Treaty on Open Skies. She also drew attention to the OSCE Code of Conduct on Politico-Military Aspects of Security and stressed the role of parliaments in ensuring the democratic accountability of the security sector. Following the presentation, delegates debated issues related to frozen conflicts, terrorism and the rule of law, as well as the crisis in Ukraine.

The Committee debated and adopted the following supplementary items proposed by OSCE parliamentarians:

·         The Development of Mediation Capacity in the OSCE Area

·         Regional Co-Operation in South East Europe

·         The Fight Against Terrorism

·         The OSCE’s Further Engagement with Afghanistan

The Committee also elected the following officers for 2014 - 2015:

·Asa Lindestam (Sweden) – Chair

·Azay Guliyev (Azerbaijan) – Vice-Chair

·Pia Kauma (Finland) – Rapporteur

Canadian Participation

All members of the Canadian delegation attended meetings of the First General Committee and voted on the amendments to the draft resolution prepared by the rapporteur and on four supplementary items.

Senator Ghislain Maltais presented two amendments which were adopted as part of the First General Committee resolution. The first amendment recalled the need to increase the representation of women throughout the OSCE, and particularly in the politico-military dimension. The second amendment urged parliamentarians to support women’s public and political involvement by raising public awareness of the importance of gender equality and establishing political networks to encourage women’s leadership in the OSCE. The Senator also intervened in the debate on a Russian-sponsored supplementary item on combatting terrorism, in order to emphasize the importance of the rule of law in counter-terrorism activities.

D.   General Committee on Economic Affairs, Science, Technology and Enviornment

Chair: Roza Aknazarova (Kyrgyzstan)

Vice-Chair : Nilza Sena (Portugal)

Rapporteur: Roger Williams (United Kingdom)

The Committee considered and debated a draft report and resolution on the topic of “Helsinki + 40: Towards Human Security for All,” submitted by the Rapporteur, Mr. Roger Williams of the United Kingdom. In his presentation of the report and resolution to the Committee, Mr. Williams discussed a range of issues, including climate change, water security, migration management and resource extraction. He also emphasized the importance of scientific and technological innovation. Delegates intervened during the debate which followed to discuss economic conditions in the OSCE area, green energy initiatives, and gender issues, amongst other topics.

In addition, the Committee debated and adopted the following supplementary items proposed by OSCE parliamentarians:

·         Protection and Promotion of Socio-Economic Rights in the OSCE Area

·         The OSCE at 40 Years – A Region of Trust and Mutually Beneficial Co-Existence

·         Food Security, Limited Water Resources and Stability in the OSCE Area

The Committee also elected the following officers for 2014 - 2015:

·         Roza Aknazarova (Kyrgyzstan) – Chair

·         Nilza Sena (Portugal) – Vice-Chair

·         Marietta Tidei (Italy) – Rapporteur

Canadian Participation

Senator Paul Massicotte and Mr. Brad Trost, M.P. attended the Second General Committee meeting.

Senator Ghislain Maltais sponsored two amendments to the rapporteur’s draft resolution stressing the importance of women's economic empowerment and urging participating States to ensure the legal recognition of women’s property rights. On behalf of Senator Maltais, who was presenting amendments at the same time in another committee meeting and therefore could not be present, Mr. Trost presented the amendment on the recognition of women's property rights and Mr. Kyriakos Hadijianni of Cyprus presented the amendment on women's economic empowerment. Both amendments were adopted by the Committee.

During the committee’s debate on the draft resolution, Mr. Trost also intervened to highlight the stability of Canada's banking system during the recent financial crisis and to express his views on a proposed amendment.

E.   General Committee on Democracy, Human Rights and Humanitarian Questions

Chair: Isabel Santos (Portugal)

Vice-Chair: Mehmet Sevki Kulkuloglu (Turkey)

Rapporteur: Gordana Comic (Serbia)

The Committee considered and debated a draft report and resolution on the topic of “Helsinki + 40: Towards Human Security for All,” submitted by the Rapporteur, Ms. Gordana Comic of Serbia. The draft report focused on protecting the human rights of migrants and addressing the challenges posed by migration. In addition, the resolution addressed issues related to the rule of law, access to justice, political prisoners, and civil society engagement. It also included proposals aimed at strengthening the OSCE’s Human Dimension.

In addition, the Committee debated and adopted the following resolutions proposed by OSCE parliamentarians:

·         Comprehensive Immigration Reform

·         Protection of Cultural Property in the OSCE Area

·         Prevention and Prosecution of Child Sex Trafficking

·         Situation of Refugees

·         Combatting Torture

·         Democratic Control of the Public and Private Security Sectors

The following Committee officers were acclaimed for 2014 - 2015:

·         Isabel Santos (Portugal) – Chair

·         Mehmet Sevki Kulkuloglu (Turkey) – Vice-Chair

·         Gordana Comic (Serbia) – Rapporteur

Canadian Participation

In collaboration with American Senator Ben Cardin, Senator Ghislain Maltais presented an amendment commemorating the 10^th Anniversary of the OSCE’s Berlin Declaration against anti-Semitism. The amendment, which was co-sponsored by Mr. Brad Trost, M.P. as well as Senator Cardin, expressed concern that attacks targeting Jews and their property as well as Jewish religious, educational and communal institutions continue 10 years after the Berlin Declaration, which set out concrete measures to combat anti-Semitism. In his remarks, Senator Maltais stressed that parliamentarians have a duty to speak out and condemn such hate crimes wherever they occur. Senator Maltais also presented amendments broadening the scope of protection from discrimination contained in the resolution; calling for OSCE participating states to work towards improved access to health services for all, without discrimination; and encouraging participating states to develop baseline data and indicators in order to monitor national implementation of the 2004 OSCE Action Plan for the Promotion of Gender Equality. All of the amendments sponsored by Senator Maltais were passed by the Committee.

During the debate on the supplementary items, Senator Maltais intervened in support of a resolution proposed by U.S. Congressman Chris Smith on the “Prevention and Prosecution of Child Sex Trafficking.” In his remarks, the Senator highlighted recent Canadian legislative initiatives and the special protections available for trafficking victims in Canadian court proceedings.

F.    Closing Plenary Session

During the closing plenary session, delegates heard reports from OSCE PA Treasurer Roberto Battelli (Slovenia) and OSCE PA Secretary General Spencer Oliver. Delegates also voted to adopt the Baku Declaration.[15]

Elections were held for the post of President and for three Vice-Presidential positions. Mr. Ilkka Kanverva (Finland) was elected as President of the Assembly for a one-year term. Mr. Emin Onen (Turkey) was re-elected as a Vice-President of the OSCE PA, while Mr. Kent Harstedt (Sweden) and Ms. Christine Muttonen (Austria) were elected as Vice-Presidents for the first time. Therefore, the new OSCE PA Bureau for 2014-2015 includes the following elected office-holders:

·         President

Ilkka Kanerva (Finland)

·         Vice-Presidents

George Tsereteli (Georgia)

Doris Barnett (Germany)

Robert Aderholt (United States)

Vilija Aleknaite Abramikiene (Lithuania)

Isabel Pozuelo (Spain)

Alain Neri (France)

Kent Harstedt (Sweden)

Emin Onen (Turkey)

Christine Muttonen (Austria)

·         Treasurer

Roberto Battelli (Slovenia)

·         Committee Officers

§  First Committee (Political Affairs and Security)

Asa Lindestam (Sweden) – Chair

Azay Guliyev (Azerbaijan) – Vice-Chair

Pia Kauma (Finland) – Rapporteur

§  Second Committee (Economic Affairs, Science, Technology and Environment

Roza Aknazarova (Kyrgyzstan) – Chair

Nilza Sena (Portugal) – Vice-Chair

Marietta Tidei (Italy) – Rapporteur

§  Third Committee (Democracy, Human Rights and Humanitarian Questions)

Isabel Santos (Portugal) – Chair

Mehmet Sevki Kulkuloglu (Turkey) – Vice-Chair

Gordana Comic (Serbia) – Rapporteur

§  President Emeritus

Ranko Krivokapic (Montenegro)

G.   Additional Activities of the Canadian Delegation

Mr. Brad Trost, M.P., attended the OSCE PA’s annual gender lunch, hosted by the Parliament of Azerbaijan and the OSCE PA Secretariat. Participants were welcomed to the luncheon by Ms. Bahar Muradova, Head of the Azerbaijani delegation to the OSCE PA and Deputy Speaker of the Parliament of Azerbaijan; Ms. Roza Aknazarova of Kyrgyzstan, Chair of the Second General Committee of the OSCE PA; and Ms. Walburga Hapsburg Douglas of Sweden, Vice-President of the OSCE PA. The theme of the luncheon was the tenth anniversary of the OSCE’s Gender Action Plan.

The Canadian delegation also attended receptions hosted by the President of Azerbaijan, the Prime Minister of Azerbaijan and the Speaker of the Azerbaijani Parliament, and held side meetings with the two OSCE PA presidential candidates.

Respectfully submitted,

Mr. Dean Allison, M.P.

Director

Canadian Delegation

to the Organization for Security and Co-operation in Europe

Parliamentary Assembly

(OSCE PA)