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Foreign Minister Jonas Gahr Støre

Foreign policy address to the Storting on the situation in the Middle East and on Lebanon and Norway’s force contribution

11 September 2006

Mr President,

I am glad that the Minister of Defence and I have this opportunity to address the Storting on the crisis in the Middle East. The fact that the Storting has been summoned to an extraordinary session for this debate reflects the gravity of the situation.

It is the Government that makes decisions on Norwegian participation in international operations. In accordance with established constitutional practice, the bodies of the Storting are consulted when such decisions are being made. We have on several occasions had ample opportunity to do so in this matter.

I am pleased that these consultations have shown that the Government’s intention of contributing four fast patrol boats (FPBs) and the required military support personnel to the expanded UNIFIL force enjoys broad support in the Storting. In the Government’s view, this address to the Storting and to the general public is essential in order to secure backing in such an important issue.

It also means a lot to the military personnel being deployed on a demanding assignment to know that this decision enjoys broad support in the Storting.

Mr President,

The crisis this summer started on 12 July, when Hezbollah attacked an Israeli patrol on the Israeli side of the border. The UN Security Council placed the responsibility for initiating the war on Hezbollah.

In the ensuing fighting, more than 1000 Lebanese civilians were killed, many of them while attempting to flee the hostilities. In Israel about 40 civilians were killed.

The Government immediately condemned Hezbollah’s assault and rocket attacks on Israel.

The Government has underlined Israel’s right to defend itself against the Hezbollah attacks. But we have condemned Israel’s massive bombing of Lebanese infrastructure and other civilian targets, including those outside the area where Hezbollah was active. In our view, Israel’s response was beyond what was necessary and proportionate. The civilian suffering and the number of civilian casualties were disproportionate to the threat Israel was facing.

This war affected us directly because there were many Norwegians in the area. On 14 July the Ministry of Foreign Affairs established a crisis response team, which immediately initiated the evacuation of Norwegians from Lebanon. The Government’s Crisis Council was also convened, and a number of ministries, agencies and organisations contributed to the ensuing operation. It succeeded in evacuating the vast majority in a little more than one week. The Norwegian authorities assisted more than 1000 Norwegian nationals and other persons who are legally resident in Norway in leaving Lebanon. In addition, more than 1000 people from other countries received assistance from the Norwegian authorities.

Mr President,

In the light of the grave developments in Lebanon, it was of great importance that one month ago today, the UN Security Council reached agreement on resolution 1701. The negotiations were long and difficult, and such resolution texts will always contain elements that one might have preferred were otherwise. But the important thing was that all the members of the Security Council were able to support the resolution.

The resolution helped to put an end to the hostilities. This demonstrates the key role of the UN in dealing with serious threats to international peace and security. Resolution 1701 sets out guidelines for a solution to the conflict in Lebanon, and could also have significance for the region as a whole. When a resolution has the unanimous backing of all the members of the Security Council as in this case, all the UN Member States have a shared responsibility for facilitating its implementation. The Government takes this responsibility very seriously.

The political follow-up will take place in the UN Security Council, beginning with the Secretary-General’s report on the implementation of the resolution in the near future.

I am pleased that we have now received essential clarifications as to the operation’s objectives, composition and rules of engagement, i.e. rules for the use of force. On this basis the Government could go in for Norway’s participation. This was communicated formally to the UN on Tuesday last week. The Minister of Defence will address you on this matter in more detail.

Let me underline that there are ongoing consultations regarding the details of the forces’ mandate, including that of the naval forces. The Government is following these consultations closely and is prepared to adjust its decisions as the mandate takes shape. The Lebanese Prime Minister has expressed to me that he welcomes Norway’s contribution to UNIFIL. There is no doubt that Lebanon would like UNIFIL to be expanded, but there is still a need for clarification as regards the operative mandate of a naval force.

It is positive that the Norwegian Navy can contribute to an international operation.

I would like to stress that our participation in Lebanon will not be to the detriment of our obligations in Afghanistan or to our ability to contribute to a prospective UN force in Darfur.

The fact that so many European countries have agreed to participate in the UNIFIL operation is of great importance. Together, they will account for about half of the planned expansion. This will lend the force credibility, both politically and militarily, at the same time as it shows that European countries are willing to contribute to resolving a serious conflict in one of their neighbouring areas. It is positive that Europe is taking on more responsibility and that there is more acceptance for this at political level.

It is also important that the force has broad geographical representation. The fact that several Muslim countries are contributing troops gives the operation more credibility.

Efforts are still being made to ensure that the Lebanese authorities establish effective border control. This is essential in order to prevent the illicit flow of arms. To be successful, there must be effective control at sea and on the border with Syria. Although there is still a need for clarification in this matter, this must not be allowed to affect our readiness to participate in the operation now.

For the Government, it has been – and continues to be – important to ensure broad-based support in the Storting for this approach.

Mr President,

The crisis in the Middle East this summer is one of the most serious in several years. It coincides with worrying developments in Iraq and increasing security problems in Afghanistan and Sudan, and with Iran’s serious dispute with large sections of the international community and the UN Security Council about its nuclear programme.

This further underlines the need to address the grave situation in Lebanon in order to prevent greater instability in the region. A broad, inclusive political process is needed to resolve the serious problems this region is facing. It is important that moderate Muslim countries are involved in this process.

The situation in Lebanon is still precarious. But we must focus on the fact that the cessation of hostilities is still holding and that the various elements of the Security Council resolution are gradually being implemented. It is positive that Israel is continuing to withdraw its forces. For the first time in many years, the regular Lebanese army is now operating in the very south of the country. This is important for Lebanon’s territorial integrity.

It is also positive that Hezbollah has abandoned its positions south of the Litani River. The complete disarmament of Hezbollah remains a difficult issue, indeed there can be little doubt that this will be one of the main challenges in the time ahead. Success on this issue is contingent on continued progress in the internal Lebanese political dialogue.

I am pleased that the Israeli air and sea blockade of Lebanon has now been lifted. A reinforced UNIFIL should be able to enforce the weapons embargo against Hezbollah and other armed groups. The lifting of the blockade will make reconstruction easier.

The issue of the Israeli soldiers held captive by Hezbollah will also affect the relations between Israel and Lebanon. Norway has condemned the abductions and endorsed the demand for their immediate release, and has urged the parties to engage in a broader dialogue on the release of prisoners.

Mr President,

It is unclear what direction Lebanon will take following the crisis this summer. But it was crucial that Prime Minister Siniora managed to keep his Government together through the weeks of war. We gave him our strong political support during these weeks, and we have also sought to provide humanitarian aid as early as possible to those affected by the war.

Now the most important task is to help stabilise the situation and contribute to the long-term reconstruction of the country. Here, implementation of Security Council resolution 1559, concerning among other things the disarmament of Hezbollah, is of key importance.

Furthermore, there is a need for broad international commitment to securing and building stability in Lebanon. Reform and strengthening of the security sector, including the Lebanese army, will bolster the position of the moderate forces in the country.

In my view, NATO can also play a role here. Norway will advocate that Lebanon should be invited to participate in NATO’s Mediterranean Dialogue.

It is also vital that countries such as Iran and Syria play a constructive role in efforts to achieve a lasting peace in Lebanon. The UN Secretary-General recently received assurances from both Syria and Iran that they will respect resolution 1701. This is a good start, and it underscores the value of the diplomacy Kofi Annan has been practising. Indeed it shows how important the UN has been both prior to and after the cessation of hostilities. It is essential that Syria and Iran live up to their commitments under the UN resolution.

Iran’s nuclear programme is a complicating factor. The country’s attitude in this issue gives cause for concern. The Board of Governors of the International Atomic Energy Agency – on which Norway is represented – is meeting today to discuss this issue. The IAEA does not exclude the possibility that Iran could have a weapons programme in addition to its civilian programme. At the same time we know that Iran is continuing to enrich uranium in violation of the demands put forward by the UN Security Council. It is important to prevent Iran from building up a nuclear weapons capability. This would further undermine stability in the region.

Norway has emphasised that Iran must comply with the demands put forward by the international community. At the same time we have stressed the need for dialogue with the Iranian authorities in order to find a political solution. We will reiterate this at the meeting of the IAEA Board of Governors today, and will support the negotiations being conducted by the EU on this issue.

Now it is important for the international community to find ways to involve and engage countries like Syria and Iran in a political process.

Mr President,

Since the cessation of hostilities in Lebanon, the humanitarian situation has improved. However, there is still a great need for humanitarian assistance, particularly for returned families that are currently living in temporary shelters. We also know that unexploded cluster munitions and landmines pose a great danger to the civilian population. Norway is making an important contribution to the mine-clearance efforts, for example through Norwegian People’s Aid. This is producing results; several hundred unexploded devices are being rendered harmless every day in Lebanon.

Norway was one of the first countries to respond to the UN emergency relief appeal for Lebanon, and is one of the major contributors. We have also contributed through the UN Central Emergency Response Fund (CERF). Total Norwegian assistance to Lebanon this year amounts to about NOK 200 million, of which NOK 10 million is earmarked for cleaning up oil spills caused by the fighting, including Israel’s bombing of an oil refinery. Norwegian oil spill response equipment was immediately employed in the clean-up, which was greatly appreciated by the Lebanese authorities.

The Stockholm Conference on 31 August showed that there is broad international support for the reconstruction of Lebanon. The participating countries committed themselves to contributing a billion US dollars to the first phase of reconstruction, which was twice as much as the target.

Norway, too, must help to normalise the situation in Lebanon. In order to secure the peace, it is essential to strengthen the Lebanese Government’s authority. It is important that a long-term Norwegian commitment should have a clear nation-building and stabilising dimension. An unstable Lebanon could pose a threat to peace in the entire Middle East.

Mr President,

The grave developments in the Middle Eastern are exacerbated by the unresolved situation in the Palestinian Territory. The suffering inflicted on the civilian population in Gaza by the Israeli military operations is completely unacceptable.

Israel has a right to self-defence. We have condemned the abduction of the Israeli soldier and have endorsed the demand that he should be released, and that the rocket attacks on Israeli towns and cities from Gaza must cease. At the same time, we consider the destruction of Palestinian infrastructure - here as in Lebanon - to be disproportionate to the offence caused to Israel when the Israeli soldier was abducted in June. The Israeli use of force is causing deep wounds to a population that is already sorely tried. This in turn will pose a serious threat to Israel’s security.

The Israeli-Palestinian conflict must be brought back to the negotiating table. It is positive that Prime Minister Olmert and President Abbas now seem to have agreed to meet for political talks.

We have supported President Abbas in his efforts to build a political base that is in keeping with the demands put forward by the international community. It will be important both for the situation in the Palestinian Territory and for the region as a whole that we are able to resume normal international cooperation with the Palestinian Authority.

Norway is in a good position to contribute, both for historical reasons and because of our contacts with all parties to the conflict, and because we are chairing the international donor group, the AHLC. Moreover, Norway has been asked by the Palestinian President to help to:

• resolve the deadlocked situation in Gaza;
• ensure that a new Palestinian Government has a political platform that paves the way for renewed cooperation with the international community;
• ensure that normal economic and political contacts between the Palestinians and the international community are restored; and
• ensure that political contact between the parties is established in order to find long-term political solutions.

We will seek to respond to this request through our diplomatic and political efforts. At the same time, we will maintain close, regular contact with Israel and other parties and actors that play an important role in developments in the region.

We have also intensified our humanitarian commitment. The Government took the initiative for a meeting of the international donor group in Geneva on 14 July. Together with Sweden and Spain, we followed this up with a meeting in Stockholm on 1 September. More than USD 200 million was mobilised for humanitarian efforts in the Palestinian Territory.

The support Norway provides to the Palestinian people through the UN and humanitarian NGOs accounts for about two thirds of our total support to the Middle East. In response to the growing humanitarian crisis in Gaza, Norway made an extraordinary allocation of NOK 150 million in July. This means that our total support for this purpose in 2006 is greater than in 2005.

This year Norway will provide some NOK 300 million to the Palestinian Territory, which makes it the one of the largest recipients of Norwegian humanitarian aid. This is in addition to the NOK 350 million we are providing in development assistance for 2006.

Mr President,

The conflicts in the Middle East have long historical roots that are intertwined with other conflicts and affect peace and stability in the whole world. The Israeli-Palestinian conflict is at the centre of this and must be resolved so that the occupation can be brought to an end, so that the Palestinians can have their own state, so that the people of Israel can live in safety, and so that both states can live within internationally recognised borders.

Israel claims that the purpose of the operations in Gaza and Lebanon is to safeguard its own security. But the unilateral use of force and continued occupation will never give Israel lasting security. The response prompted by Hezbollah’s attacks and Israel’s military response in Gaza are disproportionate to the events that caused these reactions. It will take generations to build up everything that has been destroyed in Lebanon. And this applies not only to the material damage, but also to the psychological harm that has been done.

Hezbollah, which claims to be fighting for Lebanon’s independence, is also responsible for attacks that are unacceptable and that endanger the lives of innocent Israelis and Lebanese.

I am convinced that the way this policy is being pursued will only create greater distrust, increase the polarisation and consolidate the hate between neighbours that have to learn to live together. Apart from the use of force in self-defence, a military solution to the historical problems faced by the Middle East is not tenable. The use of military force only fosters more violence, insecurity and extremism. This is worth bearing in mind today – 11 September. The moderate forces become marginalised. In the long term this will undermine any attempt to build democracy in the region.

New diplomatic peace initiatives must be launched as an alternative to military logic. Apart from providing guidelines for a solution to the Lebanon crisis, resolution 1701 should lead to diplomatic initiatives to revitalise regional negotiations and a focus on finding solutions using both what is left of established mechanisms and new ones.

This has been done before. The Gulf War led to the Madrid Peace Conference in 1991 and the subsequent Oslo Accords between the PLO and Israel in 1993, and a series of agreements in the course of the 1990s.

It is positive that the UN has now taken the lead through resolution 1701. In fact this summer’s events demonstrate the vital role played by the UN. There was the time for any one country to go it alone. No single country outside the reason was able to resolve the situation. It was the UN, with its mandate and legitimacy, that laid the groundwork for the cessation of hostilities. And it is the UN and the UN Secretary-General that have been engaged in shuttle diplomacy.

The implementation of the resolution could help to create momentum in the efforts to resolve other outstanding issues as well. We need a long-term political solution that includes all the parties in the Middle East. The current piecemeal and fragmented strategies will not break the spiral of violence.

If the international community is to retain its credibility, a regional agenda must be set and a common security initiative launched. We must have a diplomatic process that involves rights and obligations. The development of political systems that give scope for moderation and democracy is the key to securing lasting peace. Norway will participate actively in this process.