Foreign policy
Sub-Saharan Africa
The Sub-Saharan African Services Directorate (SAS) is responsible for monitoring bilateral relations and the political situation in the countries of Sub-Saharan Africa.
Relations with Africa are one of the essential pillars of Portuguese foreign policy, both bilaterally and multilaterally. They formed one of the priorities of Portugal’s Presidency of the Council of the European Union in 2007.
Thanks to efforts by partners in Africa and Europe, the Second EU/Africa Summit was held in Lisbon in December 2007. This summit marked a change in the paradigm of relations between the two continents, ushering in a partnership of equals. The long-term framework for relations between the EU and Africa is set out in an EU-Africa Joint Strategy, which was endorsed by the summit and is implemented through a three-year action plan which identifies the principal common political aims for the short and medium term.
Bilaterally, Portugal’s relations with the Portuguese-speaking countries (Angola, Mozambique, Guinea-Bissau, São Tomé and Principe and Cape Verde) have a major role. Recent years have seen a diversification of Portugal’s action, through strengthened relations with various countries of Africa, the Maghreb and Southern Africa, and closer dialogue and collaboration with the African Union and sub-regional African organisations such as ECOWAS, the Economic Community of West African States.
Americas
The Americas Services Directorate (DSA) is responsible for overseeing Portugal’s foreign policy vis-à-vis North America, Latin America and the Caribbean.
Portugal has long-standing historical, cultural and emotional ties with Latin America, and particularly with Brazil, and for this reason the region has a natural importance in Portugal’s foreign policy.
Our privileged relationship with Brazil is currently going through a highly dynamic period. In political affairs, the Ninth summit of the two nations was held in Salvador da Bahia in October 2008, and high-level visits take place regularly between the two. In addition, a political consultation mechanism has recently been established, and the provisions for technical cooperation set out in the Treaty of Friendship, Cooperation and Consultation signed in 2000. In economic terms, Portugal’s direct investment in Brazil has grown substantially, and there has also been steady growth in trade between the two nations. Major achievements in cultural matters are the joint promotion of the Portuguese language and close cooperation in marking various anniversaries.
Portugal is also committed to promoting deepened relations with the other countries of Latin America, both bilaterally and within the scope of the EU and of the Ibero-American Conference. In this context, Portugal is watching with great interest the economic and political reforms which have taken place in various Latin American countries, and supports the process of regional integration under way.
Within the EU, Portugal has also fostered and enhanced relations with Latin America, advocating the mutual benefits of deeper relations between the two regions. The relationship had become closer with the accession of Portugal and Spain to the European Union, and in 1990 with institutionalised dialogue began between the EU and the Rio Group. The first EU/Latin America and Caribbean summit was held in Rio de Janeiro in 1999, and this established a bi-regional strategic partnership which has been consolidated in the subsequent summits (the latest, in 2008, in Lima). Also worth noting is that during the most recent Portuguese Presidency of the EU, in 2007, a strategic partnership was launched between the EU and Brazil.
The Ibero-American summit has seen significant developments since its institutions were strengthened with the establishment of the Ibero-American Secretariat General, and the summit’s consolidation as a forum for dialogue on major questions of the day. This has once again confirmed the existence of shared points of view in many areas which bring us closer to Latin America. In 2009 Portugal will assume the pro tempore Presidency of the Ibero-American Conference, and it has already been announced by the Prime Minister that the Summit will be held on 30 November 2009 with as its theme “Innovation and Knowledge”.
Relations between Portugal and the USA are longstanding and solid, founded on mutual respect and based on permanent strategic interests and shared fundamental values. Portugal and the USA are founder members of the North Atlantic Treaty Organisation, and for many years have joined forces for the ongoing promotion of international stability and peace, and for the shared security of the two countries.
The Cooperation and Defence Agreement between Portugal and the USA, signed in 1995, enshrines deepened bilateral dialogue and cooperation, and establishes the terms for the USA’s use and maintenance of Lages airfield. Bilateral cooperation covers a broad range of areas of common interest, and is extended year by year, with particular reference to defence and scientific cooperation.
A very large community of Portuguese and people of Portuguese descent lives and works in the USA, and this question has the leading role in the agenda for diplomatic contacts between the two countries.
Portugal and the USA maintain an ongoing political and diplomatic dialogue on the most sensitive international issues. Solid transatlantic relations are essential to ensure and promote global stability, security and prosperity. Portugal contributes to the renewal and deepening of that dialogue at various levels, naturally including within the EU.
Non-EU Europe
The Directorate for Non-EU European States Services (DSE) coordinates and implements Portugal’s foreign policy arising from bilateral relations with the countries of eastern Europe which are not members of the EU: Russia, Ukraine, Belarus, Moldova, the countries of the Southern Caucasus and those of central Asia. It also follows the activities of the respective regional organisations: the Commonwealth of Independent States, the Collective Security Treaty Organisation and the Shanghai Cooperation Organisation.
The Directorate is also responsible for relations with the countries of the Western Balkans: Serbia, Montenegro, Albania, Bosnia and Herzegovina and, since it was recognised, Kosovo. Another priority is bilateral political relations with the countries of the European Economic Area. DSE is also responsible for policy vis-à-vis San Marino, the Order of Malta, Monaco, and Norway. Relations with the Holy See are also the responsibility of DSE, notably the Joint Commission (on revision of the Concordat) and the Joint Bilateral Commission.
Of particular importance in DSE’s work is the deepening of political and diplomatic contacts with Russia, monitoring the situation in Georgia and Western Balkans issues.
DSE is also responsible for defining Portugal’s position in European bodies as regards the EU’s foreign policy vis-à-vis these countries and groups of countries.
Middle East and Maghreb
The Middle East & Maghreb Services Directorate (MOM) is responsible for monitoring the political situation and for Portugal’s bilateral relations with the countries of the Maghreb, Mashreq, Persian Gulf and Arabian Peninsula, for the political aspects of Portugal’s participation in the Mediterranean dialogues and in the corresponding European policies.
MOM accordingly monitors the foreign and domestic policies of, and Portugal’s relations with Morocco, Mauritania, Algeria, Tunisia, Libya, Egypt, Israel, the Palestine Authority, Lebanon, Syria, Jordan, Saudi Arabia, Yemen, Oman, the United Arab Emirates, Qatar, Bahrain, Kuwait, Iraq and Iran.
Attention should be drawn to the privileged partnerships Portugal has developed with three Maghreb countries: Morocco, Algeria and Tunisia. The importance of these relations is given substance by the summit meetings which are held regularly with each of these three countries. These meetings have in turn led to an enhanced political dialogue and an exponential increase in bilateral relations at all levels.
MOM’s responsibilities also particularly include monitoring the Middle East Peace Process (MEPP).
As to the Mediterranean dialogues, MOM coordinates and monitors progress and Portugal’s participation in the 5+5 Dialogue (Western Mediterranean Dialogue). The Mediterranean Forum, and the political dialogue aspects of the Union for the Mediterranean. It also covers relations with regional organisations and international organisations which are of importance in the region: Arab League, Maghreb Arab Union, Gulf Cooperation Council and Organisation of the Islamic Conference.
Asia and Oceania
The principal objective of Portugal’s foreign policy in Asia and Oceania is to contribute to strengthening the bilateral relations between Portugal and the more than 30 countries which make up these regions. These questions are covered by the Asia and Oceania Services Directorate, SAO.
Portugal’s particular aim is to seek good political relations and closer contacts, with a view to establishing conditions allowing us to benefit from our presence and influence in those countries.
Within the EU, Portugal has sought to contribute to strengthening Europe’s interaction and mutual understanding with these two regions, through deepened political, economic and cultural cooperation and dialogue, in the framework of relations with ASEAN, and in the EU’s participation in regional organisations such as ASEM (Asia-Europe Meeting), SAARC (South Asia Association for Regional Cooperation) and the Shanghai Cooperation Organisation.
Portugal has likewise sought to enhance and deepen the strategic cooperation partnerships it maintains with countries such as China and India. This is done in particular through contacts and visits at the highest level, and the signing of bilateral agreements on areas of the greatest interest for our country.
For Timor-Leste (East Timor), Portugal has made substantial contributions to promoting and consolidating the country’s sustainable development, and its integration and interaction with the international community (notably the UN and EU), in particular through steady support to Timorese democratic institutions.
Finally, Portuguese foreign policy involves closely monitoring the situation in certain countries such as North Korea, Pakistan, Afghanistan and Burma/Myanmar, with a view to peaceful resolution of conflicts and respect for Human Rights and the Rule of Law.
Multilateralism
The Directorate for International Political Organisations Services (SPM) is responsible for Portugal’s participation in various multilateral political for a, including the United Nations, the Organisation for Security and Cooperation in Europe (OSCE) and the Council of Europe. Portugal’s activity in these areas is founded on developing and strengthening effective multilateralism, on defending the primacy of the United Nations Organisation in international relations, and on promoting and protecting Human Rights.
Of particular importance here are our pursuit of national interests in areas as wide-ranging as human rights, humanitarian questions, the promotion of democracy, culture and education, the Alliance of Civilisations, security, and the fight against terrorism, drug trafficking and organised crime.
In addition to Portugal’s representation in the various committees of the General Assembly and other specialised bodies and agencies, important work within the United Nations includes Portugal’s participation in peace-keeping operations, our country’s candidacy for a non-permanent seat on the Security Council for the years 2011-2012, and the promotion of recruitment of Portuguese nationals as officials in the various international organisations.
On taking over the Presidency of the Community of Democracies for the period November 2007 to July 2009, Portugal selected “Democratic governance” as the main theme of its mandate. A seminar is planned for 2009 in Lisbon, and a ministerial meeting in July.
Community of Portuguese-Speaking Countries (CPLP)
From July 2008 to July 2010 Portugal will be chairing the Community of Portuguese-Speaking Countries. During this mandate, Portugal is committed to achieving the priorities set by the Lisbon summit of July 2008. These include in particular to promote and disseminate the Portuguese language, the world’s fifth most-spoken language, which should in turn lead to Portuguese increasingly becoming an official or working language in international organisations.
Also important is diplomatic concertation on the leading issues of the international agenda, the continuation of institutional reform – including the International Portuguese Language Institute (and in particular actions relating to spelling reform), setting up the CPLP parliamentary assembly and boosting the regional and entrepreneurial dimensions of the CPLP – together with supporting international promotion of the CPLP and strengthening strategic partnerships with international organisations.
The aim is also to identify further potential areas for CPLP cooperation, and to propose initiatives which will strengthen the individual’s sense of belonging to a community: legal instruments, Portuguese-speaking citizenship, cultural and educational work and events marking joint celebrations.
Security and Defence
These areas are the responsibility of DSD, the Directorate for Security and Defence.
North Atlantic Treaty Organisation (NATO)
As a founder member of the North Atlantic Treaty Organisation (NATO), Portugal has continually shown its commitment to the Alliance and the defence of the Euro-area and its values.
During the period of the cold war, the importance of Portugal to the Atlantic Alliance was directly related to the country’s significant geostrategic position, which resulted in the setting-up in 1972 of a NATO command unit in Oeiras, now the Joint Command Lisbon.
The end of the cold war and the strategic repositioning of NATO opened the Alliance’s door to regions beyond the Euro-Atlantic area, and also resulted in the creation of partnerships in the Middle East, Africa and Asia. In this context, Portugal’s geostrategic position as a European country with an Atlantic outlook can and must be developed, as must its close relations with Africa and the Mediterranean.
Portugal’s contribution to NATO has increased significantly over the last 20 years, and Portuguese forces have participated in numerous Alliance missions. Currently, Portugal is participating in NATO operations in Kosovo (KFOR), Afghanistan (ISAF), Iraq (NTM-I) and the Mediterranean (Operation Active Endeavour).
Because of its vital role in Portugal’s security and defence, NATO will remain a priority in our foreign policy. Accordingly, Portugal intends to maintain an active role in the Alliance and its many components.
Following the NATO Summit to be held in Strasbourg and Kehl in April 2009 commemorating the Alliance’s sixtieth anniversary, Portugal will host the next NATO summit, to be held during the second half of 2010 or the first half of 2011.
European Security and Defence Policy (ESDP)
ESDP, the European Security and Defence Policy, is currently one of the most dynamic areas of the process of European integration. It has Portugal’s strong support.
Seeing it as a benefit for the EU to have both civilian and military resources for crisis management, and aware that the challenges which arise at international level require ever-greater flexibility and variety, Portuguese diplomacy has strongly advocated strengthening this dual component of ESDP.
Portugal has contributed actively to ESDP missions, and currently has personnel in the missions to the Democratic Republic of Congo (the EUPOL police mission is currently headed by a Portuguese), Guinea-Bissau, Chad/Central African Republic, Bosnia and Herzegovina, Kosovo, Georgia, the Palestine Territories, and Moldova/Ukraine. Africa and Europe have been the particular targets of Portugal’s attention, and this indeed corresponds to the EU’s own strategic priorities.
Strengthening the ESDP was on the agenda of Portugal’s presidencies of the EU in both 2000 and 2007. In 2000, the European Council of Santa Maria da Feira marked a fundamental step in the development of the civilian dimension of ESDP. And in 2007 the Lisbon Treaty introduced important and innovative elements in security and defence, including in particular the concept of Permanent Cooperation Structures, whose aim is to strengthen the EU’s military capacities.
Capacity building for conflict prevention, management and resolution in Africa is another area to which Portugal is committed. This has acquired greater importance following the peace and security provisions of the EU-Africa Joint Strategy, which was approved during the latest Portuguese presidency of the EU.
Portugal also participates in various multilateral initiatives with implications for ESDP, in particular the proposed Euroforces (Eurofor and Euromarfor) and Eurogendarmerie. The latter will be presided by Portugal in 2008.
Finally, it should be stressed that Portugal sees ESDP as complementary to the strengthening of transatlantic relations, and regards the development of efficient EU-NATO cooperation as being of the greatest importance.
Disarmament and Non-Proliferation
Portugal recognises the growing importance of these themes and participates in all international agreements, systems and organisations relevant to the area. These include the Chemical Weapons Convention, Biological and Toxin Weapons Convention, Non-Proliferation Treaty, Nuclear Suppliers Group, Australia Group, Missile Technology Control Regime, the Hague Code of Conduct on Ballistic Missile Proliferation, and the Zangger Committee. Furthermore, Portugal has signed the Additional Protocol to the International Atomic Energy Safeguards Agreement.
Portugal also accords the highest importance to starting negotiations on the Fissile Material Cut-Off Treaty (FMCT) and the coming into force of the Comprehensive Test Ban Treaty (CTBT), calling in multilateral fora for the signature of the first and the ratification of the second. Portugal has also advocated universal ratification of the existing legal instruments on chemical, biological and toxin disarmament, i.e. the Biological and Toxin Weapons Convention and the Chemical Weapons Convention.
Similarly, our country has advocated strengthening controls on the export of conventional and light weapons. In this area Portugal participates in the UN Programme of Action to prevent, combat and eradicate the illicit trade in small arms and light weapons, and strict compliance with the provisions of the EU code of conduct on Conventional weapons exports; Portugal is of the view that this should be legally binding in nature.
In addition, Portugal has ratified the Ottawa Convention on antipersonnel mines, the Convention on prohibitions or restrictions on the use of certain conventional weapons which may be deemed to be excessively injurious or to have indiscriminate effects (and all its protocols), and the Convention on Cluster Munitions. Portugal gives the highest importance to the negotiation of an Arms trade treaty.
Finally, Portugal supports the process of conventional arms reduction in Europe, which has contributed decisively to peace and stability on our continent. Portugal is a State Party to the CFE Treaty and the Open Skies Treaty, has signed the OSCE Document on confidence-building measures in security, and participates actively in implementing them.
Common Foreign and Security Policy (CFSP)
Portugal has been fully committed in its participation in formulating the Common Foreign and Security Policy (CFSP), with a view to strengthening its role in the construction of Europe. This exercise is coordinated by the Directorate for Common Foreign and Security Policy Services (PESC), which has an across-the-board view of the activities of all the Ministry’s other departments, and generally monitors national positions and actions in the many areas of foreign affairs, ensuring the necessary coherence and convergence.
PESC is also responsible for coordinating and preparing Portugal’s participation in meetings of the European Council, the General Affairs and External Relations Council (GAERC), and the half-yearly “Gymnich” informal meetings of Foreign Ministers in the areas for which the DGPE is competent.
PESC is also responsible for coordinating or defining Portugal’s approach at meetings of the Policy and Security Committee and of the CFSP working groups, thus ensuring a coherent and integrated vision for Portugal’s position and participation in the various consultation and decision-making fora of the Common Foreign and Security Policy.