Address by Foreign Minister Urmas Paet to the Riigikogu "Overview of Estonia's Foreign Policy"

Honourable Chairman,
Respected Members of the Riigikogu,
Dear guests,

In compliance with the Foreign Relations Act that became effective at the beginning of the new year, a foreign policy presentation has to now be made to the Riigikogu once a year, and therefore, it is necessary to concentrate upon the most essential matters.

At present, Estonia has, in the worldwide political arena, greater access to and voice in international affairs than ever before. But these rights have been accompanied by a sizeable number of commitments that we did not have previously. Therefore, today’s presentation deals with the world’s foreign and security policy focal points, Estonia’s positions, and our contributions. Taking into consideration the limited time allotted to this address, I will not touch upon the European Union’s Neighbourhood Policy nor upon the possible future enlargement of the European Union and NATO, since the last two times that I addressed you, these were the very subjects that I dealt with. Our positions concerning these questions are consistent. And so now – our main themes of this year’s foreign policy. 

Our contributions to the ensuring of peace and security in the world are based upon democratic values and the furthering of our interests. Looking at the contemporary world, we observe that global matters are becoming ever more prominent: energy security, protecting the environment, climate change, the proliferation of weapons of mass destruction, terrorism, illegal migration, trafficking of people and drugs. As Horatio noted even before the birth of Christ – “your own property is concerned when your neighbour’s house is on fire”. This is also true today, except that the world has become smaller for us, and our neighbours’ neighbours are now also our neighbours.


Dear audience,

Some of the most urgent security problems are connected with the proliferation of weapons of mass destruction. If Iran, the president of which has publicly questioned whether the Holocaust had occurred, or another state’s right to exist, should develop the capability to produce a nuclear weapon, then the world’s security will become noticeably more unpredictable. The international community does not believe in the peaceful nature of Iran’s nuclear program, but Iran is consistently ignoring the demands of the international community. In the course of the last months, Iran has been testing newer rocket technology, and the range of these rockets is longer than expected.

We are of the opinion that the UN must have an active role in the solving of the Iranian nuclear problem. The UN Security Council’s December decision about the first sanctions to be implemented against Iran expressed the international consensus concerning the preventing of the proliferation of nuclear weapons. And we cannot leave things half done. The European Union’s diplomatic channels are open for communication with Iran. In this situation, it is also necessary to consider the opportunities offered by economic diplomacy, since, after all, the European Union is one of Iran’s most important economic partners.

Let us look at the Iran policy in a broader context: Iran’s stubborn endeavours have influenced some other states in the region to consider the development of nuclear technology. It is possible to encounter in the Middle East, in Latin America, as well as in the Far East attitudes that are conducive to the full development of an independent nuclear power cycle. In response to Iran’s activities, Jordan, Egypt, and the Persian Gulf Cooperation Council states have announced that they are considering the possibility of ensuring for themselves capabilities that would equal that of their neighbours. Let us hope that by diplomatic means, for which the United Kingdom, France, and Germany have set a good example with their activities, it will prove to be realistically possible to find a solution that will ensure for Iran, if it so wishes, the opportunity for developing peaceful nuclear energy, but will, at the same time, give a controllable guarantee that Iran will not possess nuclear weapons. The absolute precondition for finding this solution is the unity of the international community as well as Iran’s cooperation with the International Atomic Energy Agency.

The events in North Korea have also been worrisome. We have condemned both the testing of rockets in that country, as well as last year’s nuclear test. The development of nuclear weapons by North Korea could, likewise, bring about a chain reaction in other countries of that region. A preliminary agreement has been achieved in the six party negotiations – we hope to soon see a final solution for the halting of North Korea’s nuclear program.


Honoured Members of the Riigikogu,

Estonia is directly interested in the fate of Afghanistan. It is in our and our allies’ interests that Afghanistan be a peaceful and stable nation. The government of that country has set as its objective the building up of a well-functioning and peaceful statehood. But poverty, the weakness of state structures, and the opposition of extremist groups cannot be overcome without international assistance. Afghanistan’s welfare is important from both a regional point of view, as well as the standpoint of combating international narcotics trafficking and terrorism. And it is also the reason behind Estonia’s military mission and development cooperation. We fight against the threats where they originate from, since, the fact is, that a large segment of the narcotics used in Northern Europe come specifically from Afghanistan. Combating the terrorist threat there reduces the terrorists’ strength to carry out activities in Europe, as well as against our allies elsewhere in the world. Also, no one should remain indifferent towards the Taleban’s outrages against its own people and cultural heritage.

Last year, our contribution to the NATO mission in Afghanistan increased manifold – to 130 troops. Our military personnel ensure the security needed for reconstruction efforts in Southern Afghanistan regions, in which the Taleban’s strength is quite significant and the government’s control rather weak. This coming spring could prove to become pivotal for Afghanistan’s government and allied forces in their fight against the Taleban. It is essential to ensure a greater control over Afghanistan’s borders, and to weaken the structure of the Taleban’s leadership. 

But security and welfare cannot be ensured with just military might alone. From September 2006 on, an Estonian diplomat, who also represents Estonia at the Afghanistan government, has been participating in the international Provincial Reconstruction Team in Lashkar Gah, the capital of Helmand province. The presence of a civilian representative provides us with the opportunity to obtain irreplaceable expert knowledge and political contacts in Southern Afghanistan. We have launched our first aid project there – we are supplying, in cooperation with the Estonian Red Cross, the children’s ward of the Helmand provincial central hospital with medical equipment. For this year’s aid projects in that country, we have earmarked a total of 1.5 million EEK.

For the more efficient utilisation of military and civilian contributions to the reconstruction of an Afghanistan, ravaged by the Soviet occupation, the civil war, and the Taleban regime, requires consistent international cooperation, especially between the European Union and NATO. The European Union is planning to send a police mission to Afghanistan to support the local police and justice system. And Estonia intends to participate in this mission. And we must also keep in mind that the returning home of millions of Afghanistan’s war refugees from Pakistan will also require large amounts of international aid.

And now, let us take a look at events in Iraq. The security situation there is one of the basic problems facing the Middle East as well as the whole international community. In this conflict between extremists, who often have a religious tinge, civilians, the ordinary people, are again the victims. The reasons for Iraq’s tensions are centuries old, and the untangling of these internal conflicts is not an easy task. Iraqi society consists, after all, of various ethnic and religious groups, and the battle there is being waged for dominance over a greater region, not just Iraq. It must be kept in mind that the situation is made even more complicated by the negative influence exerted by neighbouring states, especially Iran and Syria, and that a solution for this crisis must be searched for within the context of the whole region. Otherwise, the nation may very well collapse, and the political as well as religious conflict could spread beyond Iraq’s frontiers. Therefore, it is essential that Iraq regains its posture as a unified nation, that the interests of the various regions and religious communities be taken into consideration, and that the oil revenues be shared equitably. 

The solution for Iraq’s conflict lies in political changes and agreements, which must encompass all ethnic and religious groups. And this must be promoted by improvements in the country’s security situation. Estonian military personnel are helping to improve the situation in Iraq on the basis of our Riigikogu’s parliamentary mandate, which, in turn, is based upon the UN Security Council’s resolution as well as the request made by the Iraqi government. The desire of the Iraqi government to progress is great, and it would be irresponsible to not contribute to Iraq’s development during its transition period. 

As the sending of additional contingents to the Baghdad region confirms, the US administration definitely wishes to take a determining step to improve the security situation. Here, the time factor is extremely essential – the constant lack of a sense of security and stability is depressing the people of Iraq, and is endangering the future of their nation. The ensuring of the country’s security by international forces is vitally important for the reinforcing of the political process, but this can be done only in cooperation with Iraq’s own forces. When I visited Iraq in November, I was reassured that their military is developing in a positive direction, but the development of the police is giving cause for concern.

The influence of the international coalition is extraordinarily meaningful – it helps to both stabilise the situation, as well as to prevent the conflict from escalating. The goal for this year is to hand as many Iraqi regions, as possible, over to the responsibility of the central government. In concluding this theme of my address, I would like to note that we are dealing with a large nation that has a highly educated population as well as abundant oil reserves – peace would bring Iraqis great gain, even in a matter of just a few years.


Distinguished Riigikogu,

The situation in the Middle East is decisively and primarily influenced by the solving of the Israeli-Palestinian conflict. After the latest events in the Palestinian territory, as well as the battles between Israel and Hezbollah in Lebanon, it has, so far, despite various efforts, not been possible to get the peace process there really moving. At the same time, it is clear to all parties involved that every step taken towards the establishment of an independent Palestinian state reduces tensions in the region and the threat of terrorism, if these steps are based upon the observance of the three principles presented to Palestine by the quartet consisting of the UN, the US, the European Union, and Russia. These three principles are: the recognition of the state of Israel and all concluded treaties, as well as the rejection of terrorism.

This year began with clashes between Palestinians themselves. A positive development, at the beginning of February, was Saudi Arabia’s initiative to bring the rival Hamas and Fatah leaders to the negotiating table in the Islamic world’s holiest place, Mecca. The agreement achieved there has altered the situation and has created preconditions for the establishment of a unified government as well as the prevention of a Palestinian civil war. The opportunities for further Israeli-Palestinian negotiations have improved, and the European Union would, as before, like to contribute to this process. 

The situation in Lebanon is also tense. Demonstrations led by Hezbollah have been directed against the prime minister, Siniora, and have destabilised the situation in the country. The European Union supports the activities of Siniora’s government in reconstructing the nation, as well as disarming the various factions. Meanwhile, the question remains, as to what tactic to use in dealing with Syria, which, together with Iran, strongly influences developments in Lebanon. Has the policy of refraining from sanctions justified itself? Is it possible that the moderate representatives of religious groups might search for solutions through negotiations, and if so, how would they go about it? These are questions that are also confronting the European Union as it functions in the region. 

Estonia contributes to the furthering of the Middle East peace process primarily through the European Union’s Common Foreign and Security Policy, and we favour a stronger role for the European Union in this process. At the same time, we also deal with the region’s nations directly. Estonia has participated in Palestinian elections as an observer, we have supported the EU Border Assistance Mission at the Rafah crossing point, and the EU Police Mission in the Palestinian Territories. Last year, we earmarked over 800,000 EEK for aiding people who had become homeless in Lebanon’s armed conflict as well as for mine clearing operations. And our military officers are continuing to participate in the UN peacekeeping operation in Lebanon. The Riigikogu is presently debating the sending of a naval officer to the UN UNIFIL mission. This year, our diplomats are beginning, for the first time, to serve full time in Israel and Egypt. Information obtained straight from the source as well as local contacts will, definitely, give Estonia better grounds for dealing with Middle East matters.


Respected Members of the Riigikogu,

I will now continue with essential foreign and security policy target locations, where our activities have, for some time already, been fruitful. Our activity in the Western Balkans means, in substance, the enlargement of the area of stability and prosperity in Europe by supporting the development of this region. 

One of the most urgent matters is, of course, the future of Kosovo. In this context, a decisive period is just starting. Estonia greatly appreciates and completely supports UN Special Representative Martti Ahtisaari’s activities, and agrees with his recent proposals concerning the determining of Kosovo’s status. We find that this is the only option that exists for moving ahead.

In the course of future events, the unity of the European Union and NATO is of the utmost significance. And this includes the principle that Kosovo’s development is not a precedent for the solving of any so-called frozen conflict in Europe. The solving of a question concerning status must, naturally, be in compliance with the European Union membership prospects of all Western Balkan states. It is probably superfluous to add that in connection with this issue, a very serious responsibility rests upon the shoulders of the European Union.

Hopefully, Serbia will, in the very near future, get a pro-European government, to which, the European Union will have to offer obvious steps for increasing cooperation. For instance, the rekindling of Stabilisation and Association Agreement negotiations, and the concluding of a visa facilitation treaty. Estonia supports Serbia on its path towards EU integration, and we have intensified political contacts with this country. We know how much influence the prospect of becoming a member of the European Union can have, even if it is a long-range prospect. Meanwhile, we expect Serbia to fulfil its assumed commitments concerning the implementation of the principles of the rule of law, as well as to cooperate with the International Criminal Tribunal for the Former Yugoslavia in connection with the apprehension of war criminals.


Respected Riigikogu,

Experience and knowledge give us a good opportunity and potential for playing a more essential foreign policy role in Europe. For many partners, we ourselves are an inspiring example of how to change society for the better. We also have useful knowledge concerning, and trustworthy relations with, the European Union’s Eastern European neighbours, and we can, in turn, make use of this in the European Union.

We are enthusiastic supporters of Ukraine, Moldova, and Georgia, and we have numerous cooperation projects with them. When talking about Ukraine, then I must mention the fact that we regard as crucial the comprehensive assistance being given by Ukraine to the activities of the European Union’s border guard mission on the Ukraine-Moldova border. This is Ukraine’s European orientation litmus test. But, as far as the Transnistria problem in Moldova is concerned, we favour greater European Union activity in solving this conflict, making, among other things, efforts to replace the present peace-keeping format. Recently, we assigned our counsellor to the European Union special representative’s mission in Georgia, which is among our main development cooperation partners.

The frozen conflicts that were created after the end of the Cold War have remained, as other hotbeds of conflict have, one after the other, been eliminated, Europe’s serious security problems, for which solutions have not been found. It is essential to note that each frozen conflict connected with Moldova, Georgia, Armenia, or Azerbaijan is unique. They cannot be dealt with in the same manner. The European Union’s role in the solving of these conflicts could consistently increase, meaning that this area of activity requires greater attention and resources.

And now, one more of Europe’s concerns – namely, Africa’s humanitarian catastrophes and the migration connected with them. This problem has, during the last few years, become especially acute in connection with the armed conflicts in Sudan and Somalia, and the arrival of refugees, from the neighbouring continent, on the European Union’s southern border. It is estimated that, already, as many as a million people a year try to come to Europe illegally via North Africa. Estonia has remained fairly distant from all this, but, as a member of the European Union, we deal with this problem as one of our common concerns. We support the European migration policy, which is based upon the solidarity of the member states and upon shared responsibilities. We help to relieve poverty in Africa, within the limits of our resources. An Estonian representative also belongs to the recently established UN Special Mission to Darfur, who helps to solve human rights violations. The former secretary general of the UN, Kofi Annan, has commented about one of the world’s most extensive humanitarian catastrophe, that, to save Darfur, the world has to race against time. But there still are opportunities for winning the race. Estonia has also aided Southern Sudan refugees – the Foreign Ministry has assisted the refugees there and the internally displaced persons with over a million EEK. In addition, the European Union can help Africa with the further liberalisation of its trade policy, and the elimination of trade barriers.

Our interest in Asia is also increasing, as its role in world politics has clearly grown. We have, till now, had longer-range political and economic relations with China and Japan, but our aim is to develop relations with all the other states of the region, like India. Enterprise Estonia has begun making preparations for opening a representation in Shanghai, which is endeavouring to become the financial centre of the region. And presently, we can start with the construction of our own embassy building in Beijing. For China, we are an attractive country from the point of view of information technology, energy, and environmental protection, but also as a potential maritime and rail transport logistics centre. It is in both Estonia’s and the European Union’s interests to develop more intensive relations and contacts with China in other spheres as well, so as to find solutions for world-wide problems.


Distinguished Riigikogu,

I will now come geographically closer to Estonia, and deal with matters concerning Russia. Russia’s economy, based upon oil and gas exports, is booming, while the political system there has, during the last few years, been stable. But Russia is distancing itself from democracy. This primarily touches upon citizens’ rights and freedoms, as well as the freedom of the media. At the same time, the state’s control over the economy is increasing. According to a recent poll, 94% of Russia’s residents think that they cannot, in any way, influence what is happening in their country. And that is, for us, cause for concern.

We wish that our neighbour would be democratic and predictable. We would like Russia to share with us one of the basic understandings of international relations – that one nation’s progress does not have to be gained at another’s expense. Russia is in no way threatened by its neighbours’ freely made decisions to adopt European values. It is cause for contemplation, that according to a recent sociological survey, almost half of Russia’s residents think that the European Union poses a threat to Russia. We hope to share with Russia the common European conviction that human rights and the freedom of speech are some of the best guarantees of the people’s security and welfare.

The recent security conference in Munich showed that we are still far from a partnership based upon common values. Just as the US defence minister, Robert Gates noted recently the uncertainty of Russia’s path. The foreign policy tangent based upon narrow self-interests, that Russia has adopted, increases, for other nations, the potential for conflict. But what is even more essential – such narrow self-interests do not lend themselves to the combining of resources for solving the problems confronting the world. Be they climate change or the alleviating of poverty, terrorism, the proliferation of weapons of mass destruction, frozen conflicts, or the strengthening of international organisations and the role of international law. A world based upon pure self-interests would, to a great extent, mean the dominance of power politics, the ignoring of the interests of smaller states, and the increase of anarchy in international relations.

In the European Union’s relations with Russia, a new significant framework partnership and cooperation agreement is on the agenda, for which, negotiations will hopefully commence soon. For us, cooperation with Russia is important in all spheres. Be it economy or energy, as well as human rights or environmental questions. In the dialogue between the European Union and Russia concerning human rights Estonia attaches special significance to the matter of Finno-Ugric peoples, as well as the situation in Chechnya.

So, what is the state of our present bilateral relations? At the higher political level, especially considering that we are neighbours, there is still plenty of room for development. Our relations are also influenced by the approaching Duma and presidential elections in Russia.

The insubstantial accusations that have been levelled against Estonia during the last few weeks in Russia have obviously been brought about by the need to draw attention away from Russia’s domestic worries. This is confirmed by the fact that, for instance, in Southern Russia, in Stavropol, a 30 metre high monument to the Great Patriotic War was destroyed. So much for Russia’s concern about monuments. I would just like to refer to one more fact – just as every year, the Estonian Consulate General in St. Petersburg participated, this year also this January in the anniversary celebration of the breaking of the fascist blockade. In this blockade, thousands of Estonians also died and suffered.

Good-neighbourly relations require good will from both parties. Estonia still has this will. Practical cooperation between Estonia and Russia is, in many realms, smooth and effective. This applies to the cooperation between the border guard, the police, and other government agencies of the two countries, as well as to cultural contacts. Good examples of this cooperation are also student exchanges, at the secondary school and university level, tourism and cross-border cooperation. The further development of these contacts will be promoted by the visa facilitation agreement between the European Union and Russia that is soon to become effective.

When talking about the dynamics of our relations as a whole, it should be stressed that we are not seeking a revolution in our relations with Russia – we need evolution. Juri Lotman has pointedly illustrated various approaches to history by contrasting the wide river of slow change to the explosive changes occurring in a minefield. We prefer the river of change, even if its surface should freeze in the middle of the winter cold.

Energy security is also a subject that is often associated with Russia. Actually, the subject matter is, of course, much broader – it is not just a question of producing and delivering. Of essential significance are environmental impacts, which we are keeping very sharply in mind in the case of the continuing development of the Russian-German gas pipeline, as are also foreign trade, competition, and security. The evaluating of the environmental effects of the Russian-German gas pipeline has begun. We are participating in this, and are making sure that all risks are being seriously taken into consideration. The parties of the project have to take into consideration the interests of all the Baltic Sea countries, and to eventually weigh the practicality of the undertaking after the environmental effects have been evaluated.

We are in a fairly similar situation with Latvia and Lithuania, hence, the need to solve energy questions together. The Baltic states wish to establish sufficient connections with European Union energy networks. In addition to the already existing Estlink cable, the Baltic states also need, for their electrical systems to be integrated with Europe, and to ensure their energy security, connections between Lithuania and Poland, apparently an electrical cable to Sweden, as well as the Estlink-2 cable. To establish additional capabilities for creating electricity, preparations are being made for the construction of a new nuclear power station in Lithuania. Likewise, it is necessary to connect the gas system of the Baltic states with that of the other European Union states.

Estonia regards it as being essential that the European Union should speak with a single voice when dealing with outside energy suppliers and countries of transit. Our aim is that the upcoming European Council’s decisions should create substantive external relations in the energy realm. Otherwise, it would be difficult for the European Union to ensure its ability to compete in today’s world.

One essential subject matter that is closely connected with the energy sphere is climate change. Thus, we will be influenced by new pollution quotas and emission trading plans that will become effective after the year 2012. When the decisions are made, we will be able to launch new energy projects, for instance, in the realm of oil shale. Climate and environmental questions are becoming an ever more essential part of international relations.


Dear Members of the Riigikogu,

And now, I would, of course, like to also talk about what is closest to home – the European Union and our close neighbours. The home berth of our ship is located in the Nordic-Baltic harbour. Sometimes we are surprised by the fact that we reside in what is actually Europe’s economically most dynamic region, which is also an area that is becoming ever more active in the realm of international relations. Our relations with our Nordic and Baltic neighbours are closely intertwined, and we are promoting ever more unified and dynamic cooperation. We seek to have more of the Nordic in Estonia and in our regional cooperation. 

Of the subject matters dealing with the European Union, much attention is again being paid to the future of the Constitutional Treaty. Actually, to the much more serious question connected with the Treaty – how will the European Union develop from now on? We believe that the Treaty under discussion successfully expresses the European Union’s true nature and possible future course of development. It is a known fact that words cannot be omitted from a good song (although Veljo Tormis has introduced to us a concept unique to Ingerian folk songs – to intersperse intensive singing with breathing pauses). So, we also favour the adoption of our Treaty – after a period of breathing deeply – with as few changes as possible. The European Union’s presently presiding country, Germany, is holding talks with all member states, so that, at the end of its presidency, which is also after the French presidential elections, it can present conclusions concerning possible solutions. Estonia is actively participating in these discussions. Above all, those states that have, so far, not ratified the Treaty, must express their opinions.

Amongst our activities, we attach great importance to the European Union’s relations with the United States, which are unique due to their global influence. There are few problems in the world that the US or the European Union could manage to solve independently from each other. Examples of this are the ever more essential international questions concerning energy and climate change, which will, hopefully, be dealt with at the upcoming US-European Union summit in April. In addition to their rather close view of the world, Europe and the US are connected by their economic partnership. The development of transatlantic relations is also one of Germany’s priorities during its European Union presidency, and, from our point of view, it is extremely important that, in substantive matters, the European Union and the US speak in a unified manner.


Respected Riigikogu,

It has been some time since so many critical and complex matters have to be dealt with at the same time on the international agenda. Energy and climate change, nuclear questions, the Middle East, China’s development, as well as so much more – everything is interconnected. And we cannot avoid participating in these processes, or expressing positions to essential questions. Since which is the stone that holds up the bridge? Actually, the bridge is not held up by either the large or the small stone, but by the arch that they form. This is how the arch of opportunity, of which Estonia forms a part, can be viewed, as it crosses over the contemporary tensions and gullies.

I thank the Riigikogu, which is ending its work, for its attention and cooperation.