Honorable chairman and lawmakers: good morning!
It is a great honor of mine to be invited to offer a report to the committee on the diplomatic efforts of the Ministry of Foreign Affairs (MOFA) at the second session of the seventh Legislative Yuan. The Legislative Yuan has always supported MOFA’s endeavors to promote parliamentary diplomacy. Many lawmakers have paid visits to other countries during Parliamentary recesses, thereby greatly contributing to our bilateral parliamentary exchanges. President Wang Jin-pyng, for instance, visited Tokyo to meet with a number of senior-level politicians. He also represented our government when leading delegations to our diplomatic allies the Marshall Islands and the Solomon Islands for their independence celebrations. He has done his utmost to expand our country’s space to maneuver in the international arena. On behalf of my colleagues at MOFA, I would like to extend my respect and appreciation to the Legislative Yuan.
1. Current international outlook
In recent years, due to skyrocketing energy prices, the world market has been severely hit with the doubling of transportation costs. As a result, global manufacturing chains have become more regional in nature. Taiwan, a key air transportation hub for Southeast Asia, enjoys a geographical advantage. The question remains whether Taiwan can leverage its industrial strengths, take advantage of liberalized cross-strait policies and actively integrate itself into the Asia-Pacific economy. The end result is critical to Taiwan’s economic and trade development.
In recent years, mainland China has enjoyed rapid economic growth, allowing it to enhance its political and military power significantly. The international community therefore hopes one day China will assume the role of a “responsible stakeholder.” To accomplish this, China should integrate itself into the free market, join the ranks of democratic countries, respect international norms and maintain the status quo in the Taiwan Strait. In this light, one can see the international community’s sincere concern over stability in the Taiwan Strait.
In addition, many issues require multinational coordination to obtain effective solutions, including global warming, finance industry liberalization, counter-terrorism, drug prevention, foreign labor, immigration, humanitarian aid, disease prevention, trade and fisheries. Therefore, Taiwan has a pressing need to enter functional and specialized international organizations and expand its role in multilateral cooperation.
2. Our definition of “flexible diplomacy”
Diplomacy is an extension of a nation’s domestic affairs. Therefore, Taiwan’s current diplomatic mission is to create a sound climate in the international arena to nurture the development of Taiwan’s own political sphere, economy, military, civil affairs, society, and culture. We need to meet the challenges stemming from regional economic integration, the rise of China and other international developments. To accomplish this, Taiwan needs to formulate innovative diplomatic policies in order to turn trends to its advantage, minimize the China threat, and protect its national interests. By so doing Taiwan can amass greater bargaining power with which to expand its room to maneuver internationally.
“Putting Taiwan first for the benefit of the people” is the highest tenet underlying our government policies. President Ma Ying-jeou’s administration is promoting flexible diplomacy through the adoption of diplomatic policies that uphold the principles of dignity, autonomy, pragmatism and agility. In this way, we can open new diplomatic channels and ensure our national interests. However, China’s long-term suppression remains the crux of Taiwan’s diplomatic problems. Therefore, for our flexible diplomacy to succeed we need to improve our relations with mainland China. The two sides should start by discussing issues of common interest so that mutual trust can be fostered over time. This would let us set aside our disputes and benefit our respective bilateral relations and Taiwan’s participation in international organizations. The international community would welcome peace and stability across the Taiwan Strait, and our “flexible diplomacy” would serve in the best interest of and provide a win-win solution for Taiwan, mainland China and the other members of the international community.
In this light, flexible diplomacy consists of two ingredients, diplomatic truce and proactive diplomacy:
1) Diplomatic truce: The call for diplomatic truce aims to bring to an end the counterproductive competition between the two sides of the Taiwan Strait so that they can pursue co-existence and co-prosperity in the international arena. During a diplomatic truce, conduct detrimental or harmful to the national interests of Taiwan should be discontinued. A diplomatic truce is a means to an end, lettings us more easily reach our ultimate goal: peace and prosperity in the Taiwan Strait. In the end, we can create a win-win situation for both Taiwan and mainland China in the international community.
2) Proactive diplomacy: Taiwan’s diplomatic efforts need to be infused with professionalism. Taiwan is refocusing its resources to strengthen relations with its diplomatic allies, upgrade the level of contact with major countries in each region and integrate itself into the Asia-Pacific regional economy. In the meantime, Taiwan hopes to expand its participation in functional and specialized international organizations. In addition, it strives to create a climate that benefits its economic development, while combining forces with the private sector to promote exchange and interaction with other civil societies around the globe.
Flexible diplomacy will help normalize Taiwan’s diplomatic endeavors and allow the government to more effectively utilize its resources, thereby revitalizing Taiwan’s relations with its non-diplomatic allies. This approach can further expand Taiwan’s international participation and substantially benefit the people. By so doing, MOFA can gradually make its foreign assistance budget more transparent as expected by the Legislative Yuan and the public.
Flexible diplomacy is the most feasible and effective approach to our foreign relations under the current international situation. Through it, Taiwan neither belittles itself nor abandons its national sovereignty. Instead, Taiwan strives to shape the international climate in order to expand its diplomatic efforts. The push for flexible diplomacy is a constant and incremental process in which MOFA has two issues to resolve: how to secure greater support from the international community and how to make mainland China respond positively to Taiwan’s pursuit of increased international space.
Next I would like to address the floor and report on our progress in consolidating relations with our diplomatic allies, strengthening Taiwan’s substantive relations with non-diplomatic allies, and expanding multilateral relations. After examining Taiwan’s diplomatic outlook, I would like to welcome you to raise any comments or questions that you may have.
3. Extensive efforts to consolidate diplomatic ties
Consolidating ties with Taiwan’s diplomatic allies has been key to MOFA’s mission. Flexible diplomacy promotes the co-existence and co-prosperity of Taiwan and mainland China in the international community. This innovative approach also helps us to stop squandering diplomatic resources and expand our substantive relations with major non-diplomatic allies in the region.
As for our ties with Europe, Taiwan has enjoyed long-standing and friendly relations with its sole diplomatic ally on the continent, the Holy See. The two of us are kindred spirits, as we both render humanitarian assistance to people in need due to our shared altruism. MOFA will continue to cultivate its relations with the Holy See by strengthening religious and cultural cooperation, promoting exchange of visits and participating in international humanitarian efforts.
As for our relations with Latin America and the Caribbean, we remain extremely close to our 12 diplomatic allies in these regions. Cordial relations have been established with more than half of these countries for decades. Extensive bilateral relations and cooperation can be seen in such areas as SME development, agriculture, forestry, fisheries, animal husbandry, environmental protection and tourism. President Ma Ying-jeou, by leading a delegation to join the presidential inaugurations in Paraguay and Dominica Republic this August, set another milestone in our relations with these countries. His visit was the first to be made to Taiwan’s diplomatic allies since the flexible diplomacy approach was initiated. The trip deepened our relations with these regions and gave Taiwan the opportunity to voice once again its strong commitment to pursuing peace and prosperity.
The relations between Taiwan and its six allies in the South Pacific remain stable. The heads of state of these six countries visited Taiwan to join President Ma’s inaugural celebrations on May 20, and reiterated their staunch support of Taiwan’s bid to participate in the United Nations (UN) and the World Health Organization (WHO). Taiwan’s cooperative projects in its allied countries aim at improving their living standards and bolstering local environmental protection efforts. Taiwan’s flexible diplomacy has won support from New Zealand and Australia, which have expressed interest in cooperating with Taiwan in its humanitarian projects in the South Pacific region.
As for our work in Africa, Taiwan and its four allies on the continent are reviewing old cooperative projects and planning new ones through regular consultations, thereby further promoting bilateral ties. Currently, MOFA’s primary mission in Africa is to provide medical assistance and lend a hand in infrastructure construction so as to help raise the living standards of their peoples. Vice President Vincent C. Siew visited the Kingdom of Swaziland in September to join their independence celebrations. During his stay, Vice President Siew exchanged views with King Mswati III on cooperative projects, toured Taiwan’s medical and technical missions in Swaziland, and met with Taiwanese businessmen in three of the southern African countries. Vice President Siew’s visit was particularly well received in Swaziland.
4. Strengthening substantial relations with non-allies
Since the advent of the Ma administration, US President George W. Bush has reaffirmed on a number of occasions his recognition of Taiwan’s efforts to ease cross-strait tension. Likewise, MOFA has been dedicated to re-building mutual trust between Taiwan and the United States by actively strengthening its communication with the US government, think tanks and Congress. Such action will help prevent surprises that would hurt our interaction with the United States, thereby nurturing mutual trust. At the current stage, Taiwan has prioritized the following steps in its efforts to improve US relations: 1) urge the US to support Taiwan’s meaningful participation in UN specialized agencies and activities; 2) promote interaction between senior-level officials of the United States and Taiwan; 3) encourage the United States to sell defensive weapons to Taiwan as stipulated by the Taiwan Relations Act; 4) sign a US-Taiwan Free Trade Agreement and 5) strengthen mutual judicial cooperation, anti-terrorism and other bilateral efforts. At the 63rd session of the UN General Assembly, the General Committee reviewed Taiwan’s UN bid, at which point the US administration openly expressed its long backing of Taiwan’s meaningful participation in UN’s specialized agencies, such as the WHO. Through its encouraging statement, the US once again proved its staunch support and friendship to Taiwan.
With respect to Taiwan-Japan relations, the Lienhe fishing boat incident was handled properly and rationally by the two governments. Japan also agreed to start negotiations on compensating the boat owner here in Taipei. In addition, Japan has granted visa-free treatment to Taiwanese tourists, and the two countries have recognized the driver’s licenses of each other. Both of us are ready to push bilateral relations a step forward by concluding a working holiday agreement for youths. As for official exchanges, President Wang Jin-pyng of the Legislative Yuan, Chairman Chiang Pin-kung of the Straits Exchange Foundation, and MOFA’s Deputy Minister Andrew Hsia, have paid visits to Japan and met with influential figures in Japan’s political arena to outline the Ma administration’s Japan policies and the outlook of cross-strait relations. In the forthcoming years, Taiwan will continue consultations with Japan on fishing rights, avian flu prevention and a Japan-Taiwan FTA. In the meanwhile, we will continue seeking support from Japan of Taiwan’s observership in the World Health Assembly. Strengthening and enhancing relations with Japan is vital to Taiwan’s foreign policy goals. We consider that Taiwan and Japan enjoy a “special partnership.”
The easing of tensions across the Taiwan Strait has already had a positive effect on our relations in South East Asia. The Joint Communiqué of the 41st ASEAN Ministerial Meeting held in July this year states the hope that cross-strait relations will continue to improve. Since May 20 this year, we have held ministerial-level conferences on labor issues with the Philippines, Indonesia and Thailand. We will also make efforts to promote ministerial-level conferences and consultations on economic cooperation with members of ASEAN this year. In addition, we will also hold parliamentary exchanges and dialogues with second track think tanks from ASEAN member states. On the whole, the level, scope and frequency of our contacts with ASEAN member states have increased significantly.
The EU has consistently been concerned with the peaceful development of cross-strait relations. On May 26, the EU declared that it “… welcomes the positive momentum given to the development of cross-strait relations…. The EU believes that the establishment of a new administration in Taiwan provides a unique opportunity for the two sides to make further progress in their practical relations and opens the possibility for them to take positive steps towards the resumption of a dialogue meaningful to the people on both sides of the Strait”. Furthermore, the EU Presidency issued another statement on June 13 indicating that it warmly welcomes the resumption of dialogue between the Association for Relations Across the Taiwan Strait (ARATS) and the Straits Exchange Foundation (SEF). MOFA has communicated with major EU states to give them a clearer understanding of the new administration’s foreign policy aims, which have met with the approval of senior EU officials and parliamentarians. The EU Presidency released another statement on September 19 reiterating its support for Taiwan’s participation in specialized multilateral forums, which is of great significance for Taiwan’s participation in the activities of international organizations.
Our cross-strait and foreign policies since the presidential inauguration have received wide coverage in Middle Eastern countries. For instance, a member of Israel’s Knesset wrote an article in support of our participation in international specialized organizations, and such coverage has positive implications for our country’s image. Currently, our work in the Middle Eastern region is focused on broadening our contacts with friendly parties, increasing inter-parliamentary exchanges with other democracies, and expanding cooperation in such fields as finance, investment, energy, medical care and high-value agriculture.
5. Expanding multilateral relations
(1) Participating in economic organizations and events in the Asia Pacific region
Currently, Asia-Pacific Economic Cooperation (APEC) is the most important regional organization for economic cooperation in which we participate. This year, we have taken part in two APEC Senior Officials’ Meetings (SOM), in the APEC Structural Reform Ministerial Meeting and in APEC SMEs Meetings. At the time of the second SOM, a major earthquake struck Sichuan province, China. We took the initiative to propose holding a seminar on post-disaster relief and reconstruction, an idea that was supported by mainland China. The seminar was held between September 22-25 in Taipei and Nantou County, Taiwan. All members of APEC welcome positive interactions between the two sides of the Strait through the organization.
As Taiwan and ASEAN countries are geographically close, we share many common interests. As such, MOFA has established an ASEAN Taskforce to be in charge of planning work related to ASEAN. As decision-making in ASEAN is by consensus, MOFA will begin by enhancing bilateral relations with individual ASEAN member countries. In addition, we will gradually take part in ASEAN regional events through signing agreements, initiating industrial cooperation and joining the strategic alliance.
(2) Expanding participation in professional and specialized international organizations
Taiwan currently participates in 48 intergovernmental organizations, and our work at this stage is focused on maintaining our memberships and rights. We continue to enthusiastically participate in such international organizations as the European Bank for Reconstruction and Development (EBRD), the World Vegetable Center (AVRDC), the International Seed Testing Association (ISTA), the Internet Corporation for Assigned Names and Numbers (ICANN) and its Government Advisory Committee (GAC), as well as the Association of Asian Election Authorities (AAEA). These platforms provide an effective channel for establishing cooperative mechanisms with other international organizations and countries friendly to Taiwan.
Given that our efforts to participate in the United Nations since 1993 have shown little progress, and given that both referendums on UN participation held in March this year failed to pass, the government decided to use a moderate and rational approach to UN participation this year. On Taiwan’s behalf, 17 of our diplomatic allies requested that the UN General Assembly review the proposal that Taiwan’s 23 million people fundamental right to meaningful involvement in the activities of UN specialized agencies should be respected. The US and major European countries have publicly lent their support to our appeal. MOFA will persist in seeking the support of the international community and in promoting the goal of participating in the UN system in the future.
Participation in international organizations is a long-term goal for the government. While the international community’s endorsement is important, negotiations across the Taiwan Strait are also needed. However, interactions across the Strait have been at a standstill for many years, and a breakthrough is not achievable overnight. If the status quo across the Strait can be maintained, if fierce diplomatic rivalry can give way to a foundation from which both sides can benefit, and if both sides can show good will, there will be an opportunity to move towards a win-win solution.
6. Future prospects
(1) Raising the level of professionalism
The purpose of diplomatic work is to maximize our national interests, and the professionalism of diplomatic personnel needs to be cultivated. In the past, the recruitment of MOFA’s diplomatic and consular personnel involved written and oral examinations that reveal little about the applicants’ personality, knowledge, social skills and suitability to diplomatic work. MOFA plans to model the practices of developed countries by increasing the training courses for new hires and putting in place a system for termination of employment.
Middle management serves as a bridge between high-level officials and new hires, and performs the bulk of the government’s diplomatic work. It is therefore particularly important that middle management possesses solid language skills and practical experience. From now on, only officials that are competent in a foreign language will be considered qualified to be promoted to senior-level secretaries, and senior-level secretaries will be required to pass a foreign language exam if they are to be promoted to the level of counselor. Qualified candidates will be listed in the Database of Potential Directors of Missions Abroad.
The new administration has so far appointed a total of 27 directors of missions abroad, including four directors without portfolio appointed by the president and 23 appointed by the premier. All of them are high-caliber officials with solid experience in diplomacy, international trade and commerce, or media. Their appointments tally with the professional and ethical principles of promoting diplomatic personnel.
(2) Improving Taiwan’s foreign aid policy
As a country that has succeeded with its own economic development thanks in no small part to the aid it received from developed countries, Taiwan is obliged to give back to the international community by assisting with the elimination of poverty in other developing countries and improving their economies. Nevertheless, our achievements in providing foreign aid have not received the attention they deserve because of the fierce diplomatic rivalry across the Strait.
To conform to the new policy of flexible diplomacy, MOFA completed an internal review in August and is currently drafting an updated white paper on Providing Foreign Aid based on the principles of the Paris Declaration on Aid Effectiveness. This white paper sets forth in detail the aims of providing foreign aid, international aid trends, the allocation of funds, the content of the main plan, and the future direction of our work. We hope that a more professional and standard approach to diplomacy will allow us to improve the effectiveness of our international aid work and the image of Taiwan that it portrays, as well as to gradually decrease the relative size of the confidential budget. The government will uphold the principles of “just purpose, legitimate measures, and effective execution” in pushing forward with its future international aid work, which will benefit all our diplomatic allies.
(3) Fostering Soft-power Diplomacy
Soft-power diplomacy is the use of power that is not political, economic or military to improve a country’s image. Such informal diplomacy makes up for the inadequacies of formal diplomacy.
Recently, the government has made great efforts in integrating nongovernmental groups to promote soft-power diplomacy. For instance, the government supports domestic NGOs with their international humanitarian aid efforts, assists with the development of ecotourism in our diplomatic allies, encourages certain NGOs to hold international conferences in Taiwan, and works with the Taiwan Foundation for Democracy to present the Asia Democracy and Human Rights Award. On top of that, the government also sponsors the establishment of Taiwan Academies overseas, and provides Taiwan Scholarships to encourage outstanding foreign students to come to study in Taiwan.
Soft-power diplomacy increases our connections in the international community and enhances our image. Depending on the demands of related work in the future, MOFA will invite other government agencies, such as the Government Information Office, the Ministry of Education, the Overseas Compatriot Affairs Commission, the Council for Cultural Affairs and the Tourism Bureau of the Ministry of Transportation and Communications, to integrate available resources and funds. This will maximize the effects of our soft-power diplomacy.
Conclusion
Since the new administration took office, the international community has expressed its recognition of our pragmatic and reasonable foreign policy. Taiwan can and should use its strengths to play the role of peace maker in the international community. By taking a positive and dynamic approach to the international situation with flexible diplomacy, we are expanding our international space through bilateral and multilateral cooperation with other countries. MOFA shoulders the heavy burden of the high expectations of the Legislative Yuan and the people of Taiwan. However, your comments will be greatly appreciated, as MOFA will spare no effort in promoting Taiwan’s interests. Thank you. (E)