I.Foreword
Honorable Chair and Members of the Legislative Yuan’s Foreign and National Defense Committee, Ladies and Gentlemen: good morning!
It is an honor to be invited by the Committee to give a briefing on the recent undertakings by the Ministry of Foreign Affairs. I would like to extend my respect and appreciation to Legislative Speaker Wang, Deputy Speaker Tseng and the legislators for your valuable suggestions and involvement in parliamentary diplomacy.
I still recall my first briefing to this Committee shortly after I was sworn in as the Minister of Foreign Affairs six months ago. At that point, I stated my commitment to fully implementing the “flexible diplomacy” policy based on its solid foundation. Over these past six months, we have maintained cordial and stable relations with our 23 diplomatic allies. At the same time, the mutual trust and substantive relations between Taiwan and its non-diplomatic allies have continued to grow. Our visibility and image in the international community have been greatly elevated as well. More importantly, not an iota of our national sovereignty has been infringed upon during this time. Quite the opposite, we have earned accolades from the international community, as befitting a sovereign nation. I can assure you that indeed “flexible diplomacy” has charted a viable path for our foreign relations.
II.Flexible diplomacy continues to demonstrate concrete results
Since my previous report to this Committee last year, our work has continued to achieve substantial results:
1. Relations with diplomatic allies
In terms of senior level visits, when President Ma Ying-jeou led a delegation to attend the inauguration of President Porfirio Lobo Sosa of Honduras in January this year, he also stopped at the Dominican Republic to meet with President Leonel Fernandez Reyna and Haitian Prime Minister Jean Max Bellerive to discuss Haiti’s post-earthquake reconstruction. President Kuan Chung of the Examination Yuan, as the president’s special envoy, visited St. Vincent and the Grenadines in October 2009 to attend the celebrations for its 30th Independence Day. In addition, many senior officials from abroad led delegations to our country: H.E. Dr. Rafael Espada, Vice President of Guatemala; H.E. Fred Fono, Deputy Prime Minister of Solomon Islands; Hon. Hugo Roger Martinez Bonilla, Minister of Foreign Affairs of El Salvador; H.E. Bedouma Alain Yoda, Minister of State for Foreign Affairs and Regional Cooperation of Burkina Faso; H.E. Alrich Nicolas, Minister of Foreign Affairs and Culture of Haiti; and Hon. Rufus Bousquet, Minister of External Affairs, International Trade and Investment of St. Lucia.
Regarding our assistance and cooperation with our diplomatic allies, my Ministry issued the first White Paper on Foreign Aid Policy in May 2009. Subsequently, the Executive Yuan approved the International Cooperation and Development Act drafted by MOFA in November 2009 to further provide a legal framework and oversight mechanism for our foreign aid. The draft was then submitted to the Legislative Yuan for review. After the completion of the review and ratification process, the act will become Taiwan’s first foreign aid law. We aim to make our foreign aid more systematic and professional so as to elevate Taiwan’s image in the international community.
To promote our diplomatic relations and humanitarian assistance, various cooperation projects with our diplomatic allies have adopted the principles of “proper goals, legal processes and effective administration.” We seek to capitalize on our strengths in order to provide our allies assistance in the fields of trade, medical care, vocational training, agriculture, digital technology, social amenities and infrastructure. All related projects undergo a detailed review process. Our ultimate goal is to help our allies ensure the welfare of their people.
2. Substantive relations
(1) Taiwan-US relations
This January President Ma Ying-jeou, on his way to Honduras and the Dominican Republic, made transits in the United States for the fourth time during his tenure as president. The government kept the layovers simple, low-key and surprise-free, as promised. The courtesies afforded to our senior officials by the United States have clearly been elevated, showing our strengthened mutual trust. AIT Chairman Raymond F. Burghardt also stated that our relations are “excellent” and “in great shape.”
In addition, Washington approved its arms sales to Taiwan—the first in nine years—in October 2008. The Obama administration notified the US Congress once again in January this year about the new arms sales package worth US$6.4 billion, demonstrating that the United States fully abides by the security commitments stipulated in the Taiwan Relations Act.
Despite the fact that Taiwan and the United States signed the Protocol of Bovine Spongiform Encephalopathy (BSE)-Related Measures for the Importation of Beef and Beef Products for Human Consumption from the Territory of the Authorities Represented by the American Institute in Taiwan (AIT) in October 2009, the public remain suspicious about the safety of US beef. For this reason, the Legislative Yuan amended the law to ban the import of US ground beef and offal in January this year. Although the United States expressed strong concern, this incident neither compounded other issues nor hurt our bilateral substantive relations outside of the economic and trade realm, thanks to our continuous efforts to communicate with Washington.
(2) Taiwan-Japan relations:
The year 2009 was designated the Year to Foster the Special Partnership between Taiwan and Japan. The government made great efforts to promote bilateral cooperation in the fields of the economy, trade, culture, tourism and youth exchanges. Over the past six months, three meetings have been convened: the Energy Cooperation Meeting, the Information Technology Cooperation Meeting, and the Economic and the Trade Consultation Meeting. In December 2009, an amended aviation agreement that calls for the launch of scheduled flights between Taipei Songshan Airport and Haneda Airport this October was signed. In addition, our office in Sapporo (Hokkaido) officially started operations on December 1, 2009. As for the sporadic fishery disputes between our two countries, the two of us can resolve them over time peacefully and rationally.
(3) Taiwan-Europe relations:
Our relations with EU countries have continued to make progress in recent years. For example, the EU Commission read a statement of condolence regarding the victims of Typhoon Morakot in the European Parliament in September 2009, and reiterated its support of Taiwan’s participation in international organizations. In the last six months, we signed the Memorandum of Understanding between the Customs Service of Taiwan and Customs Service of the Republic of Poland, and an air service agreement with the United Kingdom. In addition, the foreign ministries of Spain and Italy have elevated courtesies for the staff of our representative offices. Also, the Luxemburg Trade and Investment Office was officially opened in October 2009.
(4) Relations with other countries
For the past six months, MOFA has continued its efforts to increase Taiwan’s participation in the mechanisms for Asia-Pacific integration, while strengthening Taiwan’s interaction with countries in the area. As a result, our bilateral relations in a variety of fields have made great strides. For example, in November last year, New Zealand agreed to grant visa-free treatment for up to three months to Taiwan passport holders traveling there for all purposes other than employment. In addition, Taiwan and Israel signed an agreement to avoid double taxation in November last year; the Sultanate of Oman agreed to simplify visa-application procedures for Taiwanese travelers; Taiwan and India entered official cooperation for the first time by holding the Technology Cooperation Conference earlier this year. All of these bear testimony to the concrete progress we made over the past half year.
3. International Organizations and Institutions
(1) The United Nations: For the sake of the people, the government seeks to gain meaningful participation in the specialized agencies of the United Nations. We have given top priority to participating in the United Nations Framework Convention on Climate Change (UNFCCC) and the International Civil Aviation Organization (ICAO). As our appeals for participation are in line with the policies of major countries around the world, we have been receiving positive responses.
(2) World Health Organization (WHO): Since taking part in the World Health Assembly (WHA) as an observer in May last year, Taiwan has communicated and interacted well with the WHO under the International Health Regulations (IHR) mechanism. For example, with the WHO’s assistance, Taiwan has acquired samples of the H1N1 virus strain, thereby allowing Taiwan to produce the H1N1 vaccine domestically. Taiwan also has attended H1N1-related conferences and other technical meetings as well as training programs under the WHO.
(3) World Trade Organization (WTO): Taiwan became the 41st contracting party to the WTO’s Agreement on Government Procurement (GPA) in July last year, enabling Taiwanese industries to compete on a level playing field in the world government procurement market for opportunities worth over US$960 billion annually. As of January this year, our industries have secured contracts worth over US$50 million in this newly opened market. To vie for a bigger piece of the pie, MOFA and the Ministry of Economic Affairs (MOEA) created a website to provide Taiwanese industries with related information, thereby enabling them to bid for government procurement cases globally.
(4) South Pacific Regional Fisheries Management Organization (SPRFMO): The Convention to establish SPRFMO was adopted on November 14 last year. Once the Convention enters into force, Taiwan will be a founding member of SPRFMO, the first international fisheries management organization about straddling fish stocks that includes Taiwan as a full participant. The amount of fish caught by Taiwanese fishing vessels in the area covered by the Convention can reach 23,000 metric tons in a single year. As a member of SPRFMO, the rights of and quotas for Taiwanese fishing vessels can be further safeguarded.
4. Services for the public
(1) Allowing Taiwanese to hold an additional Taiwanese passport: For the convenience of Taiwanese citizens traveling abroad, MOFA decided, after discussion and coordination with the police and border control authorities, to allow those with special needs to obtain an additional Taiwanese passport. The enforcement rules and relevant supporting measure entered into force on October 26 last year. This measure is to benefit Taiwanese businesspeople traveling abroad.
(2) Emergency aid for Taiwanese traveling abroad: In recent years, Taiwanese citizens have made more than eight million trips abroad on average annually. In addition to such consular services as issuing passports and certifying documents, MOFA operates an emergency contact center 24 hrs a day, 7 days a week, to help Taiwanese travelers abroad cope with emergencies and accidents. The contact center has received more than 20,000 calls in the last six months alone, and MOFA’s overseas embassies and missions have assisted in 1,451 emergencies encountered by Taiwanese travelers abroad.
5. Other Major Achievements
(1) People-to-people Diplomacy: In the past half year, MOFA has assisted in the exchanges and communications between domestic NGOs and international ones, including six rounds of the Training Course on International Affairs, the 2009 Seminar and Exhibitions on the International Participation of NGOs, invitations for leaders of important international NGOs to visit Taiwan. According to our statistics, last year MOFA assisted or subsidized domestic NGOs on 663 occasions so that they could participate in international conferences and related activities.
(2) Humanitarian Diplomacy: One of our allies, Haiti, was devastated by an earthquake this year on January 12. Upon learning of the tragedy, our government immediately established an inter-ministerial taskforce to solicit resources from both the public and private sectors, and dispatch rescue and relief teams to the disaster areas. Our rescue and relief work was recognized by CNN, the BBC, and other international media, thereby promoting our image abroad.
(3) Public Diplomacy: In the past half year, MOFA continued to hold a variety of programs, such as the Taiwan Scholarships Program, International Young Ambassador Program, Taiwan Culture Camp for International Youth, and short-term trade and economic courses for government officials from Taiwan’s diplomatic allies and other friendly countries. In addition, MOFA has arranged for young scholars to engage in international academic exchanges in order to build up a network for related future endeavors. MOFA also has organized information sessions on foreign policy, conferences on diplomatic affairs, and seminars on international etiquette. Such activities aim to allow people at home and abroad to better understand our diplomatic work, while broadening the international perspectives of the people of Taiwan. Last year, MOFA assisted with or subsidized 204 domestic art groups seeking to perform or partake in exhibitions abroad. Our embassies and missions overseas hold activities like film festivals, food festivals, and photography exhibitions so as to provide people in foreign countries with an opportunity to better understand Taiwan.
III.Current International Trends and MOFA’s Approaches
Of last year’s major international events, the following are those that concerned us the most:
1. International financial crisis
According to the estimates of major international economic organizations, global economic growth this year will range from 2.4% to 3.4%, as compared to last year’s -1.1%. Last year starting in the third quarter, major economies, such as the United States, Europe and Japan, experienced positive economic growth, further proving that the global economy is turning around. However, countries around the world are still taking cautious approaches when dealing with the challenges caused by the financial crisis. The Group 20 (G20) members agree that the measures to revive the economy should not be withdrawn prematurely in order to reduce post-crisis problems, such as inflation, high unemployment and trade protectionism.
It is also noteworthy that, compared to Western countries, emerging economies such as mainland China, India, Brazil and Indonesia, have been less affected by the financial crisis and have been recovering very quickly. Whether this development will translate into the erosion of the dominance enjoyed by Western countries in the global market remains to be observed.
Although the tough international realities make it unlikely that Taiwan will be included into the G20 cooperation mechanism anytime soon, my Ministry will continue to monitor related developments and seek ways to expand our pragmatic participation. In the nearly two years that have passed since the flexible diplomacy policy was launched, the substantive relations between Taiwan and the G20 members have improved significantly. In the future, MOFA will keep on strengthening Taiwan’s close trade and economic relations with these countries and, in following world trade and economic integration trends, pursue more business opportunities through the WTO, APEC and other related multilateral mechanisms.
2. Climate change will affect the global agenda
Climate change is probably the biggest threat and challenge that humanity now faces. The United Nations originally hoped each member state would set carbon emission quotas at the 15th Conference of Parties (COP15) to the United Nations Framework Convention on Climate Change (UNFCCC) held in Copenhagen last December. However, developing countries insisted on the principle of “common but differentiated responsibility,” and demanded that developed countries take the lead in reducing emissions, as well as provide technology and capital. As a result, the parties to COP15 were only able to reach a non-binding consensus that the global temperature should be kept from rising more than 2 degrees Celsius above pre-industrial levels. The parties also agreed that, based on this consensus, they would continue to promote the drafting of relevant legally-binding documents before the next climate change conference, which takes place in Mexico this year. This demonstrates that the international community has forged a collective determination to reduce carbon emissions.
Taiwan is not a signatory to the Kyoto Protocol that came into force in 2005 and it cannot officially take part in UN climate change conferences. However, guided by the policy of flexible diplomacy and our desire to participate in and contribute to the international community, the government of the Republic of China (Taiwan) will continue to take substantial steps to meet international environmental protection requirements. We want to show the world that Taiwan is determined to be a responsible stakeholder in the international community and would like to meaningfully take part in relevant UN meetings.
3. The US and mainland China will continue to both cooperate with and compete against each other
After US President Barack Obama took office, he strongly urged mainland China to take a greater role in world affairs. Over the past year, the US and mainland China have held fairly frequent bilateral high-level meetings and talks. High-ranking military officials from both countries also resumed exchanges, and the US-China Strategic and Economic Dialogue was held for the first time. President Obama and Chinese Leader Hu Jintao have met three times and, after their November meeting, issued a joint statement in which they reiterated that the US and mainland China are committed to building “a partnership to address common challenges,” and will work together to tackle such global challenges as the financial crisis, nuclear proliferation and climate change.
However, the different political systems, ideologies and values that the US and mainland China possess will, to some extent, inevitably stand in the way as they attempt to deepen their bilateral exchanges and cooperation. Two prominent examples that triggered strong opposition from mainland China include President Obama’s meeting with the Dalai Lama earlier this year and US arms sales to Taiwan. However, the two sides have more to gain than lose by working together, and it is believed that the US and mainland China will continue to cooperate closely, while at the same time competing against each other.
With the government’s efforts to improve cross-strait relations and adopt a policy of flexible diplomacy, trilateral relations between the US, mainland China and Taiwan remain stable at this stage. Moreover, both the US and mainland China hope peace and stability in the region can be maintained, a consensus that serves Taiwan’s national interests well. In the years to come, Taiwan will continue implementing the policy of flexible diplomacy so as to create a situation where Taiwan, the US and mainland China all benefit. In the meantime, Taiwan maintains the position that developments in US-China relations should not come at the expense of its national interests.
4. Regional economic integration in East Asia will accelerate
Economic integration in East Asia has accelerated in recent years. As of early January, ASEAN and mainland China have linked up to form the world’s most populous free trade area. In the near future, Japan and South Korea will also form free trade zones with ASEAN. Australian Prime Minister, Kevin Rudd, and Japanese Prime Minister, Yukio Hatoyama, have on separate occasions proposed the idea of establishing an Asia Pacific Community (APC) or an East Asian Community (EAC), respectively. Asia-Pacific Economic Cooperation (APEC) members have also proposed initiatives to form a Free Trade Area of the Asia Pacific (FTAAP) and a Trans-Pacific Partnership (TPP). These all go to highlight the great potential of East Asian economies.
As East Asian countries speed up their integration, Taiwan cannot be left on the sidelines. Taiwan has a close connection with major countries in East Asia with respect to geographic location, strategic relations, historical backgrounds, language and cultures. With this considerable advantage, Taiwan should make the most of the opportunity. After flexible diplomacy has succeeded in easing cross-strait tensions, Taiwan will be able to interact more freely with other countries, and in more areas. Hence, MOFA’s primary mission at this stage is to seek the signing of free trade agreements with major countries and participation in the mechanism for regional economic integration in East Asia. With this as a priority, we expect to create a better environment for national development, and ensure long-lasting security and prosperity for the nation.
IV.Flexible diplomacy -- opportunities and challenges
1. Opportunities
It has been shown on a number of occasions that the policy of flexible diplomacy is helping the nation expand its international space, as well as safeguard our national dignity and the wellbeing of the people. The international community, having noted the improvements in cross-strait relations, has been more flexible over its Taiwan stance. The examples illustrate that improved cross-strait relations are indeed benefiting Taiwan’s diplomatic work.
The main thrust of our diplomatic work is to create an external environment that is more conducive to the nation’s overall development. Everyone living in this land has a shared destiny and a shared vision for the nation’s diplomatic prospects. We should put aside our differences and work together. While flexible diplomacy may not be a panacea for all our diplomatic problems, it is the best option for looking after Taiwan’s national interests. On the one hand, we hope that mainland China can accommodate the desire of the people of Taiwan for greater involvement in the international community, and show more good will in this respect. On the other hand, we hope that the public here will rationally and pragmatically view this new diplomatic approach with Taiwan’s best interests in mind, and refrain from wanting to throw the baby out with the bathwater when some incident or other leads them to believe that this policy is the wrong way to go.
2. Challenges
Mainland China still refuses to admit that the Republic of China (Taiwan) exists in the international community. Therefore, we shouldn’t expect mainland China to be willing to negotiate and cooperate with Taiwan on the diplomatic front. The government of the Republic of China (Taiwan) is very aware that it is not an easy task for the two sides to achieve all-out reconciliation in just short period of time, since we have competed fiercely with each other in a diplomatic tug-of-war for decades. However, a cross-strait “diplomatic truce” is an important step for establishing mutual trust and paving the way for normalizing relations. As long as the truce holds long enough for both sides to show sufficient good will, then the odds of solving cross-strait problems are much better.
When carrying out flexible diplomacy in the years ahead, the government will follow developments closely and remain vigilant. We are not being unrealistic and will not drop our guard. In his New Year remarks this year, President Ma said that, even though the thawing of cross-strait relations can bring added benefits to Taiwan’s diplomatic work, the government will not base its relations with other countries solely on developments in cross-strait relations. Indeed, cross-strait relations and foreign relations are equally important, and we must find the right balance. They complement each other and should make equal progress, rather than one coming at the expense of the other.
V.Future Directions
Under the guiding principles of flexible diplomacy, MOFA has adopted the following approaches to its diplomatic work:
1. Consolidate relations with diplomatic allies
For over a year now, Taiwan and mainland China have for all intents and purposes stopped vying for the recognition of each other’s allies. However, MOFA is not taking this development for granted and remains vigilant. In the future, more effort will be made to consolidate the cordial and substantive relations Taiwan enjoys with its diplomatic allies, including enhancing high-level mutual visits, and youth and cultural exchanges, as well as promoting various cooperative projects with Taiwan’s allies.
2. Foster substantive relations with non-diplomatic allies
Flexible diplomacy has created a favorable external environment for Taiwan to enhance its substantive relations with countries that are not diplomatic allies. MOFA is seizing this opportunity to foster greater substantive exchanges and cooperation, in a variety of areas, with these countries. In addition to the traditional areas of politics and the economy, MOFA is striving to gain better treatment for the people of Taiwan as the government promised, such as through visa-waiver programs, being able to exchange Taiwan’s driving licenses for foreign licenses without the need for tests, and youth working holiday agreements.
3. Seek pragmatic ways to further participate in international organizations and activities
Given the opportunities arising from the cross-strait rapprochement, and having reviewed the situation at home and abroad, MOFA is seeking to gain participation in those functional international organizations which are directly related to Taiwan’s overall development and national interests. At this stage, we have given top priority to the United Nations Framework Convention on Climate Change (UNFCCC) and International Civil Aviation Organization (ICAO). Moreover, MOFA will make active contributions to those inter-governmental organizations in which Taiwan already participates, and will help Taiwan’s NGOs build up closer relations with major international NGOs (INGOs). Combining the efforts of the government and private sector will allow us to raise Taiwan’s international status.
4. Promote cultural diplomacy
President Ma has emphasized on numerous occasions that flexible diplomacy is rooted in pragmatism, and its core component is soft-power. Culture and art are a common language shared by all mankind, and can effectively bridge national boundaries and foster mutual understanding. The ethnic Chinese culture with uniquely Taiwanese characteristics that has developed in Taiwan is appreciated and admired by the international community. In the future, MOFA will take advantage of the nation’s cultural soft-power, which is replete with Taiwan’s innovation and vitality. This approach can also help Taiwan boost its positive image abroad and allow other countries to gain a better understanding of Taiwan’s folk arts, customs and values, as well as earn greater recognition of and support for Taiwan.
5. Implement humanitarian diplomacy
Taiwan’s humanitarian diplomacy is another form of soft-power. In short, it aims to deepen Taiwan’s relations with recipient countries through providing emergency rescue and relief, as well as humanitarian aid, and connecting and working with the relevant organizations in the international community so as to raise Taiwan’s national profile. Taiwan has outstanding medical teams, active volunteer groups and a generous private sector. These three indispensible pillars underpin our humanitarian aid efforts. MOFA will continue to place great emphasis on humanitarian diplomacy and fulfill Taiwan’s obligations as a global citizen.
6. Help revitalize the economy
To put into effect President Ma’s policy directive of “paving a way for Taiwan’s economy through flexible diplomacy,” MOFA will strive to sign agreements on avoidance of double taxation, investment guarantee agreements and free trade agreements with other countries, so as to create new overseas business opportunities for the people and enterprises of Taiwan. In addition, MOFA has made expanding economic and trade opportunities a core component in evaluating ROC embassies and representative offices. These embassies and representative offices have to draw up plans, collect business information, help Taiwan’s companies participate in trade fairs and seek out global government procurement opportunities.
7. Carry out organizational reform
In line with the Executive Yuan’s work toward organizational reform, MOFA will follow the schedule established by the Task Force for Organizational Reform of the Executive Yuan and continue gradually making detailed plans and implementing various complementary measures that allow us to carry out our diplomatic work more effectively. These include the design of organizational structure, planning office layout, handling budgets, adjusting personnel quotas, safeguarding employee rights, amending regulations, integrating information, and so forth.
VI.Conclusion
Our diplomatic work needs to be handled pragmatically. Taiwan must not only keep an eye on world affairs, but must also bear in mind how the world perceives Taiwan. Under the principle of flexible diplomacy, the government of the Republic of China (Taiwan) maintains that both sides across the Taiwan Strait should face reality and cease squandering resources unnecessarily through bitter rivalry. By so doing, our diplomatic resources can be used sensibly in ways that maximize the benefits for the 23 million people of Taiwan, as well as safeguard Taiwan’s national dignity in the international community.
The government has reiterated on many occasions that Taiwan is no longer a trouble maker, but a peace maker, and that Taiwan today is no longer engaged in dollar diplomacy or checkbook diplomacy, but rather in decent diplomacy and humanitarian diplomacy. Although we still face many obstacles and challenges on the path ahead, MOFA will press ahead in the knowledge that we are on the right track and will never look back.
Esteemed legislators, Taiwan’s international status is very unique, and all our diplomatic achievements to date have been hard won. I fully understand your hopes for our diplomatic work, and my staff and I will spare no effort in fulfilling the mission entrusted in us, so as to meet the expectations of the people of Taiwan. Your comments would be greatly appreciated. Thank you.