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TRANSCRIPT
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Samenwerkingorganisatie
diplomatie
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modernisering
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NetwerkorganisatieKennis
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RegionaliseringCo-locatie
Verbinding
hybriditeit
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Sam
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Sociale media
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functie samenwerking opzoeken
VerbindenOnderhandelen
Representeren
Regionaliteit
Modernising Dutch diplomacy
Progress report by the Advisory Committee on Modernising the Diplomatic Service
Pane
ls
bz
‘dean’
bz
bz
inte
rnat
iona
le
Samenwerkingorganisatie
diplomatie
virt
uele
ruim
te
virtuele ruimte
diplomatie
modernisering
modernisering
modernisering
beleidskernherv
orm
ing
herv
orm
ing
invu
lling
regionaliteit
voorbeeldrol
bezu
inig
inge
n inzet
inzet
Burg
er
inze
t
functie
inzet
ruimte
ruim
te
ruimte
ruim
te
ruimte
regeerakkoord
professionaliteitvert
rouw
en
vert
rouw
en
vert
rouw
en
func
tie
func
tie
ministeriem
inis
terie
min
iste
rie
vertegenwoordigingen
vertegenwoordigingen
uitvoeringsorganisatie
orga
nisa
tievo
rmen
organisatievormen
organisatievormen
maatwerkmaatwerk
maa
twer
k
postennet
postennet
post
enne
t
postennet
dubbeling
bezu
inig
ings
opdr
acht
bezu
inig
ings
opdr
acht
netw
erk
netw
erk
hybr
idite
it
bz-o
rgan
isat
ie
bz-organisatie
bz-organisatieInte
ract
iePr
ofes
sion
alite
it
BurgerPresentie
NetwerkorganisatieKennis
virt
uele
ruim
te
RegionaliseringCo-locatie
Verbinding
hybriditeit
ruimte
inzet‘dean’
Sam
enw
erki
ng
Sociale media
bz Digitalisering
functie samenwerking opzoeken
VerbindenOnderhandelen
Representeren
Regionaliteit
Modernising Dutch diplomacy
Progress report by the Advisory Committee on Modernising the Diplomatic Service
ContentsIntroduction 4 Summary 6
Phase 1: exploratory study 8
Phase 2: in-depth study 142.1 Basic principles 142.2 A modern Dutch diplomatic service 182.3 Elaboration 20
Phase 3: assessment 27
Phase 4: recommendations and comments 28
Appendices• TermsofReferenceoftheAdvisoryCommitteeonModernisingthe 34 Diplomatic Service • Listofpersonsinterviewed(notavailableinEnglish) 37• Literature 43• Trendsindiplomacyandmissionnetworks:asurveyofeightforeign 45 diplomatic services
4 | Modernising Dutch diplomacy
Introduction
Inspring2013theMinisterofForeignAffairsrequestedtheAdvisoryCommitteeonModernisingtheDiplomaticServicetodrawupaprogressreport.Thereport,whichoutlinestheCommittee’sinitialfindingssinceitwasestablishedon9March2012,1 is intendedasinputintoreflectionsonthereformoftheMinistryofForeignAffairs.TheCommitteeemphasisesthatitwillelaborateonitsfindingsandcheckthemindialoguewithstakeholderswithinandoutsidetheMinistry,andinthelightoffurtherstudy.
TheCommitteeaimstoprovidetheMinisterofForeignAffairswithguidelinesonthemodernisationofthediplomaticservice.ItsadviceisthereforebasedonmeasuresdesignedtoensurethatDutchinterestsintheinternationalarenaaredefendedinthebestandmosteffectivemannerpossible.PursuinganambitiousinternationalagendainwhichDutchinterestsareparamount,asstatedinthepresentcoalitionagreement,mustbeaccompan-iedbyaproperlyequippedforeignserviceandappropriateinstruments.TheCommitteetakestheviewthatthemodernisationprogrammenecessarytoachievethis,asoutlinedbelow,willrequirefinancialinvestment.Itthereforerecommendsthatthecostsbeestimatedandacost-benefitanalysiscarriedout.2
Thisreportisdividedintofourparts.Part1brieflyoutlinestheCommittee’sfindingsafteraninitialexploratoryphaseuptomid-2012.InPart2theCommitteeexpandsonthesefindingstoproduceaframeworkformodernisingthediplomaticservice.Part3sketchesoutthenextphaseofassessment.Finally,Part4containsspecificrecommendations.
Thestructureandtimingofthisprogressreport–theCommitteeexpectstocompleteitsassignmentbythefirstquarterof2014–aredeterminedbypoliticalreality.TheRutte-Asschergovernment’scoalitionagreementnotonlygivestheMinistryofForeignAffairsaclear,strongpolicymandate,butalsorequiresittosaveagreatdealofmoney.Duringthedebateonthebudget,MinisterTimmermansagreedtopresentavisiononmoderndiplomacyandthenetworkofmissionsbythesummer.TheCommitteethereforewishesinthisreporttomakeanumberofearlyrecommendationsonthemodernisationofDutchdiplomacy.
1 The Committee has been appointed for a two-year period. Its brief is to produce ‘an in-depth analysis of the challenges facing the Ministry of Foreign Affairs and the diplomatic service, in light of the new thinking on diplomacy which has been evolving in other countries.’ The focus is on (1) the diplomat of the future, (2) economic diplomacy and (3) processes of change within the organisation. The members of the Committee – Arthur Docters van Leeuwen (chair), Ko Colijn, Tineke Lodders-Elfferich, Pieter Marres and Victor Schoenmakers – were chosen for their expertise in various fields relevant to diplomacy and their years of direct experience with the Netherlands’ network of diplomatic missions. The Committee’s full terms of reference are set out in an appendix to this report.
2 See recommendations and comments (p. 28).
Modernising Dutch diplomacy | 5
ThisisnottosaythatnoactionhasyetbeentakensincetheCommitteebeganitsworkinMarch2012orthatnothingishappeningattheMinistry.TheCommitteecanseethateffortsarebeingmadeinmanyplacesandfieldstocreateanorganisationthatismoreinkeepingwithtoday’srealities.Promisingexamplesincludeco-locationofmissions,thecreationofcollaborativedigitalworkspaces,intensiveinteractiveuseofsocialmediaatanumberofmissions(suchasBucharest,ShanghaiandWashingtonDC)andMinistrydepartments(suchastheMultilateralOrganisationsandHumanRightsDepartment)andexperimentswithregionalisation,includingatpolicylevel(e.g.theCentralAmericanandBalticregions).TheCommitteeispleasedtonotethat,despitethechallengestheMinistryiscurrentlyfacing,manypeopleareworkingenthusiasticallytomodernisetheirorganisation.
Thefollowingquotefromthecoalitionagreementdeservesspecialmention:‘From1January2013theForeignServicewillfallundertheSeniorCivilService.’(p.19,Englishtranslation).ThechairoftheCommitteehasbeenaskedtoproducehisownadvisoryreportonthedetailedimplementationofthisdecision.
6 | Modernising Dutch diplomacy
Summary: modernising the diplomatic service
Inthecourseofitsactivitiestodate,theCommitteehasbeguntoenvisageaforeignministrythat:
• essentiallythinksandworkslikeanetworkorganisation:openandflexible,andorganisedintogroupsofvaryingcomposition,aroundcross-borderregions,themesorinterests;
• cancopewiththehybridnatureof21st-centuryrelations,iscapableofnotonlyclassicbutalsonetworkdiplomacy(aswellascombinationsofthetwo).ItmakesthisexceptionalprofessionalexpertiseavailabletowhoeverwishestoserveDutchinterests;
• operatesinasinglevirtualspacetogetherwithitsdiplomaticservice;
• focusesonworkinginpartnershipwithotherministries,governmentbodies,businesses,civilsocietyorganisationsandindividuals,activelyseekingsuchpartner-shipsandensuringtheirquality;
• maintainsregular,systematiccontactsintheNetherlands,centredonacouncilworkinginthegeneralinterestandchairedbytheMinister,aswellaspanelsdealingwithspecificareas,whichconcludeandmonitoragreementsonthestandardofperformanceexpectedoftheMinistry;
• systematicallyensuresthattheDutchpublicisawareofitsactivities;
• iseasilyaccessibletobothDutchcitizensandnationalsofothercountries,primarilyonlinebutalsothroughhelpdesks.
Tothisend,theMinistryshouldcreatethefollowingorganisational,ITandmanagementconditions:
• Trainingthatfacilitatesandmaintainsprofessionalexpertiseofexceptionalquality.Thegoalshouldbetotrainfullyfledgeddiplomatsinsevenyears,withrefresherandspecialisttrainingthereafter.Therewillbeadiplomaticacademy,withadean.TheacademywillbeaccessibletoanyonewiththerightqualificationswhoservesDutchinterestsabroad,whetherinthegovernment,businesscommunityorcivilsocietyorganisationsorinstitutions.
• Apromotionandplacementpolicythatfocusesonassessmentanddevelopment,withaheavyemphasisonacquiredspecialistknowledgeandexpertise.
Modernising Dutch diplomacy | 7
• SecureITsystemsthatallowinformalinternalcommunicationandworkingmethods,suchasprojectgroupsthatcanextendacrosstheworld.
• Policythatisdrawnupascloseaspossibletotheplacewhereitisintendedtomakeanimpact.StrategyandsupervisionwillremaininTheHague,however.
• Managementbasedontrustandplacingmaximumresponsibilityatlowerlevelsofthe
organisation.Managementruleswillbereviewedregularly.
• Thinkingonthecompositionandformofthenetworkofmissionsisbasedonamodelofregionalunitscontainingvariouslocalmissions.Thiswillallowefficient,effectivelocalrepresentationstobemaintained.Theaimistobephysicallypresentinasmanyplacesaspossible.Localembassiescompletewithchanceriesandresidenceswillnolongerbecreatedandmaintainedasamatterofcourse.Althoughambassadorshipswillbemorewidelyavailable,reflectingahigh-levelfunction,theywillnolongerbesynonymouswithprestigiousresidencesandchauffeurs.
Thehorizonmayseemalongwayoff,butbytakingboldstepsforwardtheMinistrycanquicklymoveclosertoitsgoals.
8 | Modernising Dutch diplomacy
Phase 1: exploratory study
InJune2012,attherequestofthethenSecretary-General,theCommitteepresentedanexploratorystudyforinternaluse,containingitsinitialfindings(outlinedbelow).AlthoughtheCommitteeemphasisedthatthereportwasbasedonfirstimpressionsandthatfurtherstudywouldbeneeded,itmadeanumberofobservationsandrecommendations,arrangedundersixheadings,or‘pillars’.TheCommitteetentativelyconcludedthatthemodernisati-onprogrammedescribedinthesepillars(seebelow)wouldrequirefinancialinvestment.GiventhecutbacksintroducedbythefourthBalkenendegovernmentandthenewcutsimplementedbytheRutte1andRutte-Asschergovernments,theCommitteeisawarethatitwillbedifficulttofindthenecessaryfunds.However,itconsiderssuchfundingessential.
1st pillar: Diplomacy as a profession
Diplomacy is a profession. Diplomacy must be defined, communicated and maintained.
Itisessentialtocraftaclearprofileforthediplomaticprofessionthatspeakstoeveryonewhoisorwishestobeinvolvedininternationalactivities.Diplomatswillonlybeincludedinsuchactivitieswhentheirexpertiseisevidenttootheractors.ProfessionalswithstrongDutchrootsandknowledgeoflocalconditionsandcustomsinothercountriesareindispensablefortheNetherlands.
Diplomats’professionalexpertisemustbecontinuallyandvisiblymaintained.SuccessmustbeobjectivelyquantifiableinordertofurtherenhanceDutchdiplomats’quality,focusandeffectivenessandtokeeptheiraddedvaluevisibleanddemonstrable.
TheCommitteenotesthatthisfirstpillarwillrequirefurtherstudy,anddiscussesitinmoredetail in phase 2.
2nd pillar: Position and profile
The Ministry of Foreign Affairs must have strong roots in central government and in society.
Foreignpolicyisnolongerastand-alonesectorwithaclearboundarybetween‘home’and‘abroad’.Domesticpolicywithoutaninternationalelementisnowathingofthepast.Thebusinesscommunityandgeneralpublicareactiveinternationallytoagreatandgrowingextent.TheCommitteenotesthattheMinistryhasceasedtobeautomaticallyinvolvedinallactivitiesrelevanttoitswork.Atinterministeriallevel,inParliament,inthemediaandamongtheDutchpublic,itisnolongeragiventhattheMinistrynaturallyhasapositionofsignificanceandaclearcontributiontomake.
TheMinistrymustthereforemakesystematiceffortstodemonstrateitsaddedvalue.Tothisend,itmustincreaseitsoutsidevisibility,notonlyinTheHaguebutalsoelsewhere.
Modernising Dutch diplomacy | 9
TheCommitteenotesthatthissecondpillarwillrequirefurtherstudy,anddiscussesitinmoredetailinphase2,undertheheading‘Interaction’.
3rd pillar: The internet and digitisation
Cyberspace must be conquered.
Digitisationandtheinternetarethetoolsofchoiceinaninternationalenvironmentmadeupofeverincreasingnumbersofcontactsandcoalitionsthatarechangingincreasinglyrapidly.TheMinistryofForeignAffairsshouldbealeaderinspottingnewnetworksandthetrendswithinthem.
Tobeabletooperateaseffectivelyaspossibleinthiscontext,theMinistrymustbecomeanorganisationwithasinglevirtualspaceofitsown,easilyaccessibletoanyoneinoroutsidetheorganisation.Theinternetmustbethepublic’smaingatewaytotheMinistry’sservicesandexpertise.Itisalsoanessentialchannelforactivecommunicationwiththepublic.Useofsocialmediaasamatterofroutinewillprovideopportunitiesforinteractionanddialoguewhichmustbeseized.Amongotherthings,asinglevirtualspacewillalsoensurecontinuitywithintheorganisationbyunlockingaccesstotheMinistry’sinstitutionalmemory.Especiallyinanorganisationwherestaffregularlychangejobs,itisawastedopportunityifpeople’sexperienceandknowledgearelostwhentheyaretransferredelsewhere.Thesinglevirtualspacewillenablethisproblemtobetackled.TheexternalcontactsoftheMinistryanddiplomaticserviceinparticulardeservesuchcontinuity.
4th pillar: Substantive questions and dilemmas
Some key questions in Dutch foreign policy need clarification.
ForeignpolicyrisksbeingfragmentedamongdifferentactorsinTheHague.WithinthisprocesssomesubstantivequestionsandunresolveddilemmastouchonthedefinitionoftheroleoftheMinistryofForeignAffairsanditsdiplomats.
A. Economic diplomacy
TheCommittee’sfirstprogressreport,submittedtotheMinisterinJune2012,includedapassageoneconomicdiplomacy.Atthetime,thequestion‘Whatiseconomicdiplomacy,andwhatroleshouldtheMinistryofForeignAffairsplayinit?’stillneededtobeasked.
TheexploratorystudybytheCommitteeincludedanumberofrecommendations:• TheMinistryofForeignAffairsshoulddevelopaclearervisionof‘economic
diplomacy’,whichinthepasthastoooftenbeenexpressedinwoollytermslike‘theMinistry’seconomicfunction’.
• Economicdiplomacyshouldbebroaderthanjustcommercialdiplomacyorpromotionofexportsortrade.AmorecomprehensivepromotionofDutcheconomicinterestsinanycaseincludes‘Hollandbranding’andaccesstorawmaterials,highlyskilledlabourandinternationalpublicgoods.
10 | Modernising Dutch diplomacy
• ResponsibilityforcoordinatingeconomicdiplomacyatDutchmissionsshouldbeassignedtotheambassador.Missionsectionsshouldbeintegratedtoencouragecooperationandcohesionatmissions.ManagementofthenetworkofmissionsispartoftheMinistry’scorebusiness.
• Steeringmechanisms,suchasthree-wayworkplanningbetweentheMinistryofForeignAffairs,theMinistryofEconomicAffairsandtheprivatesector(andifnecessaryincludingtheMinistriesofDefenceandofInfrastructureandtheEnvironment),regularconsultativeforumsandframeworksforassigningthemissions’tasks,shouldbeintroducedorperfected.
SincethisexploratorystudybytheCommittee,someprogresshasbeenmadeinaddressingtheinitialquestion,andorganisational,conceptualandpolicymeasureshavebeentaken,ornewideasintroduced.
• Organisational and procedural measures:TheRutte-Asschergovernment’scoalitionagreementclearlyconfirmstheroleoftheMinistryofForeignAffairs,asreflectedinthetransferoftheDirectorate-GeneralforForeignEconomicRelations(DGBEB)fromtheMinistryofEconomicAffairstotheMinistryofForeignAffairs.
• Conceptual measures:Initsdiscussions,theCommitteerepeatedlyheardthateconomicdiplomacyshouldmeanmorethansimplypromotingexportsorpromotingforeigninvestmentintheNetherlands,andthattheconceptshouldbeapproachedinbroadterms.
• Policy measures and instruments:Economicdiplomacyisbeingexpanded,butisstillinneedofimprovement.RepeatedrecommendationstotheCommitteeinthisconnecti-onare:- abroadlyratherthannarrowlybaseduseofeconomicdiplomacy;- afocusontheNetherlands’imageabroad:publicdiplomacy(‘Hollandbranding’);- customisedsolutions:insomecountrieseconomicdevelopmentisbusiness-driven;
inothersitisgovernment-driven,andadifferentapproachisrequiredineachcase;- choiceofcountries:beselectiveandfocusonpromisingoremergingcountriesand
regions.Sevenoftheworld’stenfastest-growingcountriesareinAfrica;- economicmissions:thestrategictravelagendaisagoodfirststep,butitneedstobe
furtherdeveloped,usingsmarterprinciples;- qualityofservice:thismustbecomelessdependentonindividuals,andsothe
standardmustberaisedacrosstheboard.Thebasisisgood(ascoreof8.6fromFenedex3),butstandardsmustbedevelopedforthewholenetwork.
3 Set up in 1954, Fenedex is a private association of Dutch exporters and other internationally operating businesses (www.fenedex.nl).
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B. Position and funding of development cooperation
TheJune2012exploratorystudyincludedapassageonthepositionandfundingofdevelopmentcooperationanddefencewithinforeignpolicy.Atthetime,theCommitteenotedthefollowing:
ThechangingenvironmentwithinwhichdevelopmentcooperationisconductedanddecliningsupportforitamongtheDutchpeopleraisethequestionwhetherthecurrentbudgetaryrelationshipsbetweendevelopmentcooperation,defenceandforeignpolicyarestilljustifiable.TheCommittee’simpressionisthattheMinistryanditsnetworkofmissionsarefacingreducedfinancialfreedomcausedbyalackofflexibilityinshiftingresourcesbetweentheseareasofactivity.Differentwaysofstrikinganewbalanceamongthesebudgetscouldbeconsidered;intheCommittee’sview,alessrigidapproachmightpossiblyalleviatethecurrentstrain.Anotherpressingquestion,inviewofthelimitedbudgetaryresourcesforthemissionsandbilateralinstruments,iswhetheranotherlookshouldbetakenattheNetherlands’contributionstotheUNorganisations.
Therehavebeenanumberofdevelopmentssincethisinitialexploratorystudy.Thefieldofdevelopmentcooperationischangingrapidly:notonlyinitsdeployment,butalsoinitsmeaningandrole.Thisisapparentfromanumberofchoicesmadeinthecoalitionagreement:
• theappointmentofaMinisterforForeignTradeandDevelopmentCooperation,toaffirmtheimportanceofthelinksbetweenthetwopolicyfields.Giventhatthisportfolioisnowheldbyasingleperson,theCommitteeseespotentialforaconflictofministerialinterestsbetweentradeand‘moral’issues;
• theestablishmentofa€750millionrevolvingfund(fortheperiod2014-2016)tosupportinvestmentindevelopingcountries,especiallybySMEs;
• theestablishmentofa€250million‘peacefund’.Thisfund(possiblyinconjunctionwiththeexistingstabilisationfund),whichhasbeenintroducedbytheRutte-Asschergovernment,maylaythefoundationsforanew3-Dprofile4inforeignpolicybasedonarticles90and97oftheConstitution;
• thedecisiontocutthedevelopmentcooperationbudgetby€1billion.
Indrawingupitsfinalreport,theCommitteewilllookinmoredetailatwhatthesedevelopmentsmeanforthediplomaticserviceanditsmodernisation.TheCommitteeisawarethatthepolicydocumentbytheMinisterforForeignTradeandDevelopmentCooperationonDutchtradeanddevelopmentcooperationpolicyhasyettobefinalisedatthetimeofwriting.
4 Defence, Diplomacy and Development.
12 | Modernising Dutch diplomacy
C. Position of the EU and the EEAS
ThethirddilemmatheCommitteeidentifiedinits2012exploratorystudywastherelati-onshipbetweentheMinistryofForeignAffairsandthedevelopmentoftheEuropeanExternalActionService(EEAS).ItwonderedtowhatextenttheexternalactivitiesoftheEU,especiallytheEEAS,complementthoseoftheMinistryofForeignAffairs,andtowhatextentthereisduplicationofeffort.ClearlytheEEASisstillevolving.ButwhatcantheMinistryexpectoraskofitatpresent?
AsecondvisittoBrusselsandadditionaldiscussionssinceJune2012havelefttheCommitteeevenmoreconvincedthattheEEAScannotprovideacompletealternativetotheMinistryofForeignAffairsintheshortormediumterm.AlthoughtheEEASisnowlargerthantheMinistry,itdoesnotyethaveasufficientlystablebasistobuildon.TheaddedvalueoftheEEAStotheDutchgovernmentcannotmatchthatofourownmissions.
DifferencesincultureandinterestsbetweentheEuropeanCommission,theEEASandEUmemberstatesarefrustratingtheachievementofasharedideologyandagenuineEUforeignpolicy.TheEEASprimarilyworksfortheHighRepresentativeandtheEuropeanCommission,andsoitsorganisation,workingmethods,designandcultureareareflectionofitsheadquartersinBrussels.Asidefromthisalreadycomplexreality,servingtheinterestsof27differentcountriesisanalmostimpossibletask.TheCommitteethereforerecom-mendsthatopportunitiesforcooperationwiththeEEASbeconsideredgraduallyandwithoutunduehaste,orexcessivelyhighexpectations.
AlthoughtheCommitteedoesnotseetheEEASbecominganalternativetobilateralmissionsinthemediumterm–orperhapseverinsomeareasofactivity(suchaspromotionofDutchtradeandsupportingDutchbusinessesabroad)–itdoesseeopportunitiesforfurthercooperationinspecificareas.Examplesinclude:
• politicalreporting• crisis aid• consular cooperation• EEASsupportfacilitiesforDutchdiplomatsincountrieswheretheNetherlandshasno
missionsofitsown.IntalkswiththeEEAS’sdeputychair,theCommitteelearnedthatanexperimentofthiskindhasbeenlaunchedinthecaseofSpain.TheCommitteerecommendsthatthisbemonitoredcloselyandthatasimilarDutchexperimentbelaunchedshouldtheopportunityarise.
Asforpoliticalreporting,theNetherlandscouldbenefitfromtheactivitiesoftheEEAS,whosegreatercapacityputsitinabetterpositiontogatherandprocessinformation.ThiscanbemadeavailabletoaDutchembassy,whichcouldthenassessthereportfromtheNetherlands’pointofviewandaddanyinformationofitsown.FormanythinlystaffedDutchmissionsthiswouldbeanincreasinglywelcomeadditiontotheirowninformationsupply.
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5th pillar: Structure of the network of missions
In times of regionalisation and digitisation, the network of missions needs the best possible
structure.
ThestructureofthenetworkofmissionshasanobviousimpactontheeffectivenessofDutchdiplomacy.InresponsetothefinancialcutbacksintroducedbythefirstRuttegovernmentin2011andwiththesupportoftheHouseofRepresentatives,theMinistryofForeignAffairshasoptedforaleanbutextensivenetwork,attemptingtomaintainaDutchpresenceinasmanyplacesaspossible,withouttakingafundamentallookattheorganisati-onofthenetworkasawhole.
TheCommitteenotesthatthisfifthpillarwillrequirefurtherstudy,anddiscussesitinmoredetail in phase 2.
6th pillar: Leadership and management of the network of missions
Professionals need sufficient freedom to do their jobs. They need to work on a basis of trust, not
of fixed instructions. The management burden must be reduced.
TheCommitteenotedthatthemanagementburdenattheMinistryofForeignAffairsisexcessive.Itheardcomplaintsaboutthisinnearlyallitsconsultations.IntheCommittee’sview,onereasonwhythemanagementburdenhasgotoutofhandisthetrendtowardsalargenumberofsmallmissionsindirectcontactwithTheHague.Inaddition,managementisincident-oriented,andisinsufficientlyandinconsistentlybasedontrustandindividualresponsibility.Staffreductionsatthemissionsareonlymakingthesituationmoreurgent.TheCommitteehaslookedatthestructureoftheorganisationinmoredetailinphase2.
Conclusion
Inthelightofthisinitialexploratorystudy,theCommitteedecided,inthisprogressreport,tolookinmoredetailatsomeoftheareasmentionedabove:pillar1(professionalism),pillar5(structureoftheorganisationandnetworkofmissions)andpillar2(interaction-positionandprofile).Togethertheseprovideathree-pointframeworkformodernisingthediplomaticserviceasenvisagedbytheCommittee.
InthisconnectiontheCommitteehasheldmanytalksandconsultedtheavailableliteratureandreports,includingtheScientificCouncilforGovernmentPolicy(WRR)report‘AttachedtotheWorld’,theClingendaelreport‘FuturesforDiplomacy’,theconferencereport‘TheForeignMinistryataTippingPoint’,theUSStateDepartment’s‘QuadrennialDiplomacyandDevelopmentReview’(QDDR)andanexploratorystudyofeightdiplomaticservicesconductedbytheMinistryofForeignAffairsattheCommittee’srequest.5
5 See Appendix 3 (Literature).
14 | Modernising Dutch diplomacy
Phase 2: in-depth study
2.1 Basic principles
Inits2010report‘AttachedtotheWorld’,theScientificCouncilforGovernmentPolicy(WRR)notesthattoday’sworldcanbestbedescribedas‘hybrid’.IntheCouncil’sopinion,thisnotionisbasedontwofundamentaldevelopmentsthatcallforareviewofforeignpolicy.TheCouncil’sanalysisalsoprovidesavaluablepointofdepartureforrethinkingormodernisingthediplomaticservice.
TherearetwodimensionstothehybridworlddescribedintheWRRreport.Ontheonehandthereisthe‘traditionalworld’ofgeopoliticsandnationstates,inwhichafundamen-talshiftintheglobalbalanceofpowerisnowtakingplace.WiththeriseofsuchcountriesasChina,IndiaandBrazilalongsidethosewithatraditionallystrongpowerbase,wearenowlivinginamultipolarworldinwhichsuchcountriesarerapidlygaininginfluenceandcomingtotheforeasnewleadersontheworldstage.Thisdevelopmenthasbeenenhan-ced,andhasbecomemorevisible,astheeconomiccrisisintheeurozonepersists.Andwecansensethis:theNetherlandsisbecomingasmallerpartofalargerworld.
Atthesametime,wehaveseentheemergenceofa‘networkworld’,withexplosivegrowthin,andcloselinksbetween,stateandnon-stateactorsandareasandchannelsofcooperati-on.Increasingly,thisistakingplaceininformalnetworks,andonavaryingscale.Nationalbordersarenolongernaturallimitstointeraction.Thesenetworksarespreadingacrosstheworld,incommunitiesthatmakecontactthroughsharedthemes,interestsorinterfaces,butoftenbecomevisibleinaregionalcontext.Inthisnetworksociety,theclassichierarchi-calorganisationofthestateanditscitizensislosingitsrelevance.Theincreasingcomplexi-tyofthenetworksocietyhashadaprofoundimpactonthepositionofgovernmentsandtheirwaysofworking.Nationalbordersarebecomingblurred.What’smore,thesedevelopmentsaretakingplacefasterandmoreextensivelythaneverbefore.
Inotherwords,weareseeingaparadigmshift:inadditiontothephysicalworlddictatedbytheclassicalrulesofinternationalrelations,thereisnowalsoavirtualnetworkworld–andthetwoareinteractingclosely.InThe Rise of the Network Society(1996),thefirstpartofhisinfluentialtrilogyThe Information Age,ManuelCastellsdescribeshowthedominantcontextinwhichmuchofhumanactivitytakesplacehaschanged.Drivenbytechnologicalinnovation,especiallytheriseoftheinternetandothercommunicationtechnologies,actionsandinteractionsareincreasinglydetachedfromanyspecificgeographicallocation.Thesharingofinformationisnolongerconfinedtoaphysicalplace(the‘spaceofplaces’),butflowsthroughnetworks(the‘spaceofflows’),solidifyingandbecomingmanifestatvarious places and times.
Amongotherthings,thishashadamajorimpactonhowtheworldeconomyisstructured.Multinationalbusinesses,financialinstitutionsandflowsofcapital,aswellastheproducti-
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onofconsumergoodshavebecomedetachedfromtheirphysicallocationsandarenowdividedovernumerousplacesandseveralcontinents.Whereasbusinessesoncehad‘foreignoperations’,theyarenowscatteredovermanycountriesandareonlytiedtoagivenlocationforadministrativepurposes.Andwhatistrueofbusinessesisequallytrueofothertypesoforganisations.Thusterrorist‘organisations’arenowadayschieflynetworksofsmallcellsthatarescatteredacrosstheworldandmainlykeepintouchonline,boundtogetherbyagoalorsourceofinspirationthattheysharetoagreaterorlesserextent.
BesidesCastells’geographicaldetachment,anothertypicalfeatureofthenetworkworldisthechangeabilityortransienceofrelationshipsinandbetweennetworks.Thereis,sotospeak,a‘liquid’modernityalongsidea‘solid’modernity(ZygmuntBauman,2000).Organisationsandhumaninteractionsarenow,inasense,nomadic:theymove,theyaretemporaryandtheyarenottiedtoanyparticularplace.Thisisreinforcedbyathirdfeatureofnetworksinthe‘spaceofflows’:thephenomenonof‘unplanneddynamics’withinnetworks.Thisisinherentinthemanifestationofnetworksashorizontal,multiplestructureswithoutanyclearhierarchyorleadership.Reciprocalandtemporarylinkscandevelopinfinitelywithinthesenetworks,forexampleontheinternet.Concentrationsoraccumulationsofsuchlinks,orplaceswhereflowsmeet,thenappearwithinthenetworksashubsorcentresofgravity.Allthisleadstoagreatvarietyinnetworksandever-changingmanifestationsofnetworksincentresofgravity(whetherinform,placeortime).
Whatdoesthismeanforstatesandgovernments?Forgovernments,thedevelopmentofthishybridworldwithitsnetworkdynamicshasledtoasituationinwhichthestatenolongerhasaforeignpolicy.Whatusedtobedomesticaffairshavenowacquiredaforeigncomponent,andviceversa.Allkindsofgovernmentbodies–ministries,agencies,inspectoratesandsoon–nowoperateinternationally,withtheirownagendasandpolicies.Theyhavetheirownautonomouscross-bordernetworks.Intheinternationalarena,contactsarenolongermaintainedonlythroughheadsofstate,foreignministersordiplomaticchannels.Anne-MarieSlaughter,theleadingadviseronreformstotheUSStateDepartmentunderHillaryClinton,hasdescribedthissituationasthe‘disaggregatedstate’.Theresultisacomplexglobalwebofgovernmentnetworkswithoutcentralsupervisionofanykind.Whatwealsoseehereisstates’capacityfor‘softpower’–adegreeofinfluenceachievedthroughinformation,persuasivenessandaccessto,orparticipationin,suchnetworks.InthisconnectiontheWRRreportrightlynotesthatgovernmentsthatkeeptryingtocoordinaterelationswithothercountrieslikea‘gatekeeper’willbydefinitionlosetouchwithreality.Thehybridworldcallsforadifferentformofcontrolandcoordination.
Yetmanyofourgovernmentstructuresdatefromatimewhenorganisationswerelocallyanchoredandhadsufficienttimetodevelopintoinstitutionswiththeirownraisond’être,logicandfixedoutlook,withcorrespondingpatterns.InthecaseoftheMinistryofForeignAffairs,thesehavetraditionallybeenintheinternationalgeopoliticaldimension,withaclearhierarchy,fixedinstitutionalisedrelationsandfamiliar,accompanyinginternationalnetworkswithfamiliarmores.Withanorganisationandaculturethatarefirmlyrootedinthis‘fixed’orgeopoliticaldimension,theMinistryhascontinuedtooperateinthatworld,
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andbyitsrules.Ithasthusfailedtotakeaccountoftheemergenceofthenetworkworld,whosepublicandsocietalimportancehasincreasedexponentiallyoverthepastfifteenyears.ShouldtheMinistrycontinuetogivethisnewworldsuchlowpriority,thenthedebatewillnotremainlimitedtomarginalisation,butwillbeaboutatrophy,andeventuallythelossofabilitytofunctionaltogether.Itisnoaccidentthat,intheinternationaldebateontheroleofdiplomacy,therearesomewhobelievethatforeignministriesareathingofthe past.
This,then,isthemainchallengefortheMinistryofForeignAffairs.Itmustadopttwoparadigms.Itmustcontinuetomeetthedemandsofthegeopoliticaldimension,butatthesametimeadapttothoseofthenewnetworkdimension.Itmustembracebothdimensionsofthehybridworld,anditsdiplomacymustbecomehybrid.
Infact,thenotionofpolycentrismandanoverpopulated,completelyheterogeneousmarketofinternationalrelationsimpliesnotonlylossesfortheMinistryofForeignAffairs,butalsofunctionalgains.Morethaninthegeopoliticalworld,thereareopportunitiesherefordiplomatsfromsmallcountriesbecausesoftpowerandqualityareofdecisiveimportan-ceinnetworks.Beingsmallcanevenbeanadvantage,becausegeopoliticalballastisthenlessimportant.Inthisenvironmentdiplomacyisrelativelyopenandunconventional,andisaboutbeingabletooperatehorizontally.Governmentscannotaffordnottoinvestinit–ifonlytoavoidbeingtakenunawares,andcompletelyoutmanoeuvred.
Intheworldasithasnowdeveloped,nationalinterestistoanevengreaterextentachangingpoliticalselectionofgoalstobepursued.Thisselectioninvolvesamatchofinterestsandcapabilities,reflectingthenationalcapacitiesforhardandsoftpower.Thismatchdeterminesthelevelofambition,whichremainsfluid.Ambitionscanbeexpressedasresultsfromthe‘geopoliticalhalf ’ofthehybridworld:securebordersandinstitutions,safecitizens,guaranteedprosperity.Buttheycanalsobeexpressedasintendedresultsfromthe‘networkhalf ’ofthehybridworld:knowledge,standards(bothindustrialandnon-ma-terialnorms),cybersecurity,humanrights,foodsecurity,climatemanagementandsoon.
ForeignpolicyisthusthesumtotalofgovernmentactivityaimedatusingbothDutchandnon-Dutchresourcestoservethenationalinterest.TheMinistryofForeignAffairshasalessandlesscoordinatingbutmoreandmorefacilitatingroleintheorchestrationoftheseactivities,which,moreover,areincreasinglytakingplaceinapolycentricworldinwhichnon-stateactorshaveanindispensableparttoplay.ThequestionishowtheNetherlandsintendstoorganiseitsinternationalfunction.TonegotiatesuccessfullyinmultilateralforumssuchastheEUandtheUN,effectivedirectionandasound,comprehensivestrategyare needed.
Ultimately,diplomatsareasmuchaseverthesovereignrepresentativesingovernments’foreignpolicies.Inthegeopoliticalhalfofthehybridworldtheyarestillthe‘vertical’linemanagersincommunicationwithotherstates.Inthedisaggregatedstate,theirrolehasbeenreducedbytheincreasedforeignpolicyfunctionofotherinstitutions;butatthesame
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timetheroleofdiplomatshasbeenenhanced,becauseinthenetworkworldtheyarethe‘horizontal’facilitymanagersinnetworksofvitalimportancetotheNetherlands.Theyarealsoinapositiontoswitchbackandforthbetweenthegeopoliticalworldofstatesandthemanydiffuse,andsometimesinformal,internationalnetworks.Obtainingaccessandbeingaccessibletothesenetworkswillbeanindispensableprofessionalskillinthedefenceofnational interests.
Thereisthusakeyopportunityfordiplomacyattheinterfacebetweentheclassic,geopoliti-calworldofstatesandthenetworkworldwithitslackofgeographicalties,itschangeabilityanditsunplannedorunpredictabledynamics.Inthehybridworld,diplomacyisasimportantaseverasachannelforrelationships,influenceandunderstanding.Growinggeopoliticalcomplexity,theincreasingspeedanddensityofinformationflowsinonlineandothernetworks,andanevergreaterinterdependenceandneedforcollectiveactioninsuchareasastheenvironment,food,waterandinternationalcrimewillrequiremorediplomacyratherthanless.
Diplomacyisasrelevantasever,butitwillhavetodevelopintotrulyhybriddiplomacy.Thismeansthattheinstitutionalformofthediplomaticservicewillhavetoevolve.
TheCommitteebelievesthatthelevelofaggregationatwhichhybriddiplomacyshouldbedesignedistheregion.Ratherthanpreciselydemarcatedentities,regionsarenowarenaswithfluidboundarieswithinwhichactorscanoperateandagendascanbedeveloped.Thehybridworldisoftenmanifestedatregionallevel–acrossbordersandbeyondthenationalcontext–butitisnotall-embracing.Inpractice,thismeansthatoneoftheambassadorsinaregionwillbeassignedresponsibilityfortheregionaltask.
Wenowknowthatnetworks,onlineorotherwise,areattimesphysicallymanifestedandconcentratedin‘placestobe’.Thishappensatmajorconferenceson,say,humanrights,environmentaltreatiesandclimatetalks.Itcannotalwaysbepredictedwheresuchasingularitywilloccur.Ifsucha‘placetobe’shouldspringup,itisunlikelythatagivenmissioninagivencountrywillbeequippedtodealwithitalone.Greatercapacitywillhavetobeavailableintheregion.Thisiscrucial,foritispreciselyinsuchplacesthattraditionalandnetworkdiplomacycanblend.
Partofthesenetworksisabroadlocalpresencearoundtheworld;membershipof,andaccessto,anetworkareachievedlocallyandinthecourseofdirectcontacts.Thismeansbeingpresentontheground.Giventhechangeabilityandunpredictabilityofnetworks,itisalsoimportanttoidentifythechangingcentresofgravitywithinnetworks,respondandgainaccessasquicklyaspossible.Thiscanonlybedonethroughdirectrelationships.Paradoxically,buildingupthenecessaryrelationshipstakestimeanddependsonadegreeoffamiliaritywithlocalconditions.
Atregionallevel,advantagesofscalewillallowactorstooperateeffectivelyinthehybridworldanddiscoverinteractionsbetweentheworldof‘spaces’andtheworldof‘flows’.
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Withinanetworkcontextitiseasiertodeterminewhereyouneedtobe,adaptandmoveflexiblyasneeded,respondtochangingcentresofgravityandidentify‘placestobe’ingoodtime.
TheMinistryofForeignAffairsanditsnetworkofmissionswillhavetobeorganisedthusinordertorespondtothedemandsofthe21stcentury.Thisisademandingtask,andafundamentallynewone.Therequirementsforamoderndiplomaticservicebasedonregionalisationwillbediscussedinthenextsection.
2.2 AmodernDutchdiplomaticservice:fromtoday’s MinistryofForeignAffairstoaneworganisationallogicTheworldisinmotion.Itisexperiencingmajorgeopoliticalchangesandhugelyincreasedinterdependence.Broad,fluidinternationalnetworks,onlineorotherwise,havefundamentallyalteredthedynamicsoftheinternationalorder.Thisshifttoanetworkedworldhasnotreplacedthetraditionalinterstateorderbuthasaddedanewdimension–andthiswillmeanmorework,ratherthanless,forthediplomaticservice.
TheMinistryofForeignAffairswillrequireadifferentorganisationalandinstitutionalformtomeettoday’schallenges:respondingtogeopoliticalchangesbymakingcapacityandresourcesavailableonthespot,poolingandreleasingresourcesandknowledgeinordertomeetmajorcross-borderchallenges,andidentifying,joiningandactivatingnetworks.Withoutapresenceontheground,thecatalyticeffectofaccessingnetworkscannotbeexploited.Withoutoperatingonanorganisationalscalethatgoesbeyondnationalbordersandisbasedonnetworkthinking,theimpactofthenetworkworldcannotbeusedtoitsfulladvantage.Withoutaregionalcontext,theorganisationwilllacktheflexibilityandspeeditneedstorespondtothechangingmanifestationsofwhataresometimesdisruptivenetworkdevelopmentsandtechnologies.
AbriefsurveyofvariousdiplomaticservicesshowsthattheMinistryofForeignAffairsisnotaloneinthisrespect.Manycountries’foreignministriesarenowreviewingtheroleofdiplomacyinthe21stcenturyanditsfundamentalprinciples.Variousdiplomaticservicesareinvolvedinmajorprocessesofchangeandareexperimentingwithnewformsofdiplomacy.Inmanycasesserviceshavetobecutback,butevendiplomaticservicesthatareexpandingareconfrontedwiththesameissues.Thereareanumberofinterestingsimilari-ties,asrevealed,forexample,inasurveyofeightEuropeanandnon-EuropeanforeignministriesconductedattheCommittee’srequest(seeappendix4).Manyforeignministriesarewrestlingwiththequestionofwhatpositiontheyshouldoccupyandmanyriskbeingmarginalisedbecauseoftheirfailuretoconnectwithnetworkdynamics.Theorganisation’sinteractionwith‘grassroots’opinion(i.e.thepublic),andbyextensionitslegitimacy,arehighontheagenda.Copingwiththeregionalscale,beingabletoswitchbetweenalargerandsmallerpresenceonthegroundandgainingaccesstonetworksarerecurringthemes.
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Anotherfrequentissueisdiplomats’professionalismandexpertise–expressedintermsofknowledgeandskills,publicperformance,actingresponsiblywithinagivenmandate,andgivingtrust.Itisclearthatexpectationsofwhatdiplomatsshouldbe,andshouldbecapableof,arechanging.
Therearedifferencesbetweenthevariousdiplomaticservicesintheirdegreeofdefeatismand doubt about their raison d’être,butitisclearthatthoughtisbeinggivenworldwidetotheroleandidealformofdiplomacy.Theserviceswehaveconsultedareexperimentingwithformsofdiplomaticorganisationandrepresentationthatdifferfromthetraditionalones. Sometimes radical choices are made; sometimes earlier choices are revised; some-timesthefocusisonregionalisation.Inanycase,thegeneralimpressionisthatthearchetypehashaditsday–thoughthatisnottosaythattraditionaldiplomacynolongerserves its purpose.
Themodernisationofdiplomacythusinvolvesafundamentalshift(onethatisperceivedworldwide)intheroleandpositionofdiplomats.Itisnoaccidentthatmanydiplomaticservicesareaskingthemselvesthesamequestionsabouttheirownfunctionandrelevance–althoughtheydonotdoubttheirnecessity.Theymusttakeaccountoftheparadigmshifttoahybridworld,inwhichhybriddiplomatsmustoperateeffectively,representtheircountries and establish connections in both dimensions. A modern diplomatic service dependsontwobasicprinciples:(1)regionalisation(onlyamodelbasedonoperatingwithinnetworkunitsthatarelargerandmoreflexiblethanthetraditionalone-to-onerelationshipbetweenmissionsandMinistrycanrespondtothespeedanddynamicsoftoday’snetworks);and(2)presenceontheground(inaborderlessonlineworld,alocalpresenceanditsresultingaccesstonetworksarevitalassets).
ThereisthereforenodoubtthattheMinistryofForeignAffairsmustbereformedifitistomaintain,orregain,itsrelevance.
First,thereisanewworldorderwithageopoliticalandanetworkdimension(includingonline).Withinthegeopoliticaldimensionthereisashifttowardsamultipolarworldwithvariouscentresofpower.Furthermore,globalissuesandinternationalpoliticaldevelop-mentsnolongeronlyarisewithinorbetweenstatesorotherwisedemarcatedframeworks.Inthenewworldorder,cross-border,regionalanddynamicallychangingnetworkshavebecomeanorganisingprinciple.Thetraditionalmodelofdiplomaticmissionsisincompa-tiblewiththis,andisincapableofrespondingadequatelytodevelopments(thoughthemissionnetworkdoespossessthequalitynecessary).Initspresentformitisnotequippedforthefuture.
Second,regionalisationoffersnewbenefitsforaflexible,resilientandfuture-prooforganisation.TheCommitteehasreadanalysesofthepraiseworthyeffortsthathavebeenmadetokeepsmallmissionsopen.Despitetheseefforts,internalanalysesrevealthatthecurrentorganisationalmodelisnotadministrativelyviable,mainlybecauseofthemanage-mentburden.Manyoftheperceivedproblemscanbeaddressedusingaregionalisation
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model.Localpresenceistheguidingprinciple,butthemodelforachievingthisneednotnecessarilybethesameeverywhere.Morecustomisedsolutionscanbefound,andtherequiredlevelofdiplomaticpresencecanbedeterminedcasebycase.Changescanbemadeinresponsetoneedswithinidentifiedregionsornetworks.Thiswillincreasetheorganisati-on’sflexibility,speedofactionandadaptability.Itwillalsoenhancethelevelofprofessio-nalismiftraininganddevelopmentarebroadenedanddeepenedsoastotakefulleraccountofregionalissuesandinteraction.TheCommitteealsobelievesthatefficiencycanbeincreasedbyregionalisation.
Third,therearealreadygoodexamplesofregionalisationwithintheorganisation–suchasthemissionsintheUSAandChina,withWashingtonDCandBeijingascentralhubsandanumberofconsulates-generalassmallermissionsinoneregion.ThisisamodelthattheCommitteebelievescanbeusedmorewidely–notnecessarilywithinonecountry,butwithinaregion.Experimentswithregionalisationarealreadytakingplace,forexampleintheCentralAmericanandBalticregions.
Whatsuchregionalarrangementswilllooklikeinpracticeisaquestionofcustomisedsolutions,aniterativeprocesswithroomforadjustment.Anydivisionintoregions–geo-graphicallyorthematically–needstofollowlogicaldemarcations.Notallnetworkswillbethesamesize.Thecompositionofnetworkswillvaryindegreeandtypeofpresence,inscopeandindensity.Aregionalnetworkmaybeadoptedforvariousreasons,whethergeopolitical(historical,cultural,geographical,economicetc.)orthematic(singleissuesreflectedinglobal‘placestobe’).
2.3 Elaboration
Allthingsconsidered,theCommitteebelievesthatmodernisationoftheDutchdiplomaticservicewillrequireorganisationalchangesinthreeinterrelatedareas.Conductedonthebasisofaniterativeprocess,themodernisationofthediplomaticservicewillchieflyinvolveprofessionalexpertise,organisationalconditionsandinteraction.Asillustratedinthefigurebelow,thesethreeelementsareconnectedandinfluenceoneanother.Toachievesuccess,changeswillberequiredonallthreesidesofthetriangle.
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Professionalism Organisational conditions
Interaction
Modernising the diplomatic service
ProfessionalismTheCommittee’sfirstexploratorystudyinJune2012notedthatthepracticeofdiplomacyneedstobemoreclearlydefinedandmorevisible.Diplomacyisaprofession,andshouldbedefinedassuch.Itskeytasksareconnection,negotiationandrepresentation.Thecorres-pondingvaluesandexpertisemustalsobedefinedtotakeaccountofthedemandsofthehybridworld.IntheCommittee’sview,knowledgeofforeigncountries,forumsandlocalnetworks,andthenegotiatingandotherskillsrequiredtofindone’swayaroundthem,areinanycasekeytothefurtherdefinitionoftheprofession.
Today’shybridworldcallsfordiplomatswhocanswitchbackandforthbetweendifferentworlds–who,asitwere,havethechameleon-likeabilitytoadapttodifferentnetworks.Otheressentialskillsthattheyrequireinordertooperateinnetworksareenterpriseandanopenoutlook.Withintheorganisation,too,itisvitaltofindneworganisationalformsthataresuitedtotheopennessandelasticityofanetworkorganisation–suchasshifting,flexiblelinkswithinhorizontalnetworksofpeerswhendealingwithspecificprojectsortopics.
Theconceptofregionalisationalsohasanimpactonprofessionalexpertise,especiallywhenitcomestopoolingknowledge.TheCommitteenotesthatthe‘generalist’principlehasbeenparamountinstaffplacementpolicyattheMinistryofForeignAffairs.Accumulatedknowledgeandexpertiseareconsideredofsecondaryimportance,andeveryoneisexpectedtobecomeanexpertonanewsubjectwithinamatterofmonths.Wheneverstaffmembersaretransferred,theyeffectivelystartfromscratch.Thisisnotaculturedesignedtogenerateknowledgeontopicsoutsideone’sdirectresponsibility.TheCommitteeconsidersthissituationfarfromideal,andbelievesthattheMinistrycouldincreaseitsaddedvaluebyallowingitsstafftospecialiseinalimitednumberoffields,suchasagivenregion,theme,etc.Atthesametime,suchknowledgecanbepreservedwithintheorganisationthroughknowledgenetworksorcircuits,regardlessofwherethestaffmembernowhappenstobe.
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Professionalexpertisemustalsobereflectedinthewaytheorganisationpromotesresults-basedmanagement.Openness,responsibilityandtrustasprinciplesofmanage-mentwillcreateanenvironmentinwhichdiplomatscanfunctionandperformtheirtaskstothebestoftheirability.Inaworldinwhichthespeedanddensityofinformationareincreasing,andinwhichspeedandanabilitytoimproviseandadaptareneededinordertorespondtolocaldevelopmentsappropriatelyandingoodtime,thediplomat’sprofessionwillbenefitfromahighdegreeofautonomyandindependence.Withinpredeterminedlimits,itisuptoambassadorsandtheirteamstodecidewhenandhowtheMinistryinTheHagueshouldbeinvolvedindecisions.Policyanddecisionswillbemadeinacoherent,cooperativemanner,onthebasisofaregionalmodel.Ofcourse,responsibilityandaccountabilityaretwosidesofthesamecoin.
Aclear,recurringthemeintheCommittee’sdiscussionswithstakeholdersinthediplomaticserviceistheirvaryingexperienceofpersonalcontactwithdiplomats.Therearegreatqualitativedifferencesinhowdiplomatsoperateinternationally.Norisitalwaysclearwhatcanbeexpectedofthem(seealso‘Interaction’).Individualimpactwillalwaysbeimportant(infactitistheorganisation’skeystrength)–providedthatthequalityofindividualactionishighanditisclearwhatcanbeexpected.Diplomats’professionalexpertisemustbemoreeffectivelyandmorevisiblymaintained.SuccessmustbeobjectivelyquantifiablesothatDutchdiplomats’quality,focusandeffectivenesscanbeenhancedfurther.Thiswilldependon clear standards that set the bar and that ensure added value remains visible and demonstrable.
Likeotherexpertssuchasdoctorsandlawyers,diplomatswillhavetopassthroughanumberofstagesintheircareerstoestablishtheirprofessionallevel.ThisisalreadythepracticetosomeextentattheMinistryofForeignAffairs.Thismeansthatdiplomatsmusthaveclearqualificationsfromtheoutsetandhavereceivedbasictrainingatanacademythatlaysdownclearcareerrequirements,isrunbyadeanandusesobjectivelyquantifiable‘diplomaticperformanceindicators’tosetclearstandardsandallowperformancetobeassessed.Theseven-yeardiplomattrainingprogrammenowbeingdevelopedbytheMinistryisagoodstart.
Organisational conditions for hybrid diplomacyIntheCommittee’sview,amoderndiplomaticservicethatcanrespondtothedemandsofthehybrid21st-centuryworldwillneedtofulfilthefollowingorganisationalconditions.Clearly,theMinistryofForeignAffairsdoesnotyetmeetthesestandards,and,asoutlinedbelow,considerableeffortwillbeneededinorderforittodoso.
First,itmustfunctionasasingleunittogetherwithitsnetworkofmissions.ThiswillrequireasinglevirtualspaceinwhichtheheadquartersinTheHagueandthenetworkofmissionscanoperate.Theorganisationwillbeasingleinstitutionwithinwhichallfunctionsarelocated,andcontinualeffortswillbemadetooptimisetheformoforganisati-onandtodeterminewherefunctionsshouldbelocatedandwhereknowledgeshouldbegatheredandputtouse.Optimumusemustbemadeoftheavailabletechnologytoallow
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openinformationexchange.ThecurrentstrictseparationbetweenpolicymakingattheMinistryandimplementationatthemissionsisobsolete.Policywillalsobemade,aswellasimplemented,atthemissionsandintheregions;TheHague’staskisstrategyandsupervisi-onoftheNetherlands’internationalfunction.
Second,thenetworkofmissionsmustbestructuredinaccordancewiththeaforementio-nedregionalmodel.Thisadditionaldimensioninthinkingandorganisationiscrucialtoamodernnetwork.Embassieswillnolongerbestand-alone,individuallyoperatingmissionswhosemainlineofcommunicationiswithTheHague,butwillformflexiblyorganisedunitstogetherwithothermissionsinaregionalcontext.Ahub-and-spokemodelwillallowlargermissions–wherestaff,resourcesandpolicymakingareconcentrated–tosupportsmalleronesintheregion.Theresultwillbeavariednetworkofmissionswithineachregion,stillfocusedonon-the-groundpresencebutwithmoreflexiblewaysofachievingthat presence.
Inorderforthismodeltowork,the‘hub’mustbeadequatelystaffed.Itnolongergoeswithoutsayingthateachembassymusthaveitsownchanceryandresidence;instead,thescaleandformofdiplomaticpresencewilldependonlocalcircumstancesandasetofcriteriathatremaintobedetermined.Particularattentionshouldbepaidtoco-locationofmissions.Theresultwillbeafour-tiersystemoflocalpresencewithinregions:(1)regionalembassies,(2)medium-sizedmissions,(3)smallmissionsand(4)minimumstaffing(onediplomatpostedfromTheHague).6Becausethemissionswilloperateonaregionalbasis,changescanbeanticipatedrapidlyandappropriatelybyupscalingordownscalinglocalpresence.However,thebasicprincipleremainsthataminimumpresenceshouldbemaintainedinalargenumberofplaces,foronlythuscanlong-termrelationsbemaintain-edandconditionscreatedforoptimumuseofdiplomacy.Otherformsofdiplomacythatarenowbecomingmorecommon(suchasrovingbilateralambassadors7or‘laptopdiplomats’)areconceivablealternativestoon-the-groundpresence,butwillalwaysbeonlyasubstituteforpermanentpresence.Itisworthexaminingtheaddedvalueofanentirelyvirtualpresenceincountrieswherethereisnorepresentation,focusingontechnicalapplicationsthatwillallowspecifictypesofservice(suchasanonlinehelpdeskforconsularaffairs).
Theregionalisationmodelcallsforcustomised,variedapproaches.Thereisnosingleregionaltemplateforthewholeworld.WhatworksinCentralAmericawillnotnecessarilyworkinAsia;whatisappropriateforeconomicdiplomacymaynotbeappropriateforconsularaffairsorpoliticalissues.Forthenetworkofmissionsthiswillrequireavaried,flexibleapproachthattakesaccountoftheregionalandlocalcontext.Ahub-and-spokemodelwillhavetobeassessedagainstanumberofcriteria.Withoutattemptingtobeexhaustive,theCommitteeisthinkinghereofDutchinterestsinagivenregionand
6 The Committee has noted that this concept of regionalisation quickly gives rise to misunderstanding. The idea is to give one existing mission a broader task within a region – not to create an additional tier between the missions and The Hague.
7 Roving bilateral ambassadors serving the country to which they are accredited from The Hague, rather than thematic ambassadors (such as the human rights ambassador, special envoys and so on).
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concentrationofcertainthemesordisciplinesinoneplace,aswellassuchpracticalfactorsasinfrastructure,acountry’sstability,andinternationallinks.
Third,modernisationofthediplomaticservicewillalsohaveanimpactontheMinistryinTheHague.Workingwithintheregionalisationmodelwillcallforadifferentkindoforganisation:anintegratedunitthatcanrespondrapidlyandappropriatelytoemergingprioritiesandcrises.TheMinistrywilloperateasanetworkorganisation,withpolicyteamsonspecifictopics,composedofpeoplewhocancontributeexpertisefromvariousplacesandbackgrounds.Thismakesitpossibletoassembleateamonagiventopicfromstaffatmissions,inTheHagueandatotherministries,andpeoplesecondedtointernationalorganisations.Surroundingthisteam,dependingonrolesandlocations,therewillthenbeacircleofnetworksandlinkstostakeholdersandotherrelevantparties.Thepossibilityoftransferringpolicymakingtomissionsasregionaloreventhematiccentresofexpertisecanthenbeconsidered,sothatpolicyisformulatedclosetowhereitisneeded.IfthinkingonagiventhemeisfocusedsomewhereoutsidetheNetherlands,thatisthe‘placetobe’wherepolicyshouldbemade.
TheMinistryofForeignAffairsinTheHaguewillbesmall,withakeyroleforitsinternatio-nalfunction.TheMinistrywillbethelinkbetweenTheHagueandthenetworkofmissions.Itsrolewillencompassstrategicmanagementandsettingoperationalframeworks.Thecurrentorganisation(includingthenetworkofmissions)doesnotmeetthiscriterion,andwillhavetochange.Atpresentitishighlyvertical(intermsofmissions,directorates-gene-ralanddirectors),whichisaseriousobstacletohorizontalcooperationandcoherence.TheCommitteeheardthiscomplaintdozensoftimesinthecourseofitsinterviews.Manyofthepeopleitspoketofeelthatthepracticeofhavingdocumentsinitialledbyseveralpeople–whichsupposedlyreflectsacoordinated,sharedpolicy–infactillustratesthecompart-mentalisationoftheMinistryandthelackofsharedprincipleswithintheorganisation.TheSecretary-Generalhassaidthattaskforcesarenowbeingusedtodealwithtopicsthatrequirecoherence.Manymissionsarealreadyusingintegratedteams.TheministersandseniorleadershiphaverecentlyexpressedtheambitionoftransformingtheMinistryofForeignAffairsintoanetworkorganisation.Itsstructurewillbeadaptedsothatresponsibi-litiesareclearlyassignedandevengreateruseismadeofflexible,horizontalteamswhichincludethemissionsundertheauthorityofthemostrelevantdirector-general.TheCommitteeseestheseasstepsintherightdirection,andrecommendsthattheorganisationbecomeevenmorehorizontal,andhenceatruenetworkorganisation.
TheCommitteebelievesthiswillrequireagreatdealofsustainedeffortfromallstaff,butaboveallfromtheseniorleadership.
Theaboveorganisationalconditionsprovidethebasisforavigorous,effectiveDutchdiplomaticservice,withasmall,flexiblecoreforstrategy,policyframeworksandtheinternationalfunctioninTheHague,andabroad,extensivenetworkofmissionscapableofadaptingcontinuallytofluctuatingcircumstances.ExchangeofstaffbetweentheMinistryofForeignAffairs,otherministries,theprivatesector,internationalorganisationsand
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NGOswillenhancetheMinistry’snetworkfunction.Theregioncanserveasareservoirforthis purpose.
InteractionThethirdareathatneedstobetackledisthewaytheMinistryofForeignAffairsrelatestotheoutsideworld.Notonlyistheoutsideworldchanging,butsoistheMinistry’sinteracti-onwithit.Visibilityandpresentationareincreasinglypartofdiplomacy.Onemanifestationofthisispublicdiplomacy.
Thankstoconstantinnovationinmeansofcommunicationandvirtualexchange(ontheinternet),therearenowmanydifferentwaysofgainingbroadaccesstoknowledgeandestablishinganetworkprofile.Socialmedia,suchasFacebookandTwitter,andotherapplicationscanbeusedtoreachawideaudience.Forexample,a‘diplopedia’ofthekindsetupbytheAmericansallowsknowledgetobeeasilysharedandupdated.Theuseofsuchcommunicationresourcesisnowanindispensablepartofpolicy,butisstillinitsinfancy.
WhereaspeopleusedtoapproachtheMinistryofForeignAffairsonmattersrelatingtoothercountries,theboundariesbetweenhomeandabroadhavebecomeblurredandtheMinistrynolongerhasanaturalmonopolywithinthedisaggregatedstate.Atatimewhenserviceprovisionisincreasinglyparamount,thosetheCommitteeinterviewedrepeatedlymadeclearthattheMinistrydoesnothaveaclearsenseofwhatitsstakeholderswant. TheMinistryisroundlyaccusedbyitspeers–otherministriesandgovernmentbodies–ofbeingoblivioustotherestofTheHagueandtheDutchpeople.Recurrentcomplaintsarethatforeignministrystaffinvestconsiderableenergyintheirsubsequentpostings,thattheirinstantresponsetoquestionsandrequestsisstilltoooften‘itcan’tbedone’,andthatmissionssometimesobjecttocarryingoutgovernmentpolicy.TheCommitteeconsidersitalarmingthatthisisthepictureotherministriesnowhaveoftheMinistryofForeignAffairs.
AlthoughtheCoordinatingCommitteeonInternationalAffairs(CoRIA)statesthatthingsaredefinitelyimproving,atotherlevels(bothhigherandlower)theMinistryisseeninalesspositive,nottosaynegative,light.TheCommitteebelievesonereasonforthisisthatpeopledonotknowwhattoexpectoftheorganisation–atatimewhenthepublicclearlyexpectsmoreintermsoftransparency,serviceandresults.Interactionisthusafundamentalprerequisiteforthelegitimacyofthediplomaticserviceandpublicsupportforit.
Anetworksocietyisnotjustabouttransmittinginformation.Thetypicalfeaturesofanetworkorganisationareopennessandexchangeofinformationandcontacts.Toimproveitsrelationships,theMinistryofForeignAffairswillhavetobecomemorevisibletothreegroups:(1)theDutchpeople,orthe‘domesticmarket’(includingpublicdiplomacy),(2)thevarioussectors/stakeholdersand(3)politicians.
Todothis,itwillhavetotakeanumberofsteps,startingwiththedevelopmentofstan-dards.Itmustbemadecleartotheoutsideworldwhatcanbeexpectedofdiplomatic
26 | Modernising Dutch diplomacy
missions–whattheycanandcannotdo.Suchstandardsarealsoaguaranteeofqualityandcontinuitythroughouttheorganisation–andthatiscrucialinanorganisationalmodelthatbyitsnatureisbasedonworkinginnumeroussmall,semi-independentunits.
Tothisend,theMinistrymustincreaseitsoutsidevisibility,notonlyinTheHaguebutalsoelsewhere.Onegoodstepinthisdirectionisthepracticeofhavingstaffgivetalksatschools.ConsularaffairsareareadilyidentifiablepointofcontactwiththeDutchpeople,andsocanbeusedtohighlightthisandotherministrytasks.FurtherdigitisationcannotonlyassistDutchcitizenswithconsularproblemsmorerapidly,andonline,butalsohelpDutchcompaniesfindtheirwayinothercountries.DigitisationprovidesavaluablewaytobridgethegulfbetweentheMinistryandtheDutchpeople.FornationalsofothercountriestheinternetshouldbetheinstrumentofchoiceforeasilymakingcontactwiththeMinistryandfindingtheirwayinDutchsociety(e.g.inlocatingbusinesspartners)usinginformationfromtheMinistryandthemissions.
TheCommitteealsorecommendstheestablishmentofanexternalcouncil,tobechairedbytheMinisterofForeignAffairs.ThiswillkeeptheMinistryintouchwiththevariouspartiesandawareofstakeholders’expectationsandwishes,sothatitcancheckwhetheritisontherighttrack.Byinstitutionalisinginteraction,theMinistrycanmakesureitstaysincontactand,atthesametime,usethisinteractiontocontinuallybuildpublicsupport.TheMinistryshouldsetuppanels,modelledontheUSStateAdvisoryBoard,thatrepresentthevariouspartiesandnetworksandareregularlyconsulted.
TheMinistryofForeignAffairshasaspecialfunctionwithintheDutchgovernment.Ithasaleadingroleinshapingtheinternationalfunction,andshouldtaketheinitiativeinsettingupappropriatedigitalorothernetworksforeachregion,themeandsoon.TohelptheMinistrydemonstrateitsaddedvalue,otherpartsofthegovernmentmustbeabletoobtainaccesstotheinformationthatisavailablethroughthenetworkofmissions.Thiswillrequirepersonalassistancefrom‘accountmanagers’toensurethatpeopleactuallyobtaintheinformationtheyneed.
Modernising Dutch diplomacy | 27
Phase 3: assessment
ThisprogressreportprovidesasummaryoftheCommittee’sfindingssofar.Betweennowanditsfinalreport,whichisduebyMarch2014,theCommitteeplanstoassess,refineandelaboratethesefindings.
Thiswillinvolvethefollowingactivities:
• ConsultationswithpeopleoutsidetheMinistryofForeignAffairs.TheCommitteeisworking‘fromtheinsideout’,andmostofitsinitialinterviewswerewithintheMinistry.Ithasnowstartedtotalktorelevantexternalparties,andwillcontinuetodoso.Sofarithasmainlyspokentorepresentativesofotherministries,butitalsoplanstointerviewrepresentativesoftheprivatesector,thepoliticalsphere,academia,themedia,civilsociety,civicorganisationsandthediplomaticcorps.ThequestionsitwillaskconcerntheimageoftheMinistryofForeignAffairs,people’sexpectationsofthediplomaticserviceandtheMinistry’sorganisationalstructure.
• MembersoftheCommittee(workinginvariouscombinations)willvisitanumberofmissionstolearnmoreaboutthenetworkofmissions,theregionalfunctionandthevarietyofthemissions(intermsofbothstaffingandfunction).TripstoBrussels,Luxembourg,MoscowandBakuareplanned.TheCommitteehasalreadypaidvisitstoWashingtonDC,NewYork,Cairo,NairobiandBrussels.
• Inordertoproduceitsfinalreport,theCommitteebelievesitneedstoconductmorein-depthstudiesonanumberoftopics.ThesewillinanycaseincludetherelationshipbetweentheEU’sEuropeanExternalActionService(EEAS)andtheDutchdiplomaticservice,nowandinthefuture;therelationshipbetweendevelopmentcooperationandeconomicdiplomacy;andthedevelopmentoftheInternalSecurityFund(ISF)asatestinggroundforintegratedforeignpolicy.
• TheCommitteewillalsolookatworldwidenetworks.PresidentObamaissaidtohaveaskedwhich100networksaremostimportanttotheUSA.TheCommitteelikewiseintendstoexamine(1)whichnetworksaremostimportanttotheNetherlands,(2)howtheNetherlandscanaccessthemand(3)howtheNetherlandscanfindoutwhichnetworksexistandarerelevant,andwhatkindofmechanismcanbedesignedtohelpit do so.
• TheCommitteewillstudythetopicofprofessionalexpertiseingreaterdepth:whatformtrainingatadiplomaticacademyshouldtake,basedonthecontoursofthisacademyanditsdeanandontheseven-yeardiplomattrainingprogramme.
• TheCommitteewilllookinmoredetailathowthemanagementburdencanbereduced,andwillmakerecommendationsonthesubject.
• Finally,theCommittee’sfinalreportwillmakesuggestionsforthedevelopmentofstandards:whatcanstakeholdersexpectofthediplomaticservice?
• Ifthedevelopmentofstandardsinvolvesexceptionallevelsofadditionaleffort,theCommitteewillexaminewhetherthecostscanbepassedon.
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Phase 4: recommendations and comments
TheMinisterofForeignAffairshasaskedtheCommitteetosubmitaprogressreport.TherewouldbelittlesenseinsuchanexerciseiftheCommitteedidnotnowmakeanumberofrecommendations.
TheCommitteeisconvincedthatthediplomaticservicemustbemodernised,andthatthisisanurgenttask.IftheMinistryistoremainrelevantratherthanbecomemarginalised,itwillhavetochange.TheCommitteethereforefullyendorsestheMinister’sreferenceattheambassadors’conferenceinJanuary2013toan‘existentialyear’fortheMinistry.
ThecoalitionagreementemphasisestheNetherlands’internationalorientation,basedonnationalinterestaswellasabroaderoutlook.Itincludesanambitiousinternationalagendathatwillcallformoreinternationalactionratherthanless.Therelevantpassageintheagreementshouldnotbeseeninisolation.TheCommitteenotesthatpoliticians,andtheDutchpeople,requireandexpectmoreofthediplomaticservice.Atthesametime,theCommitteeobservesthattheavailableinstruments–thediplomaticnetworkandfunding–arenowsubjecttoaseriesofmajorcutbacks,inwhichnewcutsunderthecoalitionagreementcomeontopofearlierones.Evenintimesofbudgetaryrestraint,onecannotnecessarilydemandthatmorebedonewithlessmoney.Inrecentyears,bodieslikethepoliceandRijkswaterstaat(theDirectorate-GeneralforPublicWorksandWaterManagement)havereceivedadditionalfundingtopayfortheextrataskstheyhavebeengiven.
Thisdiscrepancybetweenstatedambitionsandcutbacksontherequiredinstrumentsraisesquestions.DoestheNetherlandsintendtoretreatbehindthedykes?Ordoesthegovern-mentbelievethatthesameinternationalambitionscanbeachievedwithoutabroad,permanentinternationalpresencebasedonthepremisethattheNetherlandswillbestbeservedbyhaving“eyesandears”allovertheworld?
Recommendations• Themodernisationprogrammewillrequireinvestment.Thecostofabroader,
up-to-date,evolvingdiplomaticserviceshouldnotbeunderestimated.FurthermoreavirtualMinistryofForeignAffairswillrequireinvestment.TheCommitteenotesthattheorganisationhassofarbeenslowtocreateareadilyaccessiblevirtualspacebothwithinandoutsidetheorganisation.Suchaspacehasadualpurpose:asinglehelpdeskorcontactpointforDutchpeopleandasinglepointofaccessforforeignnationalsintheircontactswiththeNetherlands.Theprinciplebehindthisconceptisabetterorganised–i.e.decompartmentalisedandintegrated–diplomaticservice,withtheMinistryandthemissionsoperatingasasinglevirtualnetwork.
Modernising Dutch diplomacy | 29
• Acostestimateandacost-benefitanalysiscoveringthenetworkofmissionswillberequired.AtthemomenttheCommitteelacksthedatatoassesstheapproximatecostsofamodernisationprogramme,especiallygiventhecutbacksprescribedinthecoalitionagreement.Thefirstcostswillbeincurredinbuildingupprofessionalexpertiseinaworldofhybriddiplomacy(includingthediplomaticacademy),thecreationofavirtualspaceaimedatusersbothwithinandoutsidetheMinistry,andtheregionalisationprocess.Theassociatedcapacityand‘teachingtime’willrequireinvestment.Eventuallythesemeasurescanbeexpectedtobenefittheorganisationdirectly:reducingthemanagementburden,increasingefficiencythroughvirtualworkspaces,reducinghierarchyandintroducingsmartworkingprinciples.Ingeneral,theaddedvalueofhavingamissioninplacehasnotyetbeencalculated.TheDutchprivatesectorhasmadeclearthatinmanycountriesbusinesseswillsufferifmissionsareclosed,buttheamountsinvolvedhavenotbeenestimated.Atthesametime,manybenefitsofthenetworkofmissionscannotbedirectlyexpressedinmonetaryterms.TheCommitteehastheimpressionthatthemissions’addedvalueliesoutsideratherthanwithinEurope,thoughthereisnohardevidencetothiseffect.Toallowabetterassessmentofthevalueandnecessityofthenetworkofmissionsandon-the-groundpresence,theCommitteethereforerecommendsthatacostestimateandacost-benefitanalysisbecarriedout.Thiswillprovideacontextforthedebateoncutbacksandthequestionofwhoshouldpayforthem–theprivatesector,othergovernmentbodiesortheMinistryitself.
• Achangeorganisationisneeded.Despitestrongproposalsandinitiativestoreformpartsoftheorganisationinrecentyears,essentialchangeshavenotyetbeenmade.Thelong-standingconsensusmodelintheMinistry’sseniorleadershipisnotsuitablefortheimplementationofradicalchange.FortheCommittee,thisisapointofconcern,forinprocessesofchangetheideaistoendwithconsensusratherthanstartwithit.TheradicalchangesnowrequiredattheMinistryarenotcompatiblewiththedivisionoftasksacrossseparatedomains.Theexistingdomainsarenotgearedtoareasofchangeandaccordinglythereisnochangecapability.TheCommitteebelievesthatthenecessarychangescannotbemadewithoutalsotacklingtheMinistry’scapacityforchange.Attheveryleastthiswillmeanabandoningthecurrentdecision-makingmodelandassigningresponsibilityforthechangeprocesstooneperson.ThismaybeeithertheSecretary-Generaloraseparateprojectmanager–providedthattheministerialmandateisclearandthepersoninquestionhasauthoritytoenforcedecisions.TheCommitteethereforenoteswithapprovalthattheSecretary-General,supportedbyaprojectteam,iscurrentlyrevisingtheMinistry’sorganisingprinciplesandwillpresentdetailedproposalsintheframeworkoftheMinister’slettertoParliamentonmodernisingthediplomaticservicebythesummer.Achangeorganisa-tionwillbesetupafterthesummertoimplementtheproposals.Currentchangeprocessesinthefieldofdigitisation,reformofsmallmissions,humanresourcespolicyandsmartworkingwillbeintegratedwithinit.
30 | Modernising Dutch diplomacy
• Professionalism:- Setrequirementsfortheprofessionofhybriddiplomat:(1)coretasks:representati-
on,negotiationandconnection;(2)abilitytooperateinbothdimensionsandlinkthemtogether,especiallyin‘placestobe’.
- Investinknowledgeanddeploydiplomatsonthebasisoftheirknowledge.- Regionalisation:allowstafftousetheirknowledgeandexpertiseanddeploythemin
areaswheretheyhaveaccumulatedknowledge;staffshouldaimtowardsdevelopingandexpandingtheirexpertiseinaspecificnumberoffields.
- Introducediplomats’qualificationsandaccompanyingdevelopmentprocesses,aswithlawyers.Theseven-yeardiplomattrainingprogrammefornewrecruitsisagoodstart.
- Appointadeantoheadthenew‘diplomaticacademy’.- Theacademywillalsohaveatrainingprogrammeforlateralentrants,whowillhave
tomeetthesamestandardsasstaffenteringatthelowestlevel.- Diplomaticperformanceindicatorsmustbedevelopedtocreateclearstandardsand
allowperformancetobemeasured.- Titlescostnothing,andshouldbeconferrediftheyarefunctional(ambassador,
specialenvoy).- OneissuetheCommitteewouldsignalisstaffconditionsandtermsofemployment
withinthediplomaticservice.Initsinterviewsithasrepeatedlybeenconfrontedwithconcernsabouttheimpactofacareerinthediplomaticserviceonpeople’sprivatelives.Therecommendationsinthisprogressreporthavenobearingonthissituation–itisaproblemthatgoesbeyondthemodernisationofthediplomaticservicebutshouldbesignallednevertheless.
• Organisation:- Theorganisationshouldbesetupasasingle(virtual)spacethatincludesallthe
Ministry’sfunctionsandallowstheirapplicationtobeconsideredcasebycase.Thiscallsforaflexible,lessrigidsystemofHRmanagement.
- Aregionaldimensionshouldbeintroducedinthestructuringandorganisationofthenetworkofmissions.ThisregionalisationmodelisreflectedintheorganisationoftheMinistryinTheHague.Theaimistobuildupnetworksusingregional,thematicorissue-specificteamsthatarenotnecessarilyconfinedtooneplace.
- Adifferentseniorleadershipstructureshouldbeintroduced,withadifferentclassificationofdirectorates-general(atleastthosewithlineresponsibility).ToensurethatDGsarealignedwithinternationalstructures,DGsoutsidethelinemanagementstructurecanalsobecreated–titlescostnothing.
- Theorganisationmustbefuture-proof,resilientandabletovaryitslevelsofrepresentation.Thebasicaimison-the-groundpresence,butthespecificformofeachmissionmayvary.Ifnoalternativeisavailable,otherkindsofrepresentation(suchasrovingambassadors)areconceivablesubstitutes.
- Abetterratioofheadquarterstomissionstaffisneeded.ItiscurrentlyskewedinfavourofTheHague.Regionalisationwillensurethatmorepolicymakingtakesplaceat the missions.
Modernising Dutch diplomacy | 31
- Anidenticalregimeshouldbeinplaceformissionstaffpostedabroad,regardlessoftheirministryoforigin.Staffpostedabroadandlocalstaffwillworkasasingleteamunderthesupervisionandguidanceoftheambassador.
- Coordinatingresponsibilityatmissionsforpolicyfieldslikeeconomicdiplomacyshouldbeassignedtotheambassadorandsectionswithinmissionsshouldbeintegratedtoencouragecollaborationandcoherence.
- Asstafflevelsatthemissionsshrink,actionmustbetakenregardingfixedprocedu-resandthemanagementburdentoensurethatstaffcanfocusonpolicypriorities.
- Theroleofinspectionsmustchange.Insteadofmonitoringanddistrustbeingtheguidingprinciples,inspectionsshouldbebasedontrustandassigningresponsibilityatlowerlevel.Itisimportanttostrikeabalancebetweenfreedomofaction,accountabilityandassessment.Importantquestionsherearewhetherresponsibili-tiesareproperlyassigned,andwhetherthereissufficienttrust.TheMinistryshouldmoveawayfromapreventivesystemofmonitoringthatissolelydesignedtoavoidmistakes–thisleadstoriskavoidance,whichcomesattheexpenseofresults.
• Interaction:- Panelsshouldbesetup:onegenericpanel,plusanumberofthematicpanelsfor
consularaffairs,culture,securityandtheinternationalruleoflaw,economicaffairsand development cooperation.
- Useshouldbemadeofsecondment(inbothdirections)amonggovernmentdepartments,theprivatesectorandcivilsocietyorganisationsandinstitutions.Inthisway,experiencecanbesharedandnetworkslinked.
- Sharinginformation:theMinistryofForeignAffairspossessesagreatdealofrelevantinformationgatheredfromallovertheworld.EmbassiesthroughouttheworldreportbacktoTheHaguearoundtheclock.ThisgivestheMinistryakeyfunctionwithintheDutchgovernment.Thehugevalueofthisglobalinformationgivesitscopetoengagewiththerestofthegovernment.ThisprovidesanexcellentopportunityformeaningfulinteractionbetweentheMinistryofForeignAffairsandthevariousotherministries,andforaddingvaluewheregovernmentpolicyisconcernedbyofferingaccesstothe‘diplomaticdatabase’.Tostartwith,themessa-gingsystemdatabaseshouldbemadeeasilyaccessibletoallpartsoftheDutchgovernment,withthefocusoninformationtailoredtokeydecision-makers(secretaries-general,directors-generalandsoon).Accountmanagersshouldalsobeappointedtoenablethebestpossibleuseofthisinformationservice.
- PolicymakinginTheHague(atotherministries)shouldtakeaccountoftheinternationalangleatanearlierstage.Atpresent,theinternationalcontextoftencomesintoplayonlywhenministrieshavealreadylargelydeterminedtheirpositions.AsaresulttheMinistryofForeignAffairs’inputmaybeperceivedasahindrance.TheCommitteerecommendsthatconsiderationbegiventomechanismsallowinginternationalfactorstobeidentifiedandtakenintoaccountatanearlystageofpolicymaking.ThiswillonlyworkiftheMinistryofForeignAffairsactuallyusesthisearlyopportunitytomakeacontribution.Asmorepolicymakingistransferredtothemissions,thiswillalsorequiremoredirectinteractionandcontactbetweenthenetworkofmissionsandotherministries.
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• Noreasontodelay: Oncethewayaheadisclearthereisnoreasontodelay,andactionshouldbetakenwhereveritcanbe.ThegreatenthusiasmforchangewhichtheCommitteehasnotedinvariouspartsoftheorganisationshouldbeexploited,andthemanygoodinitiativesthattheCommitteehasobservedshouldbefollowedup.Taskforcesshouldbesetuptoaddfreshinputonprofessionalism,organisationalconditions,andinteraction,aswellastheaccompanyingstandards.Enthusiasticstaffshouldberecruited,throughopeninternalapplicationprocedures,totakepartinprocessesofchange.Availableideasshouldbeused,andexperimentscarriedouttoidentifythebestsolutions.TheMinistryshouldstartby:- settingupastakeholder’scouncilandthematicpanelstoactasexternalsounding
boards;- experimentingwithnewtypesofrepresentation,regionalisationandpartnership;- settingupanacademythatprovidesadditionalcoursesafterbasictrainingofnew
recruits,appointingadeanandconductingresearchstudies;- implementingtherecommendationsregardingthecareerservice,anddrawingup
anactionplanthattakesdueaccountofdevelopmentsconcerningtheSeniorCivilService;
- settinguptheMinistry’sownvirtualspace;- introducingsmartworkingprinciples,withnon-hierarchicalassignmentsandtask
forcesforwhichstaffcanapplyviathevirtualspace.
• Keepgoing!
Modernising Dutch diplomacy | 33
Appendices
1.TermsofReferenceoftheAdvisoryCommitteeonModernisingtheDiplomaticService2.Listofpersonsinterviewed(notavailableinEnglish)3.Literature4.Trendsindiplomacyandmissionnetworks:asurveyofeightforeignservices
34 | Modernising Dutch diplomacy
1 Terms of Reference of the Advisory Committee on Modernising the Diplomatic Service
TheMinisterofForeignAffairswishestodomoretomodernisetheDutchdiplomaticservice.InthisconnectiontherearevariousprojectsunderwayattheMinistryofForeignAffairs.TheWorksCounciliscloselyinvolvedinthisprocess.
TheMinisterhasrequestedthatanexternaladvisorygroup,knownastheAdvisoryCommitteeonModernisingtheDiplomaticService,besetuptoprovidehimwithindepen-dentadviceandpointoutrecentinternationaldevelopments.HehasaskedtheCommitteeforanin-depthanalysisofthechallengesfacingtheMinistryofForeignAffairsandthediplomaticservice,inlightofthenewthinkingondiplomacywhichhasbeenevolvinginother countries.
Thefocuswillbeon:• economicdiplomacy:howcanthenetworkofmissionssupportDutchbusinessas
effectivelyaspossible?CanafocusoneconomicdiplomacybefurtherembeddedintheMinistry’sstructure?HowshouldtheMinistriesofForeignAffairsandEconomicAffairsbelinked?
• thediplomatofthefuture:whatisexpectedofadiplomat?Whatarethecorevaluesofthediplomaticservice?Howcansocialmediabeusedeffectively?
• changestotheorganisation:theCommitteewillgivefeedbackontheprocessesofchangethathavealreadybeensetinmotionthroughregularchannels.ArethesechangesattheMinistrystilloncourse?
Members of the CommitteeThemembersoftheCommitteehavebeenrecruitedonthebasisoftheirlongandwide-rangingexperienceinvariousfields.
• ArthurDoctersvanLeeuwen,theCommittee’schair,isanexperiencedmanagerofprocessesofchange,withanextensivetrackrecordingovernmentandquasi-govern-mentalorganisations.
• TinekeLodders-Elfferichcontributesherextensivepoliticalandadministrativeexperience.
• KoColijnhasin-depthknowledgeofinternationaldiplomacy.• PieterMarresisaformerambassadorwithpersonalexperienceofallfacetsofthecraft
ofdiplomacyatthemissionsandattheMinistryinTheHague.• VictorSchoenmakersisDirectorofInternationalAffairsatthePortofRotterdam
Authority.
Modernising Dutch diplomacy | 35
ThisbroadrangeofexperiencewillenabletheCommitteetoensurecross-pollinationamongdifferentapproachestointernationaldiplomacy.
StatusTheCommitteewillofficiallyadvisetheMinisterofForeignAffairs.PursuanttotheWorksCouncilsAct,theplannedestablishmentoftheCommitteehasbeensubmittedtotheWorksCounciloftheMinistryofForeignAffairsforitscomments.
TheCommitteewillmeetregularlyandwillalsoprovidetheMinisterwithfeedbackonitsfindingsatregularintervals.ItwillbesupportedbyanexecutivesecretariatprovidedbytheMinistry.
RoleTheCommitteewillfunctionasasoundingboard.Itwillnotbedirectlyinvolvedintheimplementationoftheexistingfinancialcutbacks.Itwillhaveanadvisory,activatingandgalvanisingrole,focusingonthegoals,outlookandtasksofthediplomaticserviceandmorespecificallyoneconomicdiplomacy.Wherenecessary,theMinistermayalsorequesttheCommitteetoadvisehimonspecifictopics.
TheCommitteewillactasanexternalthinktankfortheMinisterandwillreporttohim.ItisuptotheMinistertodecidehowherespondstotheCommittee’srecommendations.Whereappropriate,thesewillbefleshedoutthroughregularchannelswithintheMinistry,includingemployeeparticipation.
TimetableTheCommitteewillbeestablishedwitheffectfrom1March2012foraperiodoftwoyears,whichmaybeextended.
CommunicationTheMinisterwillfacilitateregularconsultationswiththeWorksCouncilontheappoint-mentoftheCommittee.AnycontactbetweentheCommitteeandthemediawillbesubjecttopriorconsultationwiththeMinistry.
ContactsTheCommitteeplanstointerviewbothindividualstaffmembersandstafforganisations.Itbelievesitshouldgatherinformationaswidelyaspossibleandtalktothepeopledirectlyinvolved,bothattheMinistryandatthemissions.
Onthesubjectofeconomicdiplomacy,fact-findingtalkswillalsobeheldwithstrategiccontactsintheprivatesector.Therewillbeinterviewsnotonlywithprofessionalorganisati-onssuchastheConfederationofNetherlandsIndustryandEmployers,theMinistryofEconomicAffairs,MKB-Nederland(thenationalassociationofSMEs)andFME(thenationalemployers’organisationforthetechnologicalindustry),butalsowiththeownersandchairsofindividualcompanies.MsMeinyPrins,whowasunabletoremainafull-time
36 | Modernising Dutch diplomacy
memberoftheCommitteeowingtoothercommitments,willhelporganiseameetingwithinternationallyactiveSMEsthatfrequentlyworkwithDutchembassies.
TheCommitteewillalsofocusonforeignministriesinothercountries(whichhaveyettobeselected).Whereappropriate,itwilltalktoothergovernmentbodiesandcivilsocietyorganisationsintheNetherlandsandelsewhere.
TravelInthecourseoftheirassignmentthemembersoftheCommitteewill(oftenindividually)visitanumberofmissionstolearnmoreaboutthedifferentkindsofrepresentations–fromthosestaffedbyjustonediplomatandthosewithspecialisedtaskstolargemissionswithmulti-yearinterministerialpolicyframeworks.
RemunerationThemembersoftheCommitteewillbeappointedunderthestandardarrangementsapplicabletogovernmentaladvisorycommittees.TheCommitteechairwillbesubjecttoaworkinghoursfactorof10/36.Hewillreceiveafixedremunerationequivalentto10%ofthemaximuminsalaryscale18inAppendixBtotheCivilServants’PayDecree1984.TheotherCommitteememberswillbesubjecttoaworkinghoursfactorof7/36.Theywillreceiveafixedremunerationequivalentto7%ofthemaximuminsalaryscale18inAppendixBtothe1984CivilServantsPayDecree.Reasonabletravel,accommodationandotherexpenseswillbereimbursedbytheMinistryofForeignAffairs,subjecttotherulesapplicabletoDutchgovernmentemployees.
Implementation ordersIftheworkoftheCommitteegivesrisetoimplementationordersbytheMinisterthatrequireadviceorapprovalpursuanttotheWorksCouncilsAct,thesewillofcoursebesubmittedtotheWorksCouncilingoodtimeinaccordancewiththenormalprocedure.
4January2012
Modernising Dutch diplomacy | 37
2 List of persons interviewed (not available in English)
DeAdviescommissieModerniseringheeftsindshaaroprichtingvelehonderdenformeleeninformelegesprekkengevoerdmeto.m.medewerkersvandeRijksoverheid,Europeseinstellingen,bedrijfslevenenmaatschappelijkmiddenveld.Metdebewindspersonenendeambtelijketop(d.w.z.hetSG/DG-beraad)vanhetministerievanBuitenlandseZakenheeftdeCommissieherhaaldelijkgesprokengedurendehaaronderzoek.OokvoerdedeCommissiegroepsgesprekkenmetVDBZ,FEEenVerYBZ.Naastvelebilateralegesprekkenendaarbijaansluitendeverdiepingssessies,heeftdeCommissieookopgetreden/gesprekkengevoerdtijdensgroteevenementen,zoalsdeMKBrondetafelbijeenkomstvandehavenvanRotterdam,deambassadeursconferentievan2013ende‘FuturesforDiplomacy’conferentievanInstituutClingendael.VoortsheeftdeCommissieverschillendedienstreizengemaaktnaaro.m.Brussel,Washington,NewYorkenCaïro.
Onderstaandoverzichtgeeft,wegensdegrotehoeveelheidgesprekken,voornamelijkdebilateralegesprekkenweerdiehebbenplaatsgevonden.
Ministerie van Buitenlandse ZakenNaam Functie/Organisatie*
Agotha, Tony Woordvoerder PV EU Brussel – Ministerie van Buitenlandse Zaken
Alkemade, Ellen Lid FEE vrouwennetwerk BZ – Ministerie van Buitenlandse Zaken
Arnoldus, Peter Directeur Financieel-Economische Zaken – Ministerie van Buitenlandse Zaken
Baak, Mascha Lid FEE vrouwennetwerk BZ – Ministerie van Buitenlandse Zaken
Barnard, Johan Hoofd ECOFIN-Coördinatie PV EU Brussel – Ministerie van Buitenlandse Zaken
Beaujean, Jan Willem Plv. Hoofd Bureau Secretaris-Generaal – Ministerie van Buitenlandse Zaken
Beer, Karel de Vml. DG Taakstelling – Ministerie van Buitenlandse Zaken
Bekink, Rudolf CdP Peking – Ministerie van Buitenlandse Zaken
Berg, Job van den Voorzitter Ondernemingsraad – Ministerie van Buitenlandse Zaken
Bont, Emiel de Forward Strategy Unit – Ministerie van Buitenlandse Zaken
Bonzel, Matthijs van Nederlandse ambassadeur in Boekarest – Ministerie van Buitenlandse Zaken
Coppoolse, Ines Hoofddirecteur Personeel en Organisatie – Ministerie van Buitenlandse Zaken
Daalen, Monique van DG Consulaire Zaken en Bedrijfsvoering – Ministerie van Buitenlandse Zaken
Davidse, Koen Directeur Directie Multilaterale Instellingen en Mensenrechten – Ministerie van Buitenlandse Zaken
Dijksterhuis, Robert Lid Onafhankelijken Ondernemingsraad – Ministerie van Buitenlandse Zaken
38 | Modernising Dutch diplomacy
Naam Functie/Organisatie*
Faber, Eeuwke Hoofd Afdeling Uitbreiding PV EU – Ministerie van Buitenlandse Zaken
Fazili, Said Lid VerYBZ – Ministerie van Buitenlandse Zaken
Flamand, Joost Vereniging Dienst BZ – Ministerie van Buitenlandse Zaken
Frank, Paul Online Strateeg Directie Communicatie – Ministerie van Buitenlandse Zaken
Geelen, Marloes Lid Abvakabo Ondernemingsraad – Ministerie van Buitenlandse Zaken
Gerards, Marisa Plv. DG Politieke Zaken – Ministerie van Buitenlandse Zaken
Gierveld, Aldrik Plv. Directeur Directie Multilaterale Instellingen en Mensenrechten – Ministerie van Buitenlandse Zaken
Gooijer, Pieter de CdP Permanente Vertegenwoordiging bij de EU in Brussel – Ministerie van Buitenlandse Zaken
Gregoire, Lise Antici - Permanente Vertegenwoordiging bij de EU in Brussel – Ministerie van Buitenlandse Zaken
Groot, Jochem de Beleidsmedewerker Directie Multilaterale Instellingen en Mensenrechten – Ministerie van Buitenlandse Zaken
Groot, Robert de DG Europese Samenwerking – Ministerie van Buitenlandse Zaken
Hartogh, Karel Directeur Directie Azië en Oceanië – Ministerie van Buitenlandse Zaken
Heijden, Barend van der Projectleider Kader Kleine Posten – Ministerie van Buitenlandse Zaken
Heuvel, Maryem van den Directeur Directie Westelijk Halfrond – Ministerie van Buitenlandse Zaken
Hornstra, Eimert PV NAVO Brussel – Ministerie van Buitenlandse Zaken
Jones-Bos, Renée Secretaris-Generaal – Ministerie van Buitenlandse Zaken
Kaai, Geran Hoofd V&J Brussel – Ministerie van Buitenlandse Zaken
Kingma, Wepke Plv. PV EU Brussel – Ministerie van Buitenlandse Zaken
Kliest, Ted Inspecteur Inspectie Ontwikkelingssamenwerking en Beleidsevaluatie – Ministerie van Buitenlandse Zaken
Klompenhouwer, Kees Inspecteur Inspectie en Evaluatie Bedrijfsvoering – Ministerie van Buitenlandse Zaken
Kok, Peter Nederlandse coördinator EU-topbenoemingen – Ministerie van Buitenlandse Zaken
Kop, Dirk Jan Projectleider Kleine Posten – Ministerie van Buitenlandse Zaken
Kronenburg, Ed Vml. Secretaris-Generaal – Ministerie van Buitenlandse Zaken
Kuiper, Hanjo de Voorzitter Ondernemingsraad – Ministerie van Buitenlandse Zaken
Kwaasteniet, Marjanne de Nederlands Permanent Vertegenwoordiger bij het Politiek en Veiligheidcomité van de EU in Brussel – Ministerie van Buitenlandse Zaken
Meer, Jorn van der Lid VerYBZ – Ministerie van Buitenlandse Zaken
Modernising Dutch diplomacy | 39
Naam Functie/Organisatie*
Majoor, Frank CdP Nederlandse Permanente Vertegenwoordiging bij de NAVO – Ministerie van Buitenlandse Zaken
Molen, Erik van der Lid Abvakabo Ondernemingsraad – Ministerie van Buitenlandse Zaken
Nijhuis, Ivar Directeur Directie Communicatie – Ministerie van Buitenlandse Zaken
Oosterom, Karel van DG Politieke Zaken – Ministerie van Buitenlandse Zaken
Ploumen, Lilianne Minister voor Buitenlandse Handel en Ontwikkelingssamenwerking
Plug, Gilles Directeur Directie Noord-Afrika en Midden-Oosten – Ministerie van Buitenlandse Zaken
Rebergen, Christiaan Plv. DG Internationale Samenwerking – Ministerie van Buitenlandse Zaken
Reynders, Michiel Lid VerYBZ – Ministerie van Buitenlandse Zaken
Röling, Tanja Voorzitter FEE vrouwennetwerk BZ – Ministerie van Buitenlandse Zaken
Rosenthal, Uri Vml. Minister van Buitenlandse Zaken
Rosing, Jan Reinder Lid VerYBZ – Ministerie van Buitenlandse Zaken
Roza, Vincent Lid VerYBZ – Ministerie van Buitenlandse Zaken
Scheepers, Klara Hoofd SZW PV EU Brussel – Ministerie van Buitenlandse Zaken
Schippers, Marjan Hoofd Afdeling OS PV EU Brussel – Ministerie van Buitenlandse Zaken
Schouten, Erica Plv. PV NAVO Brussel – Ministerie van Buitenlandse Zaken
Schuwer, Henne CdP Brussel – Ministerie van Buitenlandse Zaken
Soest, Anne van Directie Multilaterale Instellingen en Mensenrechten – Ministerie van Buitenlandse Zaken
Soons, Natascha Lid FEE vrouwennetwerk BZ – Ministerie van Buitenlandse Zaken
Steeghs, Renilde Directeur Internationale Cultuur Eenheid – Ministerie van Buitenlandse Zaken
Swartbol, Rob DG Internationale Samenwerking – Ministerie van Buitenlandse Zaken
Tarqaat, Kenza Lid VerYBZ – Ministerie van Buitenlandse Zaken
Timmer, Ed Lid Abvakabo Ondernemingsraad – Ministerie van Buitenlandse Zaken
Timmermans, Frans Minister van Buitenlandse Zaken
Toorn, Willemijn van der Lid FEE vrouwennetwerk BZ – Ministerie van Buitenlandse Zaken
Triest, Hermien van Hoofddirecteur Personeel en Organisatie – Ministerie van Buitenlandse Zaken
Velde, Janna van der PV NAVO Brussel – Ministerie van Buitenlandse Zaken
Versteeg, Jan Nederlands plv. Permanent Vertegenwoordiger bij de NAVO – Ministerie van Buitenlandse Zaken
Voorneman, Blanche Lid VerYBZ – Ministerie van Buitenlandse Zaken
40 | Modernising Dutch diplomacy
Naam Functie/Organisatie*
Vos, Reinout Directeur Bureau Secretaris-Generaal – Ministerie van Buitenlandse Zaken
Vries, Pieter de PV NAVO Brussel – Ministerie van Buitenlandse Zaken
Wel, Frans van der Inspecteur Inspectie Ontwikkelingssamenwerking en Beleidsevaluatie – Ministerie van Buitenlandse Zaken
Werner, Jaap Directeur Directie Europa – Ministerie van Buitenlandse Zaken
Wiers, Jochem Hoofd Eenheid Strategische Analyse – Ministerie van Buitenlandse Zaken
Wissels, Erlijne Lid VerYBZ – Ministerie van Buitenlandse Zaken
Andere Ministeries RijksoverheidNaam Functie/Organisatie
Barnard, Herbert Directeur Internationale Zaken – Ministerie van Volksgezondheid, Welzijn en Sport
Berg, Marten van den** Plv. DG Internationale Betrekkingen – Ministerie van Economische Zaken
Blok, Stef Minister voor Wonen en Rijksdienst – Ministerie van Binnenlandse Zaken en Koninkrijksrelaties
Bonnet, Dirk Jan Hoofd Internationale Zaken – Ministerie van Binnenlandse Zaken en Koninkrijksrelaties
Buiteveld, Anke Directeur Internationaal Beleid – Ministerie van Onderwijs, Cultuur en Wetenschap
Dekker, Karin Hoofd Afdeling Mondiale Zaken – Ministerie van Onderwijs, Cultuur en Wetenschap
Donker, Marianne Directeur Publieke Gezondheid – Ministerie van Volksgezondheid, Welzijn en Sport
Hammersma, Marjan DG Cultuur en Media – Ministerie van Onderwijs, Cultuur en Wetenschap
Hell, René van** Directeur Directie Internationaal Ondernemen – Ministerie van Economische Zaken
Jansen, Wim Plv. Directeur Buitenlandse Financiële Betrekkingen – Ministerie van Financiën
Leijten, Manon DG Algemene Bestuursdienst – Ministerie van Binnenlandse Zaken en Koninkrijksrelaties
Meijenfeldt, Hugo von Plv. DG en Klimaatgezant – Ministerie van Infrastructuur en Milieu
Smits, Simon** DG Internationale Betrekkingen – Ministerie van Economische Zaken
Terstegen, Jan Directeur Europees en Internationaal – Ministerie van Veiligheid en Justitie
Twiss, Jack Raadsadviseur Kabinet Minister President – Ministerie van Algemene Zaken
Wall Bake, Jan Willem van den
Vervanger van Dhr. Jansen in de CoRIA – Ministerie van Financiën
Modernising Dutch diplomacy | 41
Vertegenwoordigers Caribische KoninkrijksdelenNaam Functie/Organisatie
Candelaria, Robert Directeur Curaçao – Kabinet van de gevolmachtigde Minister van Curaçao
Geerlings, Perry Adjunct-Directeur Sint Maarten – Kabinet van de gevolmachtigde Minister van Sint Maarten
John, Shandra Wnd. Directeur Aruba – Kabinet van de gevolmachtigde Minister van Aruba
Maatschappelijk middenveldNaam Functie/Organisatie
Engel, Paul Directeur European Centre for Development Policy Management
Grotenhuis, René Chief Executive Officer Cordaid
Gruiters, Jan Chairman of the Board of Directors van IKV Pax Christi
Ham, Jack van Vml. Directeur ICCO
Koonstra, Anton Directeur Price Waterhouse Coopers
Pont, Yannick du Directeur organisatie Spark
Veldman, Dianda Directeur Rutgers WPF
Overige functionarissenNaam Functie/Organisatie
Achten, Dirk Secretaris-Generaal Belgisch BZ
Daele, Frans van Kabinetschef Van Rompuy
Doherty, Kathleen Deputy Assistant Secretary of State European and Eurasian Affairs
Geerkens, Frank Ambassadeur van België in Nederland
Grauls, Jan Belgische PV VN
Gualtieri, Roberto Lid van Europees Parlement
Hartingh, Thomas Mayer Oostenrijkse PV EU
Kaag, Sigrid Assistent Secretaris-Generaal voor UNDP
Kerchove, François de Kabinetschef Minister Reynders
Korte, Joost Plv. DG Uitbreiding – Europese Commissie
Middelaar, Luuk van Kabinet van Rompuy
O’Sullivan, David Chief Operating Officer – Europese Diplomatieke Dienst
Ross, Alec J. Senior adviseur voor innovatie van State
Verbiest, Hugo Kabinet van Secretaris-Generaal Dirk Achten
Wortmann, Corien Lid van Europees Parlement
Wouters, Dirk Belgische PV EU
42 | Modernising Dutch diplomacy
Overige gespreksgenotenNaam Functie/Organisatie
Ham, Peter van Senior onderzoeker – Instituut Clingendael
Hocking, Brian Auteur rapport “Futures for Diplomacy”
Melissen, Jan Hoofd Clingendael Research/Auteur rapport “Futures for Diplomacy” – Instituut Clingendael
Okano-Heijmans, Maaike Senior onderzoeker – Instituut Clingendael
Putten, Frans Paul van der Senior onderzoeker – Instituut Clingendael
Quaedvlieg, Winand Secretaris Internationaal Economisch Beleid – VNO NCW
Scholte, Jan Aart Professor of Politics and International Studies bij Warwick University
Silvis, Lennart Directeur Netherlands Water Partnership
Slaughter, Anne-Marie Architect eerste Quadrennial Diplomacy and Development Review
Stienen, Petra Vml. BZ medewerker
Talbott, Strobe Vml. Deputy Secretary en president van Brookings
Ton, Ron Hoofd Clingendael Academy – Instituut Clingendael
Wheelock, Arthur Directeur National Gallery Washington D.C.
Wientjes, Bernard Voorzitter VNO NCW
Wilke, Paul Senior onderzoeker – Instituut Clingendael
* Gesprekspartners zijn vermeld met functie die zij ten tijde van het gesprek bekleedden.
** Gesprekspartners zijn overgegaan naar DG Buitenlandse Economische Betrekkingen van het Ministerie van Buitenlandse Zaken.
Modernising Dutch diplomacy | 43
3 Literature
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Castells,Manuel,The Information Age: Economy, Society and Culture, Volume I: The Rise of the Network Society,Oxford:Blackwell1996.
Cohen,Roger,‘DiplomacyisDead’,New York Times,2013.
Coleman,WilliamenAlinaSajed,Fifty key thinkers on Globalization,NewYork:Routledge2012.
Colijn,Ko,‘DiplomatieindeNieuweWereld’,Internationale Spectator, nr.3(2013),pp.40-41.
Colijn,Ko,‘Nationaalbelangenbuitenlandpolitiek’,2013[geenofficiëlepublicatie].
DepartmentofStateUSA, Leading Through Civilian Power: The First Quadrennial Diplomacy and Development Review,2010.
Evans,AlexenDavidSteven,Organizing for Influence: UK Foreign Policy in an Age of Uncertainty,London:ChathamHouse2010.
Hocking,Briane.a.,Futures for diplomacy: Integrative Diplomacy in the 21st Century, DenHaag:NetherlandsInstituteofInternationalRelationsClingendael2012.
InternationalRelationsandSecurityNetwork,The State in a Globalizing World, 2012.
Jacobs,Jane,Systems of Survival: A Dialogue on the Moral Foundations of Commerce and Politics,NewYork:RandomHouseInc.1992.
Kabalt,Joerie.a.,BZ als kennisintensieve Organisatie,Utrecht:Kessels&Smit,TheLearningCompany2012.
Knottnerus,J.A.e.a.,Aan het buitenland gehecht: over verankering en strategie van Nederlands buitenlandbeleid,RapportWetenschappelijkeRaadvoorhetRegeringsbeleidno.85,Amsterdam:AmsterdamUniversityPress2010.
KorthalsAltes,F.e.a.,Ongelijke Werelden: Armoede, Groei, Ongelijkheid en de rol van internationale samenwerking,AdviesraadInternationaleVraagstukken,2012.
Krasner,StephenD.,Sovereignity: organized hypocrisy,Princeton:PrincetonUniversityPress1999.
Lohmeyer,Rudolph,Next Generation Strategic Management for Diplomacy: The Capabilities Required to Manage Strategic Capital and Drive Policy Innovation in a Radically Changing World,2011.
Lohmeyer,Rudolphe.a.,The Foreign Ministry of the Future Conference: The Foreign Ministry at a Tipping Point,2011.
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Lunde,LeivenHenrikThune,National interest - foreign policy for a globalized world, the case of Norway,Oslo:CappelenDamm2008.
MinisterievanBuitenlandseZaken,Introductiedossier Ministerie van Buitenlandse Zaken,2010.
MinisterievanBuitenlandseZaken,Modernisering van de ontwikkelingssamenwerking,2012.
MinisterievanBuitenlandseZaken,Nota modernisering Nederlandse diplomatie,2011.
MinisterievanBuitenlandseZaken,Nota wat de wereld verdient: een nieuwe agenda voor hulp, handel en investeringen,2013.
MinisterievanBuitenlandseZaken,Organisatie in Balans 2005-2010,2011.
MinisterievanBuitenlandseZaken,Samen uit, Samen thuis: Kaderafspraken interdepartementale samenwerking op de Post,2010.
MinisterievanBuitenlandseZaken,Sociaal jaarverslag 2010,2010.
MKBServicedesk,Het diplomatieke postennetwerk voor ondernemers,2012.
Nye,JosephS.,The Paradox of American power,Oxford:OxfordUniversityPress2002.
Schaik,Louisevan,‘TheGlassishalf-full:EEASseenthroughDutcheyes’,in:Balfour,R.and
Raik,K.(eds.)TheEuropeanExternalActionServiceandnationaldiplomacies,European Policy Centre,no.73(2013),pp.1-177.
Slaughter,Anne-Marie,A New World Order: Government Networks and the Disaggregated State,
Princeton:PrincetonUniversityPress2004.
Slaughter,Anne-Marie,‘DisaggregatedSovereignty:towardsthePublicAccountabilityof
GlobalGovernmentNetworks’,Government and Opposition,vol.39(2004),pp.159–190.
Stienen,Petra,Het andere Arabische geluid. Een nieuwe toekomst voor het Midden-Oosten?, Amsterdam:NieuwAmsterdam2012.
Swartbol,Rob,Rapport aanpassingen plaatsingsproces,2011[geenofficiëlepublicatie].
Zaring,D.,‘Networkinggoesinternational:Anupdate’,Annual Review of Law and Social Science,vol.2,pp.211-229.
Modernising Dutch diplomacy | 45
4 Trends in diplomacy and mission networks A survey of eight foreign services
TheMinistryofForeignAffairs(BZ)facesadifficulttaskoverthenextfewyears.TheRutteIandRutte-AsschercoalitionagreementslaiddowncutsattheMinistryof€107millionintotal,atleast€40millionofwhichwillbedirectedattheinterministerialmissionnetwork.BZhasappointedanindependentAdvisory Committee on Modernising the Diplomatic Service to adviseforeignministerFransTimmermanswithaviewtoimplementingthesecutbacksasefficientlyandeffectivelyaspossible.
TohelptheCommitteeinthistask,anumberofmissionswereaskedtoconsulttheirhostcountries’foreignministriesaboutdevelopmentsattheirmissionsandintheirpracticeofdiplomacy.FourEuropeanmissions(Denmark,Germany,theUnitedKingdomandSweden)andfournon-Europeanmissions(Australia,Canada,TurkeyandSouthKorea)wereconsulted.Anumberofoverarchingconclusionscanbedrawnfromtheresponsessubmittedbythemissions;ourinitialfindingsaresetoutbelow.
Itisimportanttonotethattherearewidevariationsbetweentheorganisationalstructureofmostforeignservicesandtheirmissionnetworks.Thismakesitdifficulttodrawcompari-sons.Itisclear,however,thatotherforeignservicesare–liketheNetherlands–facingdifficultdecisions.
1. Chronic underfunding vs. substantial investmentTheresponsesrevealedthat,liketheNetherlands,manyforeignministriesarebeingaffectedbycutstoalesserorgreaterdegree.Thishasresultedinreorganisationswithinministries,closureoforcutbacksatmissions(mainlyconsulates-general)andreductionsinstaffinglevels.Inadditionsomeareembarkingonco-locationarrangementswithothercountries,orareexploringthisidea.Whatevertheultimateoutcome,itisclearthatforeignministriesarewrestlingwiththequestionofwhatcutstomake,andhow.
Co-locationFouroftheeightministries–Canada,Denmark,GermanyandtheUnitedKingdom–refer-redtopossibleco-locationswithpartnercountries.
• Canadaiscurrentlyexploringthepossibilityofco-locationwiththeUnitedKingdom,AustraliaandNewZealand.Notmuchprogresshasbeenmadetodate;accordingtotheCanadianforeignministrytheconceptofembassiessharedbytwoorthreedifferentcountriesiscurrentlyanunrealisticambition.Forthetimebeing,cooperationwithothercountriesiscurrentlyfocusedonsharedservices.
• Denmarkisalsolookingintoco-location.Itsforeignministryisfocusingfirstonco-locationwithotherNordiccountries.Unofficially,theideaiscirculatingof‘asingleNordicambassadorsharingamissionwithrepresentatives(notambassadors)oftheotherNordiccountries’.
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• Inprinciple,GermanyhasnopreferenceforEuropeanorbilateralcooperationwhenitcomestoitsmissionnetwork.Co-locationisanoptionforGermany,wherepractical.OneexampleistheplanandpreparationsforGerman-Dutchco-locationinRabat.
• TheUnitedKingdomhasmainlyfocusedonclusteringmissions.Forexample,theNordic-Balticnetwork(ofeightmissions)ismanagedbytheheadofmissioninStockholm,andtheBeneluxmissionsbytheheadofmissioninTheHague.
Deployment of local staffOnecleartrend,whichtosomeextentcanbelinkedtothewaveofcuts,istheuseoflocalstaffatthemissions.Insomecases,localstaffaccountfor50%ormoreofallemployees.ThisappliestotheUnitedKingdom,Germany,Denmark,Sweden,CanadaandSouthKorea.TheBritishforeignofficeemploysthemostlocalstaff:in2012/2013,10,500ofits15,000staffwerelocalemployees.
Other measures associated with cutbacksCertainmeasuresspecifictoforeignministrieswerementionedinadditiontothemeasuresreferredtoabove.Forexample,Denmark’s‘flexiblerepresentationinitiative’enablestheforeignministrytoadjustitsinternationalpresenceinlinewiththechangingexpectationsandwishesofitsexternalpartners.ThebasicprincipleisthattheadministrationofindividualDanishrepresentationswillberegionalised(forexample,intheBalticregion),resultinginsignificantcostsavings.
Sweden,ontheotherhand,hasoptedforStockholm-basedAmbassadors(SBAs).Therearecurrently10SBAs,covering33countries.Theyareassistedbyaspecialdepartment/supportofficeinStockholm.Althoughthisconstructionischeaperthanmaintainingembassies(anSBAcostsSEK2millionayear,comparedwithSEK10to12millionforanaverageembassy),Swedenhassaidthatinprincipleitpreferstohavepermanentambassadorsincountriesofaccreditation.
AustraliaandCanadahavealsobeenhitbycuts,butaretryingtosparetheirmissionswhereverpossible.Interestingly,inadditiontotraditionalmeasuresassociatedwithcutbacks,Canadaisturningtofar-reachingcooperationandregionalisationasawayofaccommodatingthecuts.Itiscurrentlyrunningapilotprojectinvolvingtworegionalservicecentres(inWashingtonandLondon),withthecentreinLondontakingresponsibili-tyforhumanresourcesinEurope,theMiddleEastandAfrica.Initialexperienceshavesofarbeenpositive,andthecentrewillundergoitsfirstevaluationinthespring.TheCanadianforeignministryalsochargesotherministriesfortheiruseofitsmissions,meaningtheyshareresponsibilityforrent,administrativesupportandfacilitiesservices;evenprinterpaperispaidforoutofajointbudget.
Substantial investment in mission network/foreign ministryNocutbacksarebeingmadeattheTurkishorSouthKoreanforeignministries.Infactthey(andtheGermanforeignoffice)haveaclearambitiontoleavealarge‘geographicfootprint’intermsoftheirmissionnetworks.Toachievethis,theyareinvesting,forexample,inmore
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Comparing the two extremes‘In recent years, the Australian Department of Foreign Affairs and Trade has suffered from chronic under-funding. The Australian diplomatic network is the smallest of all the G20 countries.’
vs.
‘Turkey operates a wide network with ambitious levels of growth, and it is investing heavily in its missions. The rationale behind this is the wish to leave a clear geographic footprint.’
staff(Turkey)andinsocialmedia,onlinepresenceanddigitisation(SouthKorea).SouthKorearecentlyopeneda‘socialnetworkingservice/communicationchannel’toinformthepublicaboutforeignpolicy,providethemwithtraveladvice,etc.
2. Economic diplomacy: focus on BRICS?OneobservabletrendamongEuropeanforeignministriesistheestablishmentandexpansionofmissionsinstrategicareas,i.e.emergingmarkets(suchastheBRICScoun-tries,Next20etc.)Thisnewfocusispartlybeingfinancedattheexpenseofconsulates-gene-ralandembassiesinEurope.Thisisthecase,forexample,withGermanyandtheUnitedKingdom.
Inrecentyears,theGermanforeignofficehasbeenreducingthestaffcomplementatembassiesinEuropewhileincreasingstaffinglevelsintheBRICScountries,theNext20andcountriesrichinrawmaterials.Berlinhasalsostatedthatitbelievesinthepowerofitsownnetworkofmissions,especiallywhereGermaneconomicinterestsareconcerned.TheUnitedKingdomisclosingEuropeanconsulates-generalinordertofinancetheexpansionoropeningofmissionsinemergingmarkets.Itisalsoposting100‘prosperityofficers’toemergingeconomies.
InDenmarktherehasevenbeenashiftintheforeignministry’spolicypriorities:‘Thereislessfocusonpoliticalwork;prioritieshaveshiftedtopromotingtradeandemploymentinDenmark.’Accordingly,expandingpoliticalandeconomiccooperationwithAsianpartnershasbeenidentifiedasoneofthecountry’sfivepolicyprioritiesfor2013.
Non-Europeanforeignministriesarealsofocusingoneconomicdiplomacy:
• Turkeyaimstobeamongthetop-tenglobaleconomiesby2023.Consequently,itsforeignpresencewilllargelybedeterminedbytrade(thisisreflectedbythepresenceofTurkishChambersofCommerceinvariouscountries).
• SouthKoreanmissionsarenolongerfocusingasmuchonpolitics,turningtheirattentioninsteadtoeconomicdiplomacyand‘nationbranding’.Theaverageembassy
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allocates50%ofitstimetotheeconomy,20%tocultural/publicdiplomacy,20%toconsularworkand10%topolitics.TheKoreaTrade-InvestmentPromotionAgency(KOTRA)–whichfallsundertheMinistryofKnowledgeEconomy–hasofficesinmanycountries,offeringKoreanbusinessesarangeofservices(e.g.matchmaking).
• DespitefacingsimilarlevelsofcutstotheNetherlands,Canadaisnotcuttingbackonconsularservicesortradepromotion/economicdiplomacy(e.g.inemergingmarkets).Infact,since2006,15newtradeofficeshavebeenopenedinemergingmarkets.
• EventheAustralianforeignoffice–whichhaslimitedmeansatitsdisposal–isstrivingtoachieveabiggerdiplomaticfootprintinAsiabyopeningmissionsinChengdu(China)andeasternIndonesia(potentiallySurabaya),andbyappointinganambas-sadortoASEAN(basedinJakarta).
3. The foreign ministry’s role within the governmentIntheirresponses,fouroftheeightministriesreferredtoashiftintheirlevelofinfluenceinsomeareas.Infact,theCanadianandTurkishforeignministriesarenolongerbydefinitionresponsiblefordeterminingforeignpolicyinallaspects.
TheDanishforeignministryisunusualintermsofitsclosecooperationwithparliament.Thesetiesarestrong,particularlywhenitcomestotheroleofDanishdiplomatsinnegotiationsbothwithintheEUandfurtherafield,andparliamentisconsultedoften.
InSouthKorea,theforeignministryistherecognisedcoordinatorofforeignpolicy,withlineministriesoftenresponsibleforthesubstanceofspecificpolicy.However,theforeignministry’spositionisreliantinpartonthepresident,whohasconsiderableexecutivepowers.
4. Image problemsSomeoftheministriesconsultedforthesurvey(Australia,CanadaandtheUnitedKingdom)areexperiencingthesamesortofimageproblemsastheDutchforeignministry.Theyarewrestlingwiththeissueofhowtomakediplomaticworktransparent,andhowbettertoexplainwhattheydo.Someservicesareworkingtopresentamorefrugalandbusiness-likepublicimage,forexampleintermsofthebuildingschosenasresidencesandoffices.
5. Human resources policy and outreach Itisnotablethatmanyministries(Turkey,Germany,Sweden,DenmarkandAustralia)donotprovideanyconcretedetailsintheirresponsesregardingtraining,orotherstaffdevelop-mentprocesses.Thereisalsolittleinformationonoutreachactivities.
TheSouthKoreanforeignministry,ontheotherhand,setsoutinmeticulousdetailitsideasonhowtoimprovehumanresourcespolicy,investmentintrainingandoutreach,andencouragingopencompetition.Byencouragingopencompetition,theministryhopestorecruitandretainstaffwhoareabletotakeadvantageoftheglobalchangesKoreahasobserved(includingtheriseofChinaandincreasingcompetitionforexportmarkets,energyandrawmaterials).TheaimisalsotouseopencompetitiontomakeKoreandiplomacy
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moreeffectiveandsostrengthenthecountry’sinternationalposition.Interestingly,trainingcoursesattheKoreaNationalDiplomaticAcademy(KNDA)areavailablenotonlyfornewdiplomatsbutalsoformoreseniorofficialswithinthegovernment.Forexample,theKNDAoffersa10-monthexecutiveprogrammeformanagersatDGlevel.
6. Internet and digitisationMostministries(75%)areactiveontheinternetthroughsocialmedia,orareexploringtheoptionsfordigitisation.TheseactivitiesvaryfromTwitter/WeibotoonlinediscussionforumsandaCyberBusinessService.Thenon-EuropeanministriesappearmoreadvancedinthissensethantheirEuropeancounterparts,butonecannotdrawsuchaconclusionwithcertaintyasDenmarkandSwedendidnotrefertodigitisationintheirresponses.
SouthKoreahasoneofthemostadvancedministriesintermsofdigitisation.AllSouthKoreanmissionsusetheCyberBusinessService(forsupplyingKoreanbusinesseswithdigitalinformationoncertaincountries),plusthesocial-communicationchannelreferredtoearlier(forprovidingthepublicwithtraveladviceandinformationonforeignpolicy).
Itisworthnotingatthispointthatnoteveryministryisequallyopentotheuseofsocialmedia(forexample,becauseofsecurityconcerns).InAustralia,acautiousapproachistakentotheuseofsocialmediabyindividualministryofficials,andonlyalimitednumberofdesignatedambassadorshavebeengrantedpermissiontoTweet.
InCanada,too,theuseofsocialmediaisinitsinfancy,partlybecauseofstrictsupervisionfromabove.Thereislittlescopeforusingsocialmediaforprofessionalpurposes,andmanyelementsneedtobeagreedinadvance.Thismeansthereisatendencytokeepinformationgeneral,asthemostinterestingdetailsareperceivedtobetooconfidential.TheUKhasdecidedthattheforeignofficewillnotoperatethiskindofcontrol,workingontheprinciplethat,Ifyoucan’ttrustanambassadortoblog,howcanyoutrusthimtodealwiththepresident?
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Advisory Committee on Modernising the Diplomatic Service
Members:Arthur Docters van LeeuwenKo Colijn Tineke Lodders-ElfferichPieter MarresVictor Schoenmakers
Executive secretaries:Margriet VonnoTanja RölingEnita Dautovic
29 May 2013
vijfkeerblauw | b99-618420