EU Accession: How Iceland might start heading to Brussels

UNCLAS SECTION 01 OF 03 REYKJAVIK 000011 SENSITIVE SIPDIS STATE FOR EUR/NB, INR-B OSLO FOR DATT DOD FOR OSD-P (FENTON) TREASURY FOR LAWRENCE NORTON AND ERIC MEYER E.O. 12958: N/A TAGS: PGOV PREL ECON EUN IC SUBJECT: EU Accession: How Iceland might start heading to Brussels Ref: 08 Reykjavik 286 ¶1. (SBU) Summary: After the October financial crash, possible European Union (EU) membership and the adoption of the euro have become the most important political issue in Iceland. Iceland's political parties are wrestling with how to adjust their policies to accommodate this new reality (reftel). Post offers the following projection for the mechanics of an Icelandic decision to accede to the EU, assuming positive comments by EU Enlargement Commissioner Olli Rehn are an accurate indicator of the mood in Brussels and other EU capitals. End summary. General Background -------------- ¶2. (U) After the October financial crash, possible European Union (EU) membership and the adoption of the euro have become the most important political issue in Iceland. Only one political party, the Foreign Minister's Social Democratic Alliance (SDA),is outright pro-EU. On January 16, the Progressive Party (PP) decided to put EU accession negotiations on the party agenda given certain conditions. One more is likely to move in that direction at the end of January, namely the Prime Minister's Independence Party (IP). The Left-Green Movement (LGM) will most likely continue to be against EU membership, although it has been trying to placate voters by saying they would not be against holding a referendum on whether or not to start accession negotiations. The Liberal Party (LP) is reviewing the issue and will make a final decision at a party meeting in April. The LP has been getting little support in the polls lately and could be wiped out in the next elections, that is if it fails to garner five percent of the vote that is needed to get at least one Member of Parliament. January-February 2009 Progressive Party -------------- ¶3. (SBU) On November 15, the PP central committee decided to move the party general meeting up to January 16-18, instead of holding it in the fall of 2009. The general meeting passed a proposal stating that Iceland should start accession negotiations with the EU, but offered a detailed list of conditions for Icelandic membership. Some of these -- particularly on the use of Icelandic natural resources and fisheries -- could pose challenges in talks with Brussels. ¶4. (U) On November 17, PP Chair Gudni Agustsson resigned as chairman of the party and as Member of Parliament. On December 4, PP Deputy Chair Valgerdur Sverrisdottir said she would not seek reelection as Deputy Chairman and would not be a candidate for the chairmanship of the party either. Hence, the PP elected new leadership at the general meeting. The new chairman is a young political novice, Sigmundur David Gunnlaugsson, a former news reporter. In so doing, the party turned its back on representatives of the past, as the positions of deputy chair and secretary were also filled with relatively new people. ¶5. (SBU) In terms of party following it is difficult to say whether this change in policy would have a positive or a negative support, because it could simultaneously turn off rural voters, yet attract urban voters. However, the election of the new leadership may revitalize the party and make a more attractive alternative to voters. Independence Party -------------- ¶6. (U) The central committee and the parliamentary group of the IP decided on November 14 to move the party general meeting up to January 29-February 1, instead of holding it in the fall of 2009. The central committee and the parliamentary group also decided to appoint a European Committee to discuss the pros and cons of EU membership and reassess Iceland's position vis-a-vis the EU. The European Committee is supposed to conclude its work before the general meeting, and meeting attendees will then vote on a proposal stating that Iceland should start accession negotiations with the EU. ¶7. (SBU) The party's general meeting is bound to offer heated debates. Most observers anticipate that the proposal on starting accession negotiations will be passed, however, this is not a given. If the proposal is struck down, the future of the current IP-SDA coalition is at risk of falling apart. On December 14, SDA Chair and Foreign Minister Ingibjorg Solrun Gisladottir strongly indicated that a no-vote on that front would mean that the coalition would break down, which would require elections to be held. The pundits do REYKJAVIK 00000011 002 OF 003 not agree on whether the IP could handle a drastic change in EU policy; some say it would split the party, others say it would be left intact. There are three possible scenarios: Scenario 1 The general meeting resolves that Iceland should apply for EU membership and start accession negotiations. The party does not split and probably gains back some of the loss in party support over the preceding months. Scenario 2 The general meeting resolves that Iceland should apply for EU membership and start accession negotiations. The party splits into two factions: 1) The old IP that supported the EU proposal and 2) The home-rule style anti-EU party. The IP will lose a large share of its following, but would maintain the coalition with the SDA. The breakaway party is likely to ally with the LGM on EU membership, especially in the run-up to a referendum on the EU (on accession negotiations and/or membership). Scenario 3 The general meeting resolves that Iceland should not apply for EU membership and start accession negotiations. However, the election on the proposal will be close. The party stays intact, but will probably lose some of its following over to the SDA and/or the PP. Given the close election, voters will see that the IP is split on the issue and pro-EU voters will therefore be reluctant to vote for the party in the next elections. Instead voters will flock to the SDA and PP, which are more likely to move Iceland in the direction of EU membership. ¶8. (SBU) In terms of party leadership, Geir Haarde will most likely be reelected chairman despite some indications of discontent among the party rank-and-file. Deputy Chair Thorgerdur Katrin Gunnarsdottir may be challenged to her position by MP Bjarni Benediktsson, who is tipped to soon replace Bjorn Bjarnason as the Minister of Justice. February 2009 -------------- ¶9. (U) Should the above predictions play out, there will possibly be three pro-EU parties in Iceland: The IP, the PP, and the SDA. All of them will advocate that Iceland apply for EU membership and start accession negotiations. February-April 2009 -------------- ¶10. (SBU) One of two scenarios is likely to happen: 1) The government (IP-SDA coalition) drafts its objectives for accession negotiations, and decides to put the question of whether to start accession negotiations to a referendum. If passed, then the coalition parties present a bill in parliament on a constitutional amendment that would authorize ceding some of Iceland's sovereignty (sharing sovereignty with an international body in which Iceland has membership with full rights). The constitutional amendment would also stipulate that a referendum be held for this amendment to be passed. This would allow Iceland to apply for EU membership. Parliament passes the constitutional amendment. Then parliament would need to be dissolved and new elections called that would be held in the spring, or: 2) The government (IP-SDA coalition) drafts its objectives for accession negotiations, The IP-SDA coalition decides to apply for EU membership and thus start accession negotiations. The coalition parties present a bill in parliament on a constitutional amendment that would authorize ceding some of Iceland's sovereignty (sharing sovereignty with an international body in which Iceland has membership with full rights). The constitutional amendment would also stipulate that a referendum be held for this amendment to be passed. This would allow Iceland to apply for EU membership. Parliament passes the constitutional amendment. Then parliament would need to be dissolved and new elections called that would be held in the spring. April/May 2009 -------------- ¶11. (SBU) Parliamentary elections where EU membership will be fiercely debated. IP-SDA government (possibly with PP participation or support). May/June 2009 -------------- REYKJAVIK 00000011 003 OF 003 ¶12. (SBU) Newly elected parliament passes for the second time the bill on the above-mentioned constitutional amendment. Accession negotiations between Iceland and the EU start in earnest. The negotiations could be concluded by October-December. December 2009-February 2010 -------------- ¶13. (SBU) When negotiations conclude, the government calls a referendum to vote on EU membership per the new constitutional amendment. The other EU member states (27 if no other country has joined by that time) need to approve Iceland's membership at the same time. July 1, 2010 -------------- ¶14. (U) Iceland's EU membership could take effect. Comment -------------- ¶15. (SBU) The above timeline simplifies a number of issues that are likely to be very contentious, both in the domestic political arena as well as in discussions with the European Commission and current EU member states. Beyond the oft-cited fisheries question, there is also the problem of negotiations between Iceland, Britain, the Netherlands, and Germany over loans to cover Icelandic bank deposit guarantees. Further, EU member states, already nervous about the economic strength of the most recent new members, may be wary of admitting highly indebted Iceland, years of positive comments by EU Enlargement Commissioner Olli Rehn notwithstanding. VAN VOORST