Good offices: effective dialogue makes great things possible

Since the United States and Russian Federation announced that presidents Joe Biden and Vladimir Putin would be meeting in Geneva on 16 June, all eyes have been on this upcoming event. Switzerland is making preparations behind the scenes to ensure that the summit can take place in a discreet environment, free from interruption. It has good and long-standing relations with both countries. Switzerland considers constructive dialogue between the two major powers as a basis for solving intergovernmental and global issues. As such, the meeting between President Biden and President Putin falls within the framework of Switzerland's good offices, through which the country supports dialogue at the request of the parties involved.

Switzerland's good offices are a long-standing tradition, and often take place on the ground where political solutions are hindered by conflict. International Geneva frequently plays a leading role, too, with the city having played host to events of historical significance on a number of occasions. Notable examples include the signing of the peace accords at the end of the Indochina War in 1954, and the summit between Ronald Reagan and Mikhail Gorbachev in 1985.

"Good offices" is an umbrella term used for various crisis management and conflict resolution tools in Swiss foreign policy.  In particular it involves:

• Hosting international conferences and high-level meetings
• Representing foreign interests in a country
• Facilitating dialogue or acting as a mediator in conflicts

The aim of good offices is to settle differences and conflicts between and within countries by political means. Often, just trying to keep channels of communication open is an important step in preventing further escalation in a conflict and cushioning the impact of disputes. "Without dialogue, nothing works. But effective dialogue makes great things possible," says Federal Councillor Ignazio Cassis, head of the Federal Department of Foreign Affairs (FDFA).

All the instruments of good offices have one thing in common – getting parties to engage in dialogue. Switzerland draws on the expertise and experience gained from its own political system in this regard – as cooperation between all stakeholders, mutual respect and consensus-seeking are key elements in the political process at national, cantonal and municipal level. "Our political system is built on respect and collaboration. This is why – as a country with four national languages and four cultures – we are able to keep pooling our strengths and moving forward," says Cassis, adding "mediation and compromise are in Switzerland's DNA, both in our own political processes and in our foreign policy cooperation."

However, Switzerland never imposes its good offices. It either offers to act as a mediator or is requested to do so by states or parties. In practice, however, Switzerland only provides good offices if all conflicting parties agree.

When countries break off diplomatic relations in part or in full because of differences, dialogue also breaks down. In such cases, Switzerland can step in through a protecting power mandate and safeguard the interests of a state by performing diplomatic tasks and consular services. In this way, it allows the parties to maintain relations.

Switzerland first acted as a protecting power in the 19th century when it looked after the interests of the Kingdom of Bavaria and the Grand Duchy of Baden in France during the Franco-Prussian War in 1870–71. The number of protecting power mandates steadily rose over time, reaching a peak of 219 individual mandates during the Second World War. The end of the Cold War and the decline in conflicts between states led to a fall in the number of Swiss protecting power mandates. Recently, however, demand for Switzerland's assistance has increased again. It currently has seven mandates.

As a neutral country that maintains good relations with all countries, in keeping with the principle of universality, Switzerland is regularly asked to host peace talks, negotiations and high-level meetings. Geneva is particularly suited to this as many countries already have representations there, while numerous international organisations (such as the UN and the ICRC), economic and scientific actors, and non-governmental organisations also have offices there. Switzerland acts as host state in this area. Its goal is always to ensure optimal conditions and the right environment for political talks.

Over the last 30 years, conflicts between states have increasingly given way to conflicts within states, as in Syria. Conflicts within individual states do not require protecting power mandates. In regional, religious and ethnic disputes, Switzerland uses other instruments of good offices to promote dialogue. When Switzerland brings the parties to the table without taking part in the dialogue itself, this is facilitation. When Switzerland takes part in peace processes and is actively involved in seeking solutions, this is mediation. Mediation and facilitation usually take place behind the scenes and require discretion, diplomatic sensitivity and perseverance.

Switzerland has accompanied over 30 peace processes in more than 20 countries in recent years. One example is Mozambique, where in 2013 civil war flared up again.  In 2016, the government and opposition party called on Switzerland's good offices. Switzerland acted as mediator in the peace talks, which culminated in a peace treaty on 6 August 2019. When Federal Councillor Ignazio Cassis attended the ceremony marking the signing of Mozambique's peace treaty, he emphasised the importance of good offices, saying: "Switzerland has once again made a pivotal contribution through its good offices and neutrality, and especially its outstanding diplomatic professionals."