Luxembourg threw a spanner in the works of EU diplomacy this week. Foreign Minister Xavier Bettel, the sole voice of opposition among the EU-27, blocked a package of sanctions against Rwanda over its alleged backing of M23 rebels in eastern Democratic Republic of Congo.
Small Country Makes Big Waves in Brussels Meeting
The EU Foreign Affairs Council gathered in Brussels on 24 February to tackle the worsening crisis in eastern DRC.
While ministers agreed to suspend EU-Rwanda defence consultations, a further package targeting Rwandan military officers and M23 leaders fell through when Luxembourg wielded its veto power.
"I think it is important, before wanting to take sanctions against Rwanda, to wait for this result, these next three or four days, to see if we are going in the right direction," Bettel told reporters, referring to ongoing African-led peace talks.
The Belgian newspaper De Standaard headlined “Luxembourg blocks sanctions against Rwanda,” noting the surprise among EU members, particularly Belgium, which had strongly backed the measures.
The UK has taken a stronger line, announcing it will stop attending Rwandan government events and suspend most aid to the country.
Rwanda-M23 Links and Mineral-Rich Stakes
Luxembourg’s position has further drawn attention to the complex Congo conflict that underlies this diplomatic standoff.
DRC accuses neighbouring Rwanda of supporting M23 rebels who have seized control of Goma and Bukavu, major cities in eastern DRC.
UN reports back these claims, suggesting that roughly 4,000 Rwandan troops support the rebel group. The fighting has killed at least 7,000 people and driven millions from their homes.
Eastern DRC’s rich mineral deposits, including coltan used in smartphones and electric car batteries, lie at the heart of the struggle. The DRC government claims Rwanda smuggles these resources to global markets.
Luxembourg-Rwanda Economic Ties Under Scrutiny
Luxembourg’s outlier position has stoked questions about its motives. Some EU diplomats hint at growing economic links between the two small nations.
In June 2022, Bettel visited Rwanda with Economy Minister Franz Fayot. During this trip, they discussed a partnership between the financial centres of Kigali and Luxembourg.
"Rwanda and Luxembourg have enjoyed excellent relations since the 1960s, which have their roots in the traditional field of development cooperation," Bettel remarked at the time.
The Luxembourg Cooperation Circle of NGOs expressed shock at the veto.
Sebastian Weier, their advocacy head, told RTL that Bettel had "failed to take a clear stance" on the conflict.
Punching Above Their Weight
Small nations can wield outsized influence in international forums. Luxembourg’s decision to go against the grain exemplifies small state diplomacy. This diplomatic practice enables sovereign countries with limited material resources to overcome external vulnerability through creative strategies.
Both Luxembourg and Rwanda are small states engineering outcomes within larger entities.
While Luxembourg seeks to influence EU foreign policy, Rwanda exerts substantial sway over the DRC, a country more than eighty times its size.
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Read also:
Bukavu Falls to M23 in Eastern Congo
No Peace on the Horizon Despite M23 Ceasefire in Eastern Congo
Congo Crisis Escalates as M23 Eye Up More Territory
