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Cablegate: Unsc/Darfur: Cautious Optimism After April 9

VZCZCXRO6893
PP RUEHBC RUEHBZ RUEHDE RUEHDU RUEHGI RUEHJO RUEHKUK RUEHMA RUEHMR
RUEHPA RUEHRN RUEHROV RUEHTRO
DE RUCNDT #0295/01 1061630
ZNR UUUUU ZZH
P 161630Z APR 07 ZDK
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC PRIORITY 1705
INFO RUEHEE/ARAB LEAGUE COLLECTIVE PRIORITY
RUEHZO/AFRICAN UNION COLLECTIVE PRIORITY
RUCNFUR/DARFUR COLLECTIVE PRIORITY
RUEHGG/UN SECURITY COUNCIL COLLECTIVE PRIORITY
RUEHDS/AMEMBASSY ADDIS ABABA PRIORITY 1243
RUEHAE/AMEMBASSY ASMARA PRIORITY 1023
RUEHEG/AMEMBASSY CAIRO PRIORITY 0815
RUEHKH/AMEMBASSY KHARTOUM PRIORITY 0660
RUEHNJ/AMEMBASSY NDJAMENA PRIORITY 0264
RUEHNY/AMEMBASSY OSLO PRIORITY 0722
RUEHRH/AMEMBASSY RIYADH PRIORITY 0134
RUEHSM/AMEMBASSY STOCKHOLM PRIORITY 0503
RUEHTRO/AMEMBASSY TRIPOLI PRIORITY
RHEHNSC/NSC WASHDC PRIORITY

UNCLAS SECTION 01 OF 03 USUN NEW YORK 000295

SIPDIS

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: CD PGOV PHUM PREF PREL SU UNSC KPKO
SUBJECT: UNSC/DARFUR: CAUTIOUS OPTIMISM AFTER APRIL 9
"SUCCESS" IN ADDIS

REF: SECSTATE 48637

USUN NEW Y 00000295 001.4 OF 003


1. (SBU) SUMMARY. At April 12 consultations, United Nations
Security Council (UNSC) Members welcomed news of the apparent
"success" enjoyed by Department of Peacekeeping Operations
(DPKO) Africa Division Director Dmitry Titov at the April 9
UN/African Union (AU)/Sudanese Government of National Unity
(GNU) High-Level Technical Consultations on the Heavy Support
Package (HSP) in Addis Ababa. Titov reported "exemplary
coordination" between the UN and AU at the meeting.
According to Titov, the GNU delegation agreed to everything
in the HSP but needed to consult with President Bashir on the
inclusion of attack helicopters. Bashir's "positive
response" was expected April 13, in time for the upcoming
April 16 briefing to the UNSC by AU Commission Chair Konare.
UK PR and current UNSC President Jones Parry announced his
intention to circulate, once Bashir's response was received,
a draft letter to the Secretary-General (provided by USUN to
UKUN on April 11) authorizing funding for the HSP. Sanctions
were discussed as both incentives for and obstacles to
political progress in Darfur; French PR de La Sabliere was
explicit that it was only because of the threat of sanctions
that a modicum of success was achieved on April 9. Titov
said the April 16 meeting with Konare would focus on possible
timelines for HSP troop generation, results of AU-UN planning
for the hybrid operation, and ways to give new impetus to the
Darfur political process. END SUMMARY.

DPKO REPORTED RELATIVE HSP SUCCESS
----------------------------------
2. (SBU) At April 12 UNSC consultations, DPKO Africa Division
Director Titov reported on the outcome of the April 9
UN/AU/GNU High-Level Technical Consultations on the HSP in
Addis Ababa. Titov had led the UN delegation; AU Peace and
Security Commissioner Djinnit had led the AU team; and GNU
Foreign Affairs Undersecretary Mutrif Siddiq had led the GNU
side. Titov reported "exemplary coordination" between the AU
and UN both before and during the meeting, basing their
explanations to the GNU on the November 16 Addis Ababa
agreements, which were intended to assist the AU Mission in
the Sudan (AMIS) in fulfilling its mandate and supporting the
Darfur Peace Agreement (DPA); on the indivisibility of HSP
elements; and on the transparency of HSP implementation. The
UN and AU countered GNU arguments about the necessity of
adding attack helicopters to AMIS' mandate but assuring that
all military elements requested were intended for their own
self-protection and for the protection of UN and AU forces.
Titov added that AMIS Force Commander Aprezi made an appeal
for such protective elements in the wake of the April 1 and
10 killings of AMIS troops, saying his troops were
"outmanned, outgunned and outmaneuvered." Titov stressed the
pressure from the AU for the UN to assume AMIS financing as
soon as possible.

3. (SBU) According to Titov, the GNU delegation came to Addis
"prepared to make major concessions." Its talking points had
including cooperation between the HSP civilian component and
Sudanese national institutions as appropriate and inclusion
of the GNU as a partner in the implementation of AMIS'
three-sector re-structuring. The delegation also insisted
that African troop contributors be given first crack at HSP
recruitment, but the UN warned that with no reliable TCC
offers and only one "solid" African contributor, this may not
be ultimately feasible (NOTE: The UN plans to convene a new
TCC meeting following Konare's April 16 briefing. END NOTE).
The GNU delegation also asserted its right to executive
policing authority. On the issue of attack helicopters,
al-Sadiq told Titov his justification was sufficient and that
he would revert to President Bashir with a recommendation to
accept this provision. On April 12 the Sudanese PR told
Titov that this recommendation had been approved and that
Bashir was expected to sign off by April 13 "with no
conditions attached." al-Sadiq hoped the UNSC would issue a
statement welcoming this acceptance and condemning the
activity of "spoilers," which had resulted in the deaths of
AMIS peacekeepers.

USUN NEW Y 00000295 002.4 OF 003

4. (SBU) Noting that the April 9 meeting did not address
extending AMIS or finalizing the hybrid, Titov said the April
16 meeting with Konare would focus on possible timelines for
HSP troop generation, results of AU-UN planning for the
hybrid operation, and ways to give new impetus to the Darfur
political process. On command and control of the hybrid,
Titov said the UN was awaiting Bashir's response on the
candidate proposed for Joint Special Representative with
which the GNU "had difficulty." Titov admitted it would take
"months" to generate troops for the hybrid.

MOST MEMBERS WELCOME OUTCOME, OTHERS URGE CAUTION
--------------------------------------------- ----
5. (SBU) Chinese, Qatari and Indonesian representatives
highlighted the effectiveness of engaging the GNU as a
partner in Darfur peacekeeping decisions rather than as a
bystander. The Chinese and South African delegates supported
the idea of a UNSC statement welcoming the HSP consensus
reached in Addis. However, Ambassador Sanders and PRs from
France, Belgium and the UK advised the Council to be cautious
before pronouncing itself, since the GNU had a history of
broken promises on Darfur. Members were unanimous in urging
DPKO to accelerate its preparations for HSP and agreement
with the AU on the hybrid operation. Some Members, including
Qatar and Ghana, spoke to the need to pressure "spoilers" and
DPA non-signatories, who were destabilizing the situation on
the ground and dissuading potential TCCs.

CHAD SITUATION NOW AFFECTING SUDAN
----------------------------------
6.(SBU) Titov updated Members on the deterioration of the
Chad-Sudan border situation, noting that the likely
cancellation of a planned visit by Chadian FM Allam-mi to
Khartoum illustrated the failure of diplomatic efforts to
reconcile the countries' differences, especially after the
April 9 incident at Amdjirama and For Baranga. Russian PR
Churkin recommended engaging AU interlocutors, and the French
delegation, echoed by Ghana, made two interventions calling
for the immediate dispatching of DPKO's advance mission to
N'Djamena, something Titov said would be difficult at the
moment, given that DPKO was "overstretched" (NOTE:
PolMinsCouns got the same response from DPKO A/SYG Annabi
when he made the same suggestion on April 4. French PR de La
Sabliere planned to call DPKO U/SYG Guehenno on April 12 to
reinforce the point. END NOTE). UK PR Jones Parry reminded
that Central African Republic was still a willing recipient
of UN peacekeepers.

SANCTIONS DEBATE STILL LOOMS
----------------------------
7. (SBU) The Qatari representative credited intensified
diplomacy with the positive outcome of the April 9 meeting
and stated that the remaining problems could be resolved
diplomatically, expressing his appreciation to the USG and
the UK for respecting the political space sought by SYG Ban.
He continued that it was important to safeguard the political
achievements made, and that pressure on Khartoum would not
bring further gains, arguing instead that pressure be
directed at those rebels who did not sign the DPA. In
contrast, French PR de La Sabliere, in a surprisingly strong
statement, noted that pressure on Khartoum must be sustained
and that it was the very threat of sanctions that was
responsible for the recent progress.

8. (SBU) Chinese Political Coordinator Li Jun-hua told
PolMinsCouns before consultations that China very much
welcomed the April 9 agreement in Addis and that the UNSC
needed to demonstrate progress on the "political front" to
maintain Sudanese cooperation on the three-phase plan. He
said this argument had been an important part of Beijing's
dialogue with the GNU on the HSP. Li said that the agreement
on the HSP needed to be implemented with "prudence," noting
China's heavy diplomatic lifting to bring the Sudanese along
and mentioning in particular "hard-hitting" conversations
that Sudanese Presidential Assistant Nafie Ali Nafie had

USUN NEW Y 00000295 003.4 OF 003


during his March visit to Beijing. Li suggested
accommodating the Sudanese by approaching Africans for HSP
troop contributions first and only turning to other countries
if Africans could supply them. PolMinscouns argued that we
needed to do whatever would most quickly facilitate HSP
deployment, whatever nationality the troops may be, a
statement with which Li concurred. He seemed surprised and
almost dismayed to learn that DPKO estimated three months to
deploy after HSP funding became available.

9. (SBU) Li was concerned that we not jeopardize this
hard-won progress by too quickly reverting to discussion of
sanctions. Li was skeptical about the UNSC's authorizing HSP
deployment without a resolution, but seemed impressed by our
plan, endorsed by DPKO, to seek such authorization in the
form of a a letter from the UNSC President to the SYG. Li
hoped the USG would use its "influence" to bring Darfur
rebels to the table and work for a lasting ceasefire. Li
stressed the importance of supporting the efforts of UN
Special Envoy Eliasson and AU Special Envoy Salim.
PolMinsCouns replied that we would continue to encourage the
political process and take every opportunity to express
support for the Darfur negotiators.
WOLFF

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