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Cablegate: Demarche to Un Security Council Capitals And

VZCZCXRO4733
OO RUEHTRO
DE RUEHC #9539/01 2060520
ZNR UUUUU ZZH
O 240111Z JUL 08
FM SECSTATE WASHDC
TO RUEHBJ/AMEMBASSY BEIJING IMMEDIATE 1947-1949
RUEHBS/AMEMBASSY BRUSSELS IMMEDIATE 1107-1109
RUEHHI/AMEMBASSY HANOI IMMEDIATE 7205-7207
RUEHJA/AMEMBASSY JAKARTA IMMEDIATE 0593-0595
RUEHLO/AMEMBASSY LONDON IMMEDIATE 8759-5761
RUEHMO/AMEMBASSY MOSCOW IMMEDIATE 3058-3060
RUEHOU/AMEMBASSY OUAGADOUGOU IMMEDIATE 7492-7494
RUEHZP/AMEMBASSY PANAMA IMMEDIATE 2852-2854
RUEHFR/AMEMBASSY PARIS IMMEDIATE 0145-0147
RUEHSA/AMEMBASSY PRETORIA IMMEDIATE 0028-0030
RUEHRO/AMEMBASSY ROME IMMEDIATE 7251-7253
RUEHSJ/AMEMBASSY SAN JOSE IMMEDIATE 9026-9028
RUEHTRO/AMEMBASSY TRIPOLI IMMEDIATE 1854-1856
RUEHVB/AMEMBASSY ZAGREB IMMEDIATE 1225-1227
RUCNDT/USMISSION USUN NEW YORK IMMEDIATE 2580-2582
INFO RUEHDS/AMEMBASSY ADDIS ABABA PRIORITY 5411-5413
RUEHAE/AMEMBASSY ASMARA PRIORITY 7475-7477

UNCLAS SECTION 01 OF 03 STATE 079539

SENSITIVE

C O R R E C T E D C O P Y (SENSITIVE CAPTION ADDED)
SIPDIS
E.O. 12958: N/A
TAGS: PREL UNSC KPKO PBTS ET ER
SUBJECT: DEMARCHE TO UN SECURITY COUNCIL CAPITALS AND
THEIR UN MISSIONS IN NY ON U.S. WAY FORWARD ON UNMEE

STATE 00079539 001.2 OF 003


1. (U) This is an action request. Department requests posts
in Security Council capitals and USUN to share U.S. thinking
on the way ahead on the UN Mission in Ethiopia and Eritrea
(UNMEE) with host governments and their respective UN
Missions in New York. Embassies in Security Council capitals
see paragraphs 2 and 4. USUN see paragraphs 3 and 4. Posts
and USUN should draw from the discussion elements in
paragraph 6 and the background in paragraphs 7)11 below when
delivering this demarche.

----------
Objectives
----------

2. (SBU) For Embassies in Security Council capitals,
Department requests Posts pursue the following objectives:

-Note that the U.S. will not support a roll-over of UNMEE as
Ethiopia and Eritrea are no longer supportive of continuation
of the Mission.

-Underscore that given Ethiopia,s and Eritrea,s lack of
interest in establishing another UN presence on their
territories at this time, we think the UN Security Council
should adopt a new resolution with the following elements:

(1) Terminate UNMEE;
(2) Call on both Ethiopia and Eritrea to maintain their
commitments to the Algiers Agreements;
(3) Request the Secretary General to continue to use his good
offices to engage with Ethiopia and Eritrea and to report on
how the UN could most effectively support normalized
relations and facilitate implementation of the Algiers
Agreements, including the possibility of a follow-on UN
presence in the future.

3. (SBU) Department requests USUN pursue the objectives in
paragraph 2 above with appropriate UN Missions in New York.

4. (SBU) Note that the UN Department of Peacekeeping
Operations (DPKO) informed the Department that the Special
Representative of the Secretary General for UNMEE, Azouz
Ennifar, was scheduled to meet with Ethiopian Deputy Foreign
Minister Tekeda Alemu on July 22. Department had not
received a read-out of the meeting when this cable was
drafted.

5. (SBU) Reporting Deadline and POC: Posts should report
host governments,/missions, responses to this demarche by
front channel cable by Tuesday, July 29. Point of Contact is
IO/PSC, Tanaz Khambatta.

6. (SBU) Posts and USUN should draw upon the elements below
in discussions with host governments or UN Missions.

Begin discussion elements:

-Stress that we will not support a roll-over of UNMEE. The
UN Security Council must terminate the Mission since it can
no longer execute its mandate. Note that Eritrea takes the
position that UNMEE,s mandate ended when the
Ethiopia-Eritrea Boundary Commission's (EEBC,s) demarcation
by map coordinates decision became final in November 2007.
Also note that Ethiopia has not voiced a desire for the
Council to extend the current Mission's mandate.

-Emphasize that we can not back the establishment of a UN
follow-on presence without the consent and support of
Ethiopia and/or Eritrea. Highlight that a Chapter VI mandate
would require the consent of both countries, as well as their

STATE 00079539 002.2 OF 003


cooperation for the mission to successfully execute its
duties. Note that Eritrea has explicitly expressed its
disinterest with UN engagement, and that although Ethiopia
stated in its June 17 letter to the President of the UN
Security Council that it would "never look at a request for
UN engagement lightly," Ethiopia has made no affirmations or
actions to appeal for a UN presence at this time.

-Emphasize that even if the UN Security Council does not
establish a follow-on presence immediately after the
termination of UNMEE, the option to create a UN presence in
the future is still a possibility if one or both parties
agree to it, and if it can legitimately serve a purpose and
successfully execute the elements laid out in its mandate.
To this end, note that we are open to a presence that would
be only in the territory of Ethiopia or Eritrea, if the host
nation agrees to fully cooperate and engage with the mission.


-Stress that a resolution should maintain UN involvement by
requesting the Secretary General to consult with Ethiopia and
Eritrea on how the UN could most effectively support
normalizing relations, facilitate implementation of
agreements they have entered into (specifically the Cessation
of Hostilities Agreement and the Algiers Agreement), and also
the option of UN presence on their territory/territories in
the future. Note that with the UN General Assembly
initiating in September, the Council should allow the
Secretary General sufficient time for consultations--we
recommend six months.

-Emphasize that termination of UNMEE is without prejudice to
the Cessation of Hostilities Agreement and the Algiers
Agreements. Stress that the UN Security Council should state
this in a new resolution, while also urging Ethiopia and
Eritrea to respect their commitments to these Agreements.
Note that the EEBC,s demarcation decision or non-compliance
by the parties with certain elements is not cause for
termination of UNMEE,s mandate--though the parties differ on
these matters and may point to the Mission's termination to
support their often stated positions, only they as
signatories can decide whether and how to implement these
Agreements. Underscore that we will continue to urge
Ethiopia and Eritrea to maintain their commitments
bi-laterally, and ask that they do the same.

End discussion elements.

----------
Background
----------

7. (U) UNMEE is a Chapter VI peacekeeping operation first
established to monitor compliance with and facilitate
implementation of the Agreement on the Cessation of
Hostilities of June 2000, an accord between Ethiopia and
Eritrea that ended the 1998-2000 war. This agreement was
followed in December 2000 by the Algiers Agreement, in which
the parties agreed to several steps to resolve issues that
divide them, including the boundary dispute. The Agreement
created a demilitarized zone in Eritrea close to its border
with Ethiopia, commonly referred to as the Temporary Security
Zone (TSZ)--most of UNMEE,s troops have been located there.
The accord also established the Ethiopia-Eritrea Boundary
Commission (EEBC) to delimit and demarcate the boundary. The
EEBC issued a delimitation decision on April 13, 2002, but
was unable to demarcate the boundary due to lack of
cooperation by the parties. Eritrea subsequently
re-militarized the TSZ, and for over two years Eritrean
restrictions on UNMEE troops have hampered their movements
and UNMEE,s ability to execute its mandate.

8. (U) Beginning in November 2007, Eritrea started refusing
UNMEE permission to purchase or import fuel. The critical
fuel crisis forced Secretary General Ban to begin &temporary
relocation8 of UNMEE from Eritrea in early February 2008.
Eritrea subsequently complicated its efforts to temporarily

STATE 00079539 003.2 OF 003


relocate to Ethiopia (as originally planned), demanding that
UNMEE personnel and equipment depart through the capital city
of Asmara or through the port cities of Assab and Massawa,
the same points where UNMEE entered the country. Eritrea
appeared to be holding UNMEE troops and equipment hostage in
an attempt to force the
UN Security Council to pressure Ethiopia to accept the
demarcation decision by map coordinates announced by the EEBC
in November 2006, and made effective by its terms in November
2007 (Ethiopia has rejected the EEBC,s approach as
inconsistent with international law. Eritrea has accepted
it).

9. (U) Eritrea eventually allowed contractors to provide fuel
shipments to the Mission, and at present, almost all UNMEE
troop-contributing countries, (TCCs,) equipment and
personnel have been withdrawn from Eritrean territory. Since
temporary relocation began, Belgium, which has &the pen8 on
UNMEE in the UN Security Council, has worked closely with the
U.S., sharing multiple draft Presidential Statements (PRSTs)
and resolutions on the situation concerning Ethiopia and
Eritrea. Despite U.S. urging, the UN Security Council never
took strong action against Eritrea for its treatment of
UNMEE. Resolution 1798 (January 30, 2008) demanded that
Eritrea allow UNMEE to obtain fuel, and the PRST of April 30,
2008 noted that &the continuation of Eritrea,s obstructions
towards UNMEE has reached a level so as to undermine the
basis of the Mission's mandate and compelled UNMEE to
temporarily relocate.8 On May 8, 2008, during UN Security
Council UNMEE consultations, Belgium circulated a non-paper
on the way ahead and next steps on the conflict between
Ethiopia and Eritrea.

10. (U) On June 10, 2008, the UN Security Council President
sent letters to Ethiopian Prime Minister Meles and Eritrean
President Isaias seeking their views on a UN follow-on
presence. In his response, Isaias stated that the EEBC had
completed its task, thereby effectively ending UNMEE's
mandate and its oversight of the TSZ. Meles stated Ethiopia
would "never look at a request for UN engagement lightly,"
but that options for a UN presence within "the ambit of the
Algiers Agreements" could hardly be considered realistic and
that any presence must be totally distinct from UNMEE. On
July 3, 2008, the UN Security Council President sent a letter
to the Secretary General asking him to undertake
consultations with Ethiopia and Eritrea in connection with
their responses to the establishment of a follow-on UN
presence, and to provide his recommendations by July 21,
2008--to date, no recommendations have been made.

11. (U) Eritrea has been opposed to a UN follow on presence
from the outset. It appears that Ethiopia is not prepared to
engage in discussions on a follow-on presence at this point
in time, though they remain open to the possibility of future
talks. The UN Department of Peacekeeping Operations (DPKO)
informed the Department that the Special Representative of
the Secretary General for UNMEE, Azouz Ennifar, was scheduled
to meet with Ethiopian Deputy Foreign Minister Tekeda Alemu
on July 22, 2008. However, the Department had not received a
read-out of the meeting when this cable was drafted.
UNMEE,s mandate will expire on July 31. The UNSC has yet to
move towards a resolution.

12. (U) Minimize considered.
RICE

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