Cablegate: Response to Demarche Request On U.S. Support For

DE RUCNDT #0598/01 2012355
O 202355Z JUL 07





E.O. 12958: N/A


1. (SBU) SUMMARY. On July 19, USUN delivered ref A demarche
and Note Verbale to United Nations Department of Peacekeeping
Operations (DPKO) Office of Mission Support
Assistant-Secretary-General Jane Holl Lute. Holl Lute shared
USG impatience over stalled deployment of the two AMIS
infantry battalions but firmly reiterated DPKO's stance that
funding for these battalions would be a donor, vice UN,
responsibility. Holl Lute nevertheless promised Ambassador
Sanders she would request an urgent meeting with the UN
Comptroller to explore the possibility of UN funding for the
battalions. In that meeting on July 20, the Comptroller
determined that the Secretary-General (SYG) could request a
standard pre-mandate commitment authority of $50 million for
partial AMIS funding, on the basis of the December 19 PRST
and subsequent SYG Reports to the Security Council on Darfur
peacekeeping. DPKO was emphatic that UN funding beyond troop
costs, including paying for AMIS equipment and sustainment,
would be an "absolute deal-breaker," as it would require the
UN to assume responsibility for every existing African Union
sustainment contract, as well as to defend this action to the
UN Advisory Committee on Administrative and Budgetary
Questions (ACABQ), resulting in a lag of four to six months.

2. (SBU) Participants in the July 19 demarche included: USUN
Ambassador Jackie Sanders, Acting PolCouns, Poloff, MSC LTC
Glenn Sadowski, PM Officer Mike Smith, DPKO A/SYG Jane Holl
Lute, DPKO Africa Division Director Dmitry Titov, DPKO Senior
Political Officer Mike Gaouette, DPKO Military Planning
Service Chief COL Ian Sinclair, and DPKO Logistics Support
Division Director Max Kerley.

3. (SBU) Ambassador Sanders called for immediate deployment
of the two additional infantry battalions (one from Rwanda,
one from Nigeria) required as force protection for AMIS in
Darfur. A/SYG Holl Lute shared Ambassador Sanders'
impatience over this stalled deployment, which, according to
what she was told by the AMIS Deputy Force Commander when
visiting Darfur earlier this month, was on account of lack of
accommodations. Holl Lute remarked that this excuse did not
seem valid, given the relative obscurity of the need for
hard-wall accommodations for infantry battalions. She added
that she would be willing to push the Rwandan and Nigerian
Missions in New York to accept tented accommodations to
expedite the process.

4. (SBU) COL Sinclair noted that the lack of APCs impacted
the battalions' deployment, since Egypt's one-time offer to
provide these assets was no longer tenable. Sinclair said
that in June DPKO had asked Rwanda and Nigeria to source
their own APCs when their battalions deployed; Rwanda could
provide 18, reimbursable by the UN, but Sinclair said Nigeria
seemed to be "less forward-leaning" on the proposal. Smith
concurred, adding that Nigeria's overall equipment posture
presented considerable problems. With these constraints in
mind, A/SYG Holl Lute asked for an update on the state of
training and preparing of these two battalions.

5. (SBU) Ambassador Sanders inquired about Joint Special
Representative Adada's and Force Commander Agwai's readiness
to utilize the additional battalions. A/SYG Holl Lute cited
helicopter mobility as a major challenge to Adada's work but
hoped the issue would be resolved during the week of July 23.
Director Titov said that DPKO was encouraging Adada to spend
as much time as possible in El Fasher, noting concerns Adada
had raised about the "aloofness" of the humanitarian
community in Darfur (ref B); non-payment of AMIS troop
salaries, which made the incoming battalions reluctant to
provide reinforcement; and lack of a communications
framework. In response to Poloff's inquiry about Adada's
staffing needs, Titov said that the pool of applicants was
over 90 personnel, and he expressed hope that they could
deploy quickly, adding that money was available and that
recruitment was ongoing.

6. (SBU) DPKO Officer Gaouette reported an upcoming African
Union (AU) leadership seminar in Khartoum in August to
discuss technical issues associated with hybrid staffing and
maintenance (e.g. Mission Subsistence Allowance). A/SYG Holl
Lute reported a level of uncertainty among UN staff about the
uniformity of rules governing UN and AU personnel to serve in
Darfur. She mentioned that a team from the UN Logistics Base
in Brindisi would be conducting a week-long induction

USUN NEW Y 00000598 002 OF 003

training for incoming AU staff.

7. (SBU) On the issue of an October 1 transition date,
Director Titov agreed with Ambassador Sanders on the need for
an early transfer of authority from AMIS to the hybrid, not
least for troop reimbursement reasons. However, Titov warned
that any transfer was predicated on the presence of a support
system to provide a minimum of assistance to incoming
personnel. A/SYG Holl Lute thought an October 1 transition
date would only switch AMIS to UN control without creating
noticeable changes on the ground, thus damaging UN
credibility from the outset and deflecting UN civilian staff
attention from creating a foundation for hybrid support to
absorption of AMIS shortfalls. She further elaborated that
Heavy Support Package (HSP) assets still remained held up at
Port Sudan and that contracts with PA&E were still being
costed, thus delaying the process.

8. (SBU) On funding the additional battalions, A/SYG Holl
Lute stressed this was a donor responsibility, since the HSP
ceiling was already fixed as part of the deal struck with
Khartoum to assure UN assistance to AMIS. To re-open this
agreement would require both Sudanese and AU input, making
it, as LSD Chief Kerley pointed out, a political question.
Holl Lute also added that the battalions were not covered in
UN-approved funding for the HSP, necessitating a
re-initiation of funding processes if the issue were to be

9. (SBU) Ambassador Sanders pushed DPKO to identify a way
forward on this UN funding issue, and Director Titov
speculated a request could be made by the SYG to the Council
explaining the urgency of deploying the battalions and of
using UN funding to do so. Titov cautioned that such a
procedure would require prior consultations with Sudan,
Rwanda, Nigeria, and the AU, which could result in a
considerable time lag, especially if Khartoum opposed the
deployment. A/SYG Holl Lute committed to requesting an
urgent meeting with the UN Comptroller to explore the
possibility of UN funding for the battalions and to discuss
possible complications such an arrangement could present,
particularly in putting new UN-funded AMIS troops
side-by-side with existing unpaid AMIS troops.

10 (SBU) That meeting took place on July 20, and the
Comptroller determined that the SYG could request a standard
pre-mandate commitment authority (PMCA) of $50 million for
partial AMIS funding, on the basis of the December 19 PRST
(S/PRST/2006/55) and subsequent SYG Reports to the Security
Council on Darfur peacekeeping. The SYG would then request
the Council President via an exchange of letters for the
PMCA, which the President could then authorize; DPKO will
provide necessary language for this authorization. From
there the Comptroller would approach the ACABQ with details
of areas to be funded by the UN.

11. (SBU) This "wishlist," according to DPKO, would cover all
troop reimbursement costs for the two battalions and the
7,700 AMIS troops. However, DPKO was emphatic that UN
funding beyond troop costs (which amounts to $1028 per
soldier per month), including paying for AMIS equipment and
sustainment, would be an "absolute deal-breaker," as it would
require the UN to assume responsibility for every existing
African Union sustainment contract. Assuming this
responsibility would also require DPKO to defend this action
to the ACABQ, resulting in a lag of four to six months. DPKO
stressed that without the necessary command and control
structures in place, as well as the support system Titov
described in the July 19 meeting, UN assumption of all AMIS
costs would have "massive negative material impact" and would
result only in retaining the same (poor) quality force for
the next four to six months.

12. (SBU) COMMENT. Ambassador Sanders appealed to A/SYG Holl
Lute to view the deployment of the two battalions as a
problem requiring the attention of all involved parties,
rather than as a purely donor community issue. Holl Lute's
insistence that DPKO has presumed donors would pay these
troops reflects an unfortunate DPKO versus donor mentality,
especially, as Director Titov admitted, when a donor
community arrearage of four months in paying existing AMIS
troops should have put DPKO on notice that donor funds were
running out. Evidencing DPKO understanding of the limits of
donor support, Holl Lute called Ambassador Sanders on July 20
informing that DPKO was actively revisiting the financing of
the battalions. END COMMENT.

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