DARFUR: AU PSC ACCEPTS TRANSITION OF AMIS TO THE

UNCLAS SECTION 01 OF 03 ADDIS ABABA 000140 SIPDIS SENSITIVE SIPDIS DEPARTMENT FOR AF/FO, AF/SPG, AF/RSA, AF/E. LONDON AND PARIS FOR AFRICA WATCHERS. E.O. 12958: N/A TAGS: PREL KPKO MARR SU AU SUBJECT: DARFUR: AU PSC ACCEPTS TRANSITION OF AMIS TO THE UN IN PRINCIPLE REF: A. STATE 1351 ¶B. ADDIS ABABA 48 SENSITIVE BUT UNCLASSIFIED. NOT FOR INTERNET DISTRIBUTION. ¶1. (SBU) Summary: On January 12, the African Union (AU) Peace and Security Council (PSC) extended the mandate of the AU Mission in Darfur, Sudan (AMIS) until March 31, 2006 and accepted "in principle" the transition of AMIS to a UN operation. The PSC will meet again in Addis at the foreign ministers level in March 2006 to make a final decision on the transition. In the interim, the AU Commission will engage in consultations with the UN and other partners on the modalities of transition. The AU will expect to work closely with the USG to ensure transition modalities are mutually acceptable, that the mission retains an African character, and that AMIS receives necessary funding in the interim. Demonstrating concrete action to that effect will contribute to a positive and definitive PSC decision in March, as well as facilitate continued close cooperation with the AU to enhance African peacekeeping capabilities. The AU's Darfur Integrated Task Force (DITF) is working with partners to implement December assessment mission recommendations to improve AMIS capability. The AU also wants continued partner pressure on the Sudanese parties to achieve a political settlement. End summary. -------------- -------------- AU ACCEPTS TRANSITION, WANTS TO ENGAGE ON MODALITIES -------------- -------------- ¶2. (SBU) The AU Commission's report to the PSC reflected points made in the December joint assessment mission report and in coordinated partner demarches to the AU and member states in January. The Commission's report noted that an international presence must be sustained in Darfur for some time, that AMIS would remain for six to nine months pending a transition to the UN, that AMIS had been successful in laying the groundwork for a political settlement though stabilizing the situation in Darfur, and that, although partner funding is not without limit, partners committed to sustaining AMIS in the interim period before a transition. Peace and Security Director Geofrey Mugumya told Poloff January 11 that, while most PSC members accepted the need for transition, Northern countries were opposed. The PSC communique paragraph on transition reflects compromise language circulated the morning following the PSC meeting. PSC member states authorized an extension of AMIS only until March 31, 2006, due to the lack of predictable funding beyond that point. ¶3. (SBU) On January 11, AU Commissioner for Peace and Security Amb. Said Djinnit told Poloff that he is personally convinced of the need for a transition to the UN, and wants to focus on building AU capacity to fulfill a policy of "non-indifference" when it comes to African conflicts. He expressed firm belief that, in contrast to ad-hoc missions like AMIS, the African Standby Force (ASF) process is geared to provide the AU with the necessary tools to conduct peace support operations. Djinnit said that it is important the AU retain the lead on the Darfur political talks, and that the AU wants to work with the USG and other partners to reinvigorate the process. ¶4. (SBU) Director for Peace and Security Mugumya told Poloff later on January 11 that the AU expects close consultations with the USG further to commitments to maintain the African character of a military mission in Darfur (Note: Mugumya was referring to Ref A "selling points" regarding U.S. pursuit of re-hatting as many AMIS troops as practicable, securing an African Force Commander for a UN mission, and providing training and equipment for African troops. AU Peace and Security Council (PSC) members attending a January 11 lunch sponsored by Ambassador expressed interest in working with partners on the mandate for a UN mission to ensure that re-hatting brings added value. These PSC members and other African Ambassadors also appeared intrigued by the possibility of retaining an African character to the mission in Darfur. Djinnit and AU Commission Chairperson Konare's Bureau Director Mamadou Lamine Diallo both state the need for partners to ensure AMIS can fill its funding gap. -------------- NEXT STEPS -------------- ¶5. (SBU) DITF Head Amb. Ki Doulaye told the partners liaison ADDIS ABAB 00000140 002 OF 003 group (which meets twice-weekly with the AU to discuss Darfur support) on January 16 that the AU is open to discussion on the way forward for AMIS. According to Amb. Ki, AU Commission Chairperson Konare intends to begin discussions with UNSYG Annan on the margins of the January 23-24 AU Summit in Khartoum. The UN Assistance Cell to the AU in Addis Ababa is already beginning a checklist of logistical issues that must be settled to facilitate a transition from AMIS to a UN operation, and UN representatives note that the UN must soon conduct a comprehensive Technical Evaluation in Darfur before heading to Addis to discuss equipment disposition, contract status and other issues. Also according to UN representatives, UNSYG Annan intends to convene a donor conference on AMIS to facilitate a greater UN and other partner role in assisting AMIS throughout the interim period. The UN expects that PAE services will remain in place for some period of time after transition. The DITF has created a technical committee to develop a roadmap to implement December assessment mission recommendations to improve AMIS capability. The AU welcomes partner input in this process, which could also serve as a mechanism for enhancing NATO's support role to AMIS. ¶6. (SBU) Comment: With the PSC's January 12 decision to accept, in principle, a transition from AMIS to a UN operation, and PSC authorization to the AU Commission to negotiate modalities with the UN and other partners, the AU will look to the USG to consult closely on next steps and to muster financial and technical support necessary to sustain AMIS in the interim, in addition to continuing to build AU peacekeeping capacity. Post recommends that the USG engage the AU early-on to reassure the Commission and member states that steps are being taken to ensure that AMIS receives funding necessary to sustain the mission until the UN is prepared to take over. The U.S. should also work in close consultation with the AU as mandate and modalities for a UN mission are being developed. Part of the USG effort will entail ensuring AMIS troops are at an appropriate standard to facilitate blue-hatting. Firm signals that AMIS funding will be sustained for an interim period, that some African character to the Darfur military mission will be retained, and that partners can deliver on training and equipping both AMIS and African troops in a UN mission will help contribute to a definitive and positive PSC decision in March, as well as to a continued productive relationship with the AU to build African peacekeeping capacity. End comment. -------------- COMMUNIQUE -------------- ¶8. (U) Begin text. The Peace and Security Council (PSC) of the African Union (AU),at its 45th meeting, held on 12 January 2006, adopted the following decision on the situation in Darfur: Council, ¶1. Takes note of the Report of the Chairperson of the Commission on the situation in Darfur (PSC/PR/2/(XLV)) and the pertinent observations contained therein; ¶2. Expresses satisfaction at the very significant progress made in the deployment of the African Mission in the Sudan (AMIS),as well as the fact that, in spite of serious financial, logistical and other constraints facing the Mission, AMIS has contributed significantly to the protection of the civilian population and the improvement of the security and humanitarian situation in Darfur; ¶3. Stresses the importance of the ongoing Inter-Sudanese Peace Talks on the Conflict in Darfur, in Abuja, Nigeria, and the need for their speedy conclusion. In this respect, Council expresses concern at the very slow progress made so far in the 7th Round of the Inter-Sudanese Peace Talks on the Conflict in Darfur and urges the parties to demonstrate more flexibility so as to allow compromise on the issues involved. Council stresses the need for continued and increased pressure by African leaders and other stakeholders on the Sudanese parties, to bring them to honour their commitments and negotiate in good faith with a view to ending violence in Darfur and concluding a comprehensive peace agreement; ¶4. Stresses that, with the progress made in the initial stabilization phase of Darfur and the ongoing efforts to conclude a comprehensive peace agreement, steps should be ADDIS ABAB 00000140 003 OF 003 taken to sustain the peace support operation in Darfur in 2006 and beyond, bearing in mind the requirements for an increased integration of the different aspects of the peace efforts; ¶5. Expresses its support, in principle, to a transition from AMIS to a UN operation, within the framework of the partnership between the AU and the United Nations in the promotion of peace, security and stability in Africa, and decides to convene a meeting of the Peace and Security Council at ministerial level, in Addis Ababa, before the end of March 2006, to review the situation and make a final decision on the issue of the transition towards a UN operation in Darfur and its modalities. In this respect, Council requests the Chairperson of the Commission to initiate appropriate consultations with the United Nations and other stakeholders, with a view to providing the proposed meeting of the Peace and Security Council at ministerial level with all relevant additional information, including on the modalities for a transition towards a UN operation and the financial aspects of the ongoing operation in Darfur; ¶6. Decides, in the interim, to extend the mandate of AMIS until 31 March 2006; ¶7. Decides to remain actively seized of the matter. ¶8. (U) End text. HUDDLESTON