DARFUR RESOLUTION PASSES UNANIMOUSLY WITH SOME

C O N F I D E N T I A L SECTION 01 OF 04 USUN NEW YORK 001017

SIPDIS

SIPDIS

E.O. 12958: DECL: 05/17/2016
TAGS: CH PGOV PREL SU UNSC KPKO
SUBJECT: DARFUR RESOLUTION PASSES UNANIMOUSLY WITH SOME
CHINESE HELP

REF: SECSTATE 78768

USUN NEW Y 00001017 001.2 OF 004


Classified By: AMBASSADOR JOHN R. BOLTON FOR REASONS 1.4 (B,D)


1. (C) After three rounds of working-level negotiations and
an eleventh-hour Ambassadorial exchange over timing of
adoption, the United Nations Security Council voted
unanimously May 16 to adopt Resolution 1679 (2006),Chapter
VII reference and all (text in Paragraph 7). Congo, Denmark,
France, Ghana, Greece, Slovakia, Tanzania and the UK
co-sponsored the text. Until the late hours of May 15,
China, Russia and Qatar pledged to abstain on the text based
on the Chapter VII inclusion, but in a surprising and
unsolicited move, China reached out to USUN to indicate its
strong preference for unanimity and provided a veritable
roadmap of what it needed to secure this outcome: omission of
a reference to UNSCR 1591 (2005) on Sudan sanctions on which
China had abstained. China's change of heart had a domino
effect on the other dissenters, with Russia and Qatar
ultimately voting in favor of the text.


2. (C) Despite their support for the resolution, China,
Russia and Qatar delivered Explanations of Vote. Russian
Permanent Representative (PR) Churkin insisted that UNSCR
1679's Chapter VII reference should not pre-determine the
mandate of the future UN operation in Darfur, whose presence
had yet to be agreed upon by the Government of National Unity
(GNU). Chinese Deputy PR Zhang opened by lauding the
inclusion in the resolution of a call on non-signatories of
the Darfur Peace Agreement to sign and of a request to all
parties to honor and implement the Agreement, but concluded
with an echo of the Russian intervention. Finally, Qatari PR
Al-Nasser, whose delegation had been the least forthcoming in
voicing support the text, stressed the need for GNU approval
before AMIS transition got underway, citing operative
paragraph 4 of the resolution as a 'necessary addition'
(NOTE. This paragraph was added during a May 11 Experts
Meeting at Chinese suggestion. END NOTE).


3. (C) Following the vote, Chinese Minister Counselor Li
Junhua spoke with PolMinCouns about the seemingly abrupt
Chinese decision to move overnight from abstention to support
of the resolution. PolMinCouns took note of the positive
role the Chinese had played in helping to move the
recalcitrant Russians and Qataris toward Council consensus on
the resolution. Without mentioning the last-minute wording
change on the 1591 reference that supposedly brought his
delegation along, Li confided that his mission had heard from
Beijing about the strong impression that POTUS had made on
visiting President Hu in speaking about the Darfur issue.
The Chinese visitors came away with a 'strong impression' of
the deep U.S. commitment to early action to address the
situation there.


4. (C) Li added that the direct contacts of Deputy Secretary
Zoellick with Chinese Ambassador to the U.S. Zhou had also
helped bring about a fresh look at the Darfur issue. Li also
said that, although some had argued that it was not in
China's national interest to support the Council's action,
these other factors had proved decisive. He concluded by
noting that the Chinese were now putting heavy pressure on
the Sudanese in Khartoum and Beijing to immediately authorize
the visit of a UN assessment team to move the process
forward. Li implicitly contrasted the difficult attitude of
the Russians with the more forthcoming position of the
Chinese on an issue of real importance to the U.S. While
this after-the-fact explanation of the change in China's
position clearly played to its audience, Li seemed at pains
to underline its sincerity.


5. (C) In addition to the Chinese about-face, it is equally
noteworthy that France was heavily invested in the search for
consensus, approaching USUN early about Chinese intentions
and offering to intervene and/or encourage other delegations
(namely Congo) to do so in order to secure a consensus text.

USUN NEW Y 00001017 002.2 OF 004


A number of factors may be behind these changes of heart -
recognition of the high priority we place on Sudan in the
Council, visions of swapping support on issues of individual
interest - but whatever the motivation, Chinese openness,
French collaboration and strong, unified African support may
signal cause for optimism as AMIS transition progresses.


6. (C) Finally, the securing of UNSCR 1679 was a good example
of the merit of an unrelenting approach in pursuing our
position on this issue, especially regarding Chapter VII. By
refusing to succumb to the stall tactics that have become
standard operating procedures for the Chinese, Russian and
Qatari delegations and by instead putting the onus on those
Members to justify their unfounded hesitation to proceed, we
were ultimately able to rally other Members' support
(especially from the Africans) and to extract three reluctant
'yes' votes at a time when abstentions seemed imminent.


7. (U) Begin UNSCR 1679 text:

The Security Council,

Recalling its previous resolutions concerning the situation
in the Sudan, in particular resolutions 1665 (2006),1663
(2006),1593 (2005),1591 (2005),1590 (2005),1574 (2004),
1564 (2004),1556 (2004) and the statements of its President
concerning the Sudan, in particular S/PRST/2006/5 of 3
February 2006 and S/PRST/2006/21 of 9 May 2006,

Recalling also its resolutions 1612 (2005) on children and
armed conflict, 1325 (2000) on women, peace and security, and
1674 (2006) on the protection of civilians in armed conflict,
and 1502 (2003) on the protection of humanitarian and United
Nations personnel,

Reaffirming its strong commitment to the sovereignty, unity,
independence, and territorial integrity of the Sudan, which
would be unaffected by transition to a United Nations
operation, as well as of all States in the region, and to the
cause of peace, security and reconciliation throughout the
Sudan,

Expressing its utmost concern over the dire consequences of
the prolonged conflict in Darfur for the civilian population
and reiterating in the strongest terms the need for all
parties to the conflict in Darfur to put an immediate end to
violence and atrocities,

Welcoming the success of the African Union-led Inter-Sudanese
Peace Talks on the Conflict in Darfur in Abuja, Nigeria, in
particular the framework agreed between the parties for a
resolution of the conflict in Darfur (the Darfur Peace
Agreement),

Commending the efforts of President Olusegun Obasanjo of
Nigeria, host of the Inter-Sudanese Peace Talks in Abuja;
President Denis Sassou-Nguesso of the Republic of Congo,
Chair of the African Union (AU); Dr. Salim Ahmed Salim, the
African Union Special Envoy for the Darfur Talks and Chief
Mediator, the respective delegations to the Darfur Talks; and
the signatories to the Darfur Peace Agreement,

Stressing the importance of full and rapid implementation of
the Darfur Peace Agreement to restore a sustainable peace in
Darfur, and welcoming the statement of 9 May 2006 by the
representative of the Sudan at the United Nations Security
Council Special Session on Darfur of the Government of
National Unity's full commitment to implementing the Darfur
Peace Agreement,

Reaffirming its concern that the persisting violence in
Darfur might further negatively affect the rest of the Sudan,
as well as the region, including the security of Chad,

Noting with deep concern the recent deterioration of

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relations between the Sudan and Chad, and urging the
Governments of both countries to abide by their obligations
under the 8 February 2006 Tripoli Agreement and to implement
the confidence-building measures which have been voluntarily
agreed upon,

Commending the efforts of the African Union for successful
deployment of the African Union Mission in the Sudan (AMIS),
despite exceptionally difficult circumstances, and AMIS's
role in reducing large-scale organized violence in Darfur,
and commending further the efforts of Member States and
regional and international organizations that have assisted
AMIS in its deployment,

Taking note of the communiqus of 12 January, 10 March and 15
May 2006 of the Peace and Security Council of the African
Union regarding transition of AMIS to a United Nations
operation,

Stressing that a United Nations operation would have, to the
extent possible, a strong African participation and character,

Welcoming the efforts of Member States and regional and
international organizations to maintain and strengthen their
support to AMIS and potentially to a follow-on United Nations
operation on Darfur, looking forward to, in particular, the
convening of a pledging conference in June, and appealing to
African Union partners to provide the necessary support to
AMIS to allow it to continue to perform its mandate during
the transition,

Determining that the situation in the Sudan continues to
constitute a threat to international peace and security,

Acting under Chapter VII of the Charter of the United Nations,


1. Calls upon the parties to the Darfur Peace
Agreement to respect their commitments and implement the
agreement without delay, urges those parties that have not
signed the agreement to do so without delay and not to act in
any way that would impede implementation of the agreement,
and expresses its intention to consider taking, including in
response to a request by the African Union, strong and
effective measures, such as a travel ban and assets freeze,
against any individual or group that violates or attempts to
block the implementation of the Darfur Peace Agreement;


2. Calls upon the African Union to agree with the
United Nations, regional and international organizations, and
Member States on requirements now necessary, in addition to
those identified by the joint assessment mission of December
2005, to strengthen AMIS's capacity to enforce the security
arrangements of the Darfur Peace Agreement, with a view to a
follow-on United Nations operation in Darfur;


3. Endorses the decision of the African Union Peace
and Security Council in its communiqu of 15 May 2006 that,
in view of the signing of the Darfur Peace Agreement,
concrete steps should be taken to effect the transition from
AMIS to a United Nations operation, calls upon the parties to
the Darfur Peace Agreement to facilitate and work with the
African Union, the United Nations, regional and international
organizations and Member States to accelerate transition to a
United Nations operation, and, to this end, reiterating the
requests of the Secretary-General and the Security Council,
calls for the deployment of a joint African Union and United
Nations technical assessment mission within one week of the
adoption of this resolution;


4. Stresses that the Secretary-General should
consult jointly with the African Union, in close and
continuing consultation with the Security Council, and in
cooperation and close consultation with the parties to the
Darfur Peace Agreement, including the Government of National
Unity, on decisions concerning the transition to a United

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Nations operation;


5. Requests the Secretary-General to submit
recommendations to the Council within one week of the return
of the joint African Union and United Nations assessment
mission on all relevant aspects of the mandate of the United
Nations operation in Darfur, including force structure,
additional force requirements, potential troop-contributing
countries and a detailed financial evaluation of future costs;


6. Decides to remain actively seized of the matter.


8. (U) End UNSCR 1679 text.


BOLTON