Identifier
Created
Classification
Origin
08ADDISABABA174
2008-01-23 12:42:00
CONFIDENTIAL//NOFORN
Embassy Addis Ababa
Cable title:  

ETHIOPIA PRIME MINISTER URGES AMBASSADORS FROM UN

Tags:  KPKO PBTS PREL ER ET 
pdf how-to read a cable
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TO RUCNDT/USMISSION USUN NEW YORK IMMEDIATE 7213
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C O N F I D E N T I A L SECTION 01 OF 03 ADDIS ABABA 000174 

SIPDIS

SENSITIVE
SIPDIS

E.O. 12958: DECL: 12/05/2017
TAGS: KPKO PBTS PREL ER ET
SUBJECT: ETHIOPIA PRIME MINISTER URGES AMBASSADORS FROM UN
SECURITY COUNCIL STATES TO REMAIN NEUTRAL ON THE BORDER


Classified By: Ambassador Donald Yamamoto for reasons 1.4 (b) and (d).

SUMMARY
-------

C O N F I D E N T I A L SECTION 01 OF 03 ADDIS ABABA 000174

SIPDIS

SENSITIVE
SIPDIS

E.O. 12958: DECL: 12/05/2017
TAGS: KPKO PBTS PREL ER ET
SUBJECT: ETHIOPIA PRIME MINISTER URGES AMBASSADORS FROM UN
SECURITY COUNCIL STATES TO REMAIN NEUTRAL ON THE BORDER


Classified By: Ambassador Donald Yamamoto for reasons 1.4 (b) and (d).

SUMMARY
--------------


1. (C) Prime Minister Meles called in the local Ambassadors
from UN Security Council member states on January 21 to urge
them to advise their respective representatives in New York
to remain neutral during discussions by the UNSC on the
Ethiopia-Eritrea border and extension of the mandate for the
UN Mission to Eritrea and Ethiopia (UNMEE). Meles emphasized
that Ethiopia opposed any UN endorsement of the decision by
the Eritrea Ethiopia Boundary Commission (EEBC) of November
2006, finalizing the border through map coordinates or
"virtual demarcation." Meles noted that Ethiopia would leave
the Algiers Agreement process and cease support for UNMEE if
the UNSC takes any of the following steps: 1) passing a
resolution recognizing the EEBC's "virtual demarcation" as
"final and binding," thus giving it international legal
support, 2) calling for the implementation of the EEBC's
decision without discussion, or 3) altering UNMEE's mandate
to enforce implementation of the EEBC decision. Meles
underscored that Ethiopia does not wish to leave the Algiers
process and that Ethiopia has been in compliance with the
Algiers Peace Agreement and the Cessation of Hostilities
Agreement -- the two basic agreements between Eritrea and
Ethiopia outlining the steps for resolution of the border
dispute. The Prime Minister argued that Eritrea has
consistently violated the accords through limitation of UNMEE
operations and positioning Eritrean troops to occupy the
neutral Temporary Security Zone (TSZ). Ambassador privately
advised the Foreign Minister, and referred the Prime Minister
to that conversation, that to attract UNSC support for
Ethiopia's points -- some of which have merit -- a positive
tone by Ethiopia towards the UNSC rather than a
confrontational threat of withdrawal from the Algiers peace
process would be better received by the Council. Regardless,
UN support for the EEBC decision is clearly a redline for

the Ethiopians. End Summary.

MAINTAIN NEUTRALITY OR ETHIOPIA WILL WALK...MAYBE
-------------- --------------


2. (C) Prime Minister, accompanied by Foreign Minister Seyoum
Mesfin, MFA Legal Advisor Minelik Alemu, and chiefs of staff
for the Prime Minister and the Foreign Minister, Gebretensai
and Abdeta met January 21 with Ambassadors representing the
countries currently on the UN Security Council. The Prime
Minister stressed to the Ambassadors to inform their
respective foreign ministries and their representatives in New
York to maintain neutrality on the border dispute between
Eritrea and Ethiopia during late-January Council discussions
on the extension of the UNMEE mandate. Meles said Ethiopia
would leave the Algiers peace process and cease support for
UNMEE if the Security Council: 1) endorses the "virtual
demarcation" decision by the EEBC, 2) considers the decision
as "final and binding," 3) seeks enforcement of the decision,
or 4) changes the UNMEE mandate to serve as an "enforcer" to
implement the EEBC decision. Meles emphasized that Ethiopia
does not wish to drop out of the Algiers peace process, that
it is committed to the process to resolve tensions, and
remains fully supportive of the agreements signed with
Eritrea before the UN and other organizations and states
standing in witness. Further, Meles made it clear that he
believes UNMEE is important to the peace process and wants
its continuation and its mandate extended, but not changed.

THE PARTIES THEMSELVES MUST RESOLVE THEIR DIFFERENCES
-------------- --------------


3. (C) Meles reminded the Ambassadors that Ethiopia has, in
most instances, been in compliance with the Algiers Peace
Agreement and Cessation of Hostilities Agreement -- the two
basic documents which serve as guides to resolution of the
border dispute. The Prime Minister explained that the
Cessation of Hostilities Agreement, like the Algiers Peace
Accord are bilateral agreements. The UN serves as a witness
and has no mandate under the agreements to implement or
enforce any decisions made by the parties or organizations
created by the parties, like the EEBC, without the agreement
of the two parties. Ultimately, it is up to the parties
themselves to resolve their differences. The parties must

ADDIS ABAB 00000174 002 OF 003


work directly with each other and agree to implement
decisions mutually reached by the parties and/or by entities
created by the parties, such as the EEBC. The Prime
Minister criticized the "virtual demarcation" decision by
the EEBC as "nonsense" and totally against what the parties
agreed to in the beginning of the process. Apparently to
avoid the impression of Ethiopia's opposition to the EEBC,
Meles quickly added that Ethiopia is in agreement with the
delimitation decision by the EEBC but that demarcation must
still be worked out mutually by the parties.


4. (C) On the Cessation of Hostilities Agreement, Meles said
Ethiopia is committed to upholding the cease-fire agreement,
renounces war as a means to effect change, supports the
neutrality of the TSZ, wants to resolve the border dispute
peacefully, and agrees that the UN can punish either party
through chapter 7 sanctions should any party violate the
cease-fire agreement. In this context, Meles said Eritrea
is in clear violation of this agreement because Eritrea has
eliminated the TSZ by deploying its troops and armaments
into the TSZ. The TSZ no longer exists, Meles asserted.
The UNSC should act, Meles urged, in pressuring Eritrea to
abide by its bilateral agreement to withdraw Eritrean troops
from the TSZ.


5. (C) On the Algiers Peace Agreement, Meles said that
Ethiopia supported the creation of the EEBC and demining
efforts within the TSZ. Eritrea restricted UN operations and
also demining efforts. Meles stressed that under the Algiers
Accord, the EEBC is not an international legal body, but an
entity created by the parties to help them move forward in
the peace process. Thus, the EEBC decision cannot be
implement or enforced by the international community without
the agreement of the parties, who are the ultimate
implementers
and enforcers of the agreement. Meles stated emphatically
/multiple times that the UN cannot enforce the EEBC decisions
nor be an enforcer or implementer of bilateral decisions, it
can only facilitate, help and encourage the parties to
resolve
their own problems. At a point of clear frustration, Meles
said the UNSC does not act where it has the mandate, that is
implementing Chapter Seven sanctions against Eritrea for
violating the TSZ according to the Cessation of Hostilities
Agreement; yet acts in areas where it has no mandate, that is
consideration of implementing the EEBC decision, which Meles
again argued is purely a bilateral issue for the parties to
implement.

RESPONSES FROM THE AMBASSADORS
--------------


6. (C) The Belgian Ambassador stressed to the Prime Minister
that UNSC deliberations were still at the beginning stages
and that there were no agreements on the proposed UN drafts
seeking UNMEE extension and no clear and final comments on
the "virtual demarcation" decision by the EEBC. UNMEE SRSG
reported on the fuel restrictions by Eritrea will make it
impossible for UNMEE to operate. The U.S. Ambassador raised
the Witness' meeting of February 2006 on the role of the
Witnesses to encourage resolution by the parties themselves,
the crucial necessity of the parties to abide by the Algiers
Peace and Cessation of Hostilities Agreements, and the
challenges of land and property rights as well as consular
access and citizenship issues that the parties and
international community face in a final demarcation agreement.
Other Ambassadors noted their understanding of the position of
Ethiopia.

COMMENT
--------------


7. (C) Meles' comments to the Ambassadors reflect the views of
the powerful executive committee of the ruling EPRDF party and
serve as a redline for the Ethiopian government. Despite
agreement by both parties, including Ethiopia, for the Algiers
Peace Agreement's provisions that the EEBC can set its own
procedures and regulations and that the EEBC's delimitation
and
demarcation determinations shall be final and binding,
Ethiopia
opposes the EEBC's "virtual demarcation" decision as "final

ADDIS ABAB 00000174 003 OF 003


and
binding" and remains steadfast to its position of direct
mutual
discussion by the parties themselves with no outside comment
or
advice as the only way to implement a final demarcation
decision. Ultimately, the border demarcation decision cannot
be implemented peacefully without addressing the fundamental
tensions and divisions which gave rise to the border war.
Without addressing the bilateral problems, any demarcation
decision or effort to implement a demarcation line will most
likely lead to renewed conflict. At the same time, Ethiopia's
change of heart to the EEBC's decisions, which it agreed to
uphold prior to the EEBC process, has complicated the border
problem.


8. (C) The Ambassadors felt the threat of withdrawal was more
theatrics than substance and the meeting came off as criticism
of the UNSC members. The U.S. Ambassador told the Foreign
Minister separately, and referred the Prime Minister to that
conversation, that criticism of UN deliberations will undercut
Ethiopia's message. It would be in Ethiopia's interest and
help discussions in New York for Ethiopia to explain how it
will implement a lasting and peaceful demarcation decision.
End Comment.
YAMAMOTO