US-ISRAEL CONSULTATIONS ON UN AFFAIRS

S E C R E T SECTION 01 OF 04 TEL AVIV 002591 SIPDIS E.O. 12958: DECL: 11/21/2018 TAGS: PREL UNEP MOPS KPKO UN LE PA IS SUBJECT: US-ISRAEL CONSULTATIONS ON UN AFFAIRS Classified By: Deputy Chief of Mission Luis Moreno, reason 1.4 (b) and (d) ¶1. (S) SUMMARY: On October 28, Assistant Secretary Brian Hook and MFA Deputy DG for International Organizations Evyatar Manor led a bilateral consultation on United Nations Affairs with the Foreign Ministry. The discussions covered the Security Council role in the ongoing peace negotiations, Lebanon and UNSCR 1701, and normalizing Israel's role within the UN system. Regarding ongoing peace negotiations, Tal Becker, FM Livni's chief political advisor, underlined that the process is working and the UNSC must continue to allow it to work. If the UNSC tries to pre-empt matters by taking up the settlement issue in isolation, it could jeopardize the talks. Becker explained that should the Palestinians think they will get a better deal from the UNSC, they will pull back from the negotiating table. On UNSCR 1701, the GOI believes the lack of implementation, and UN over-reporting of Israeli violations while ignoring Hizballah violations, is undermining the credibility of the UN and legitimizing Hizballah. While respecting UNIFIL Force Commander Gen. Claudio Graziano, Israel believes that due to the political situation and wishes of the troop contributing countries, Graziano must continue to avoid confrontations with Hizballah and allow it to operate. Finally, the Israelis detailed their efforts to normalize their role within the UN system, with the ultimate goal of becoming full members of the Western European and Others Group (WEOG). END SUMMARY. -------------- -------------- UNSC Should Support Talks, Not Establish a Separate Channel -------------- -------------- ¶2. (C) After opening remarks by DG Manor, Tal Becker, FM Livni's chief political advisor, and Daniel Taub, MFA Deputy Legal Advisor, briefed A/S Hook and the U.S. delegation on the role Israel believes the UN should play in the peace negotiations. They emphasized that the UN should consistently support the parties, who are engaged in a real process, and not undermine them by suggesting to the Palestinians seemingly more attractive alternatives to what were on offer in the talks. ¶3. (S) In response to A/S Hook's question, Becker noted the negotiations are progressing well, even if the parties must keep them secret, so the challenge is to manage the voices that say nothing is happening. Becker noted there will be a Quartet briefing on the process, but not the substance, of the talks in November (NOTE: This took place on November 9). He underlined that the two sides are making real progress towards a blueprint for a two-state solution, and the process includes all core issues, including Jerusalem. In addition to the high-profile senior level talks, working committees have been formed on a host of issues, with maps and some treaty elements worked out. "We do not want just a cosmetic achievement," Becker emphasized, adding that the negotiators hoped to deliver a "complete package" as the outcome of their talks, not a "progress report" that one or the other party could walk back. ¶4. (C) To keep this progress on track, Becker said the Security Council should limit itself to saying to the Palestinians: "get back to the table." Unfortunately the Council kept dabbling with the idea of a one-sided resolution focused on Israeli settlement activity. This had many negative implications. First, these efforts could keep the Palestinians from committing completely to talks on borders, as they think they might get a better deal from the UN. Second, such talk could only force Israeli politicians to comment publicly on this difficult issue during the Israeli election season, and they would be forced to be more hawkish than normal. Finally, the condemnations of Israel hurt the Palestinian Authority (PA) (more than the GOI) by reinforcing Hamas' message that the PA cannot appropriately deal with Israel. ¶5. (C) Taub briefed A/S Hook on the GOI view of the settlements issue, emphasizing that negotiations related to them were tied sequentially into the roadmap, and that awards of tenders do not necessarily reflect actual construction on the ground as four levels of approval are required before construction can begin (COMMENT: Our understanding is that all four of these approvals have been granted before the tenders are issued. Building permits for actual construction are still required after tenders are issued and granted. END COMMENT). He claimed that there had been no new settlements (in the West Bank, not including East Jerusalem) for the past ten years. ¶6. (C) Becker added that some credit should be accorded Israel for what it has done. On the ground the object was to TEL AVIV 00002591 002 OF 004 create "pockets of stability." He claimed 100 checkpoints had been removed, including six major ones. Significant progress had occurred in Jenin, which was becoming a model for access and movement. Israel had also gone out of its way to avoid highlighting Palestinian failures, such as Israel's frequent need to interdict to prevent potential terror attacks. Early in the negotiation process, FM Livni was faced with terrorist bombings that in the past might have been used as a reason to suspend talks, but she persisted. Becker assured A/S Hook that Israel would continue in the negotiations "no matter what." He said he believes the Palestinians are often dragged into condemning Israel at the UN, and do not lead the criticism, an assessment with which Hook agreed. Becker said Israel would like the Arab world to be more proactive by supporting Abu Mazen, paying on their pledges to the PA, and keeping the focus on the talks. -------------- -------------- Lebanon and UNSCR 1701: Lack of Balance Threatens Mission -------------- -------------- ¶6. (S) Nimrod Barkan, Head of the MFA Policy Research Division, then briefed A/S Hook on the situation in Lebanon. He described Hizballah as both strengthened by its participation in the democratic process and moderated in its militancy. Barkan explained that Hizballah's multiple identities -- Iranian proxy, Lebanese Shi'a political party, Jihadist terror group -- forces them to restrain their military actions both against Israel and internally. If Lebanon is prosperous, that also moderates Hizballah because they do not want to keep developing along the political track and do not want to provoke a civil war or another war with Israel. This showed that efforts to promote democracy in Lebanon had worked to a certain extent. At the same time, due to its superior morale and experience, Hizballah is in many ways a superior fighting force than the Syrian Army; it does not want to lose that superiority. Barkan added that Israeli threats also restrain Hizballah; however, he cautioned, any attack on Iran would likely change this calculation immediately. ¶7. (C) A/S Hook asked about Israeli views on the quality of the periodic UN reports on Lebanon. Barkan replied that reports by UNIFIL and the Secretary General's reports on implementation of UNSC resolution 1701 are strengthening Hizballah by only reporting Israeli air violations. This grants legitimacy to Hizballah and its arguments. Meanwhile, he said, Hizballah has been able to completely rebuild in Southern Lebanon, only being forced to lower its profile slightly. He said that Israel expects the next 1701 report will also be one-sided. However, he agreed with State/IO political officer Andrew Morrison, who noted that the latest report on UNSC resolution 1559 and the report of the Lebanon Independent Border Assessment Team (LIBAT) were much more realistic in pointing out ongoing, unconstrained weapons smuggling from Syria and the dangers of Hizballah rearming. Both delegations agreed that it would be worthwhile to point out the inconsistencies in the two reporting streams if the next 1701 report met Barkan's negative expectations. ¶8. (C) On the ground, Barkan continued, Israel is trying to work with UNIFIL Gen. Graziano to provide accurate overflight numbers and to engage on Ghajar. UNIFIL's claim of 700 overflights in the latest reporting period is ridiculous, Barkan opined, as the Israeli Air Force does not fly that many missions. The LAF and UNIFIL overcount by citing each dip above and below the border by a single aircraft on a single mission as a separate "violation", this providing a seriously distorted picture. Reducing the numbers to a more realistic count should be win-win, because then Graziano can then take credit for the reduction. A/S Hook said he would take this up with the General during his upcoming meeting with him in Lebanon. ¶9. (C) Turning to Ghajar, Manor said Israel is "preparing the necessary positions" for progress. This would require political leadership on all sides, he said. The key difficulty that Israel perceived, he noted in response to A/S Hooks inquiry, was that even if the GOL and March 14 tried to take initial credit for achieving a Ghajar withdrawal via negotiations, in the current environment it would be Hizballah who would actually move into the area, take control of the positions on the ground, and claim the final credit. ¶10. (S) Manor and Barkan encouraged Hook to arrange for the U.S. to share with the UN intelligence on arms smuggling across the Syrian border, to the extent this was possible. The UN often rejects Israeli intelligence with the explanation that if it were really happening, they would be hearing about it from more countries. Hizballah is also persisting in efforts to persuade Syria to transfer to it TEL AVIV 00002591 003 OF 004 better anti-aircraft weapons. While Israel temporarily stopped this by sending strong messages through UNDOF, Barkan said Syria is reconsidering it imminently because the Syrians see Hizballah as more effective than the Syrian Army. In response to A/S Hook's question, Manor noted that communication with UNIFIL was not a problem, so there are no immediate plans to open a local UNIFIL office in Tel Aviv. He said MOD Barak had raised the smuggling issue in his recent meeting with Graziano. ¶11. (S) Barkan complained that on the ground, it seems that UNIFIL has a tacit agreement with Hizballah to not discover violations of UNSC resolutions. The GOI does not blame Graziano, whom it believes is not biased against Israel, but rather political instructions of the troop contributing countries (including Italy) who want to keep their soldiers safe. Barkan gave the example of a stalled truck carrying weapons in southern Lebanon that was spotted by on Israeli drone. Israel notified UNIFIL, but forces arrived 6 hours later. He said the drone had to leave after about 4 hours, and the smugglers used that window to transfer the weapons; by the time UNIFIL was on-site, the truck was empty. -------------- -------------- Western Groups allow Israel to continue UN normalization -------------- -------------- ¶12. (C) Manor explained that while the Israeli public and many politicians remain wary of the UN, the MFA has continued to work to normalize their relations within the UN system. In addition to participation in WEOG for electoral purposes in New York, Israel has hosted conferences, like a workshop for the UN Economic Commission for Europe (ECE),and is serving in more committees, including chairing an experts group for the ECE. To expand on this, MFA/IO Human Rights chief Simona Halperin explained that Israel would pursue an incremental approach leading to full participation in WEOG in New York (not merely voting rights) and ultimately becoming full members in WEOG (or its equivalent) in every UN institution. The three immediate priorities are JUSCANZ membership for the Human Rights Council (HRC) in Geneva, full JUSCANZ membership in the Convention to Combat Desertification (CCD) in Bonn, and WEOG participation in the Conference on Trade and Development (UNCTAD). Israel's lack of full participation in consultative groups often causes problems at the working level, such as at UNEP and HABITAT, when Israel was elected to be the WEOG representative to the respective organizations but was barred from participating in the governing board meetings of the respective organizations for several months. ¶13. (C) Halperin noted that Israel is also trying to get better results at UNGA by focusing on specific countries, and believes they have had success with El Salvador. A/S Hook added that the United States is doing the same, taking a more "whip-like" approach to UNGA votes and getting Congress involved in contacting Heads of State. Manor mentioned as well that Israel would consider increased participation in UN peacekeeping operations where possible. -------------- -------------- Israel Concerned about HRC, Durban 2, Special Rapporteur -------------- -------------- ¶14. (C) Manor pointed out that Israel is up for HRC Universal Periodic Review (UPR) on December 4 and has seen the HRC's report, which it finds troubling. Israel has sent its own report to the HRC, and will only answer questions on its report. The UK set this precedent, Manor explained, when it refused to answer questions on Iraq during its UPR, saying it was outside the scope of the report. A/S Hook also expressed concerns about the HRC and explained that the President has asked for a review of the council as soon as possible, ahead of the mandatory 2011 review. The USG is still developing its plans, but will offer a vision for a more effective and less biased body. ¶15. (C) Israel would also like to see a change in the mandate of the Special Rapporteur on the Palestinian Territories, Manor noted, explaining that the 1992 mandate predates the Oslo accords and the Palestinian Authority, and even the new Special Rapporteur Richard Falk has said it is outdated. The HRC brought up the idea of mandate review, but took no action on it. Israel remains deeply unhappy with the many anti-Israeli statements made by Professor Falk. As a result, while it had allowed the previous Rapporteur, John Dugart, to enter Israel using his UN Laissez Passer to access the territories in the course of his work, it would not allow Falk to enter as a UN official. He is still able to come as a U.S. citizen, on unofficial visits, however, and recently lectured at Abu Dis University in the West Bank. TEL AVIV 00002591 004 OF 004 ¶16. (C) On the Durban 2, to be held in Geneva in April 2009, Manor said Israel would not participate unless it was much better than Durban 1 (Note: Israel subsequently announced it will not attend Durban 2),adding that Canada has already said it would not go and France and Europe have both expressed concerns. He noted that the Asia group statement is already posted and sounds just like pre-Durban 1 statements with references to racism, apartheid and genocide in Israel and nowhere else. A/S Hook noted the Congressional resolution on the matter and said that he shared Manor's concerns. While UN High Commissioner for Human Rights Judge Pillay has stated her determination to improve the conference and get more participation, it was difficult to see how this could possibly occur. ¶17. (C) Finally, A/S Hook asked about Israeli views of the recent UNSC elections. Manor said that Israel sees Turkey, Japan, and Uganda as improvements over the members they are replacing, with Austria likely to vote much the same as did Belgium. Only Mexico might be possibly worse than Panama with respect to Israeli interests. On Turkey in particular, Israel believes it will likely not want to be seen as "troublemakers" and thus will follow consensus, pay close attention to the EU position, and not force any dramatic actions. ¶18. (SBU) A/S Hook cleared this cable. ********************************************* ******************** Visit Embassy Tel Aviv's Classified Website: http://www.state.sgov.gov/p/nea/telaviv You can also access this site through the State Department's Classified SIPRNET website. ********************************************* ******************** CUNNINGHAM