IAEA: WEOG STONEWALLS ON ISRAEL,S MEMBERSHIP

C O N F I D E N T I A L SECTION 01 OF 03 UNVIE VIENNA 000165

SIPDIS

SIPDIS

DEPT FOR IO/T, ISN/MNSA, NEA

E.O. 12958: DECL: 03/12/2018
TAGS: AORC IAEA KNPP IS
SUBJECT: IAEA: WEOG STONEWALLS ON ISRAEL,S MEMBERSHIP
REQUEST

REF: A) 07 STATE 168186 B) 07 UNVIE 693

Classified By: Ambassador Gregory L. Schulte for reasons 1.4 b and d

Summary
--------------


1. (C) Following up on the effort during the U.S. WEOG
Chairmanship last fall (Ref B) to extend membership to
Israel, the Australian Chair relayed a formal request from
Israel to the group. In a February 19 WEOG meeting, Ireland,
New Zealand, Switzerland, Sweden, Spain and Finland raised
reservations though they claimed to be open to continued
discussion of Israel's request. The principal objections
were that Israel had been admitted to WEOG only for electoral
purposes in other UN fora, and that IAEA-WEOG deliberations
on Middle East issues would be constrained. EU members also
sought an EU decision on the issue of admitting Israel and
questioned the purpose of the IAEA-WEOG. Israel has proposed
"mutually agreed modalities" for discussion of Middle East
issues. However, Israeli Ambassador Michaeli believes there
are much deeper objections on the part of some WEOG members
and is inclined to not push the issue of Israel's membership,
which could provoke a divisive WEOG debate. End summary.

WEOG Not Receptive
--------------


2. (C) The IAEA WEOG group held consultations February 19 on
a formal request from the Government of Israel that it be
accorded full membership. In a February 14 letter to the
Australian WEOG Chair (text para 8),Israeli Ambassador
Michaeli noted Israel's exclusion from the MESA group and its
inclusion in WEOG in other UN fora. Israel also offered to
accommodate "possible sensitivities and concerns" on the part
of some WEOG members regarding General Conference (GC)
deliberations on Middle East issues through "mutually agreed
modalities." Ambassador Schulte also summarized a letter he
had sent to WEOG members as the outgoing Chair in December
that addressed questions and concerns raised in prior WEOG
consultations (Ref B). He explained WEOG's informal
consultative status at the IAEA and other precedents for
Israel's representation in WEOG within the UN system,
consistent with Ref A guidance. Ambassador Schulte appealed
to WEOG members to admit Israel, which was the only country
not a member of any group.



3. (C) Ireland and New Zealand voiced reservations as they
had previously (Ref B),along with Switzerland, Spain, Sweden
and Finland, though they all claimed to be open to further
discussion of Israel's request. Only Norway expressed strong
principled support for accommodating Israel. Ireland and
Finland observed that precedents for Israel's inclusion in
WEOG in New York and elsewhere were for electoral purposes
only, whereas the IAEA-WEOG does not have a formal electoral
function under the IAEA Statute. Sweden unhelpfully added
that in New York, it was "completely forbidden" for Israel to
take part in any WEOG consultations not related to elections.
The Swedish PR likened the IAEA-WEOG more to the Geneva
Human Rights Council where Israel is excluded from WEOG
because Israel-related resolutions are discussed. Ireland,
Finland and New Zealand echoed concerns about Israel's
participation in substantive IAEA-WEOG deliberations on
Middle East issues during the General Conference. New
Zealand was unconvinced that Israel was "like-minded" on
these issues. (Note: Tel Aviv has advised Michaeli that
Israel participates in UNGA First Committee deliberations on
Middle East issues as part of a WEOG-subgroup in New York,
but UNVIE has not been able to confirm this. End note)


4. (C) Spain and Sweden also cited the need for an EU
decision on Israel's participation in WEOG. Stockholm
questioned the whole purpose of WEOG in Vienna, a matter that
the Nordic Group and the EU should consider. Spain said that
it would follow up with the UN Group in Brussels, and has
reportedly sent such a request. Michaeli also told
Ambassador Schulte that Spain took an unfriendly stance in a
subsequent EU-Vienna group meeting. (Note: According to
Ireland, the EU had made a decision on this matter years ago
to allow Israel's participation in WEOG only for electoral
purposes. End note).

UNVIE VIEN 00000165 002 OF 003



Next Steps
--------------


5. (C) Ambassador Schulte proposed that the Australian WEOG
Chair explore with Israel the "modalities" on Middle East
discussions referenced in its letter. Australian Charge
agreed to do so and concluded that the WEOG was not prepared
to make a decision, but discussions would continue on the
matter. Australian Ambassador Shannon, who has been
supportive of Israel's request, has since followed up with
Michaeli. Michaeli also explained to Ambassador Schulte on
March 11 that while Israel does not want to put it in
writing, the "modalities" would consist of Israel presenting
its view on Middle East GC agenda items and then leaving the
room during WEOG deliberations on the subject. Michaeli will
seek instructions on whether to orally brief WEOG on these
"mutually agreed modalities." Shannon had suggested that
Australia could circulate the Chair's understanding of
"modalities" to the group.


6. (C) Michaeli is generally pessimistic about Israel's
near-term prospects for joining the IAEA-WEOG. The question
of "modalities" for discussion of Middle East issues was a
pretext in his view, which may address some of the "excuses"
made by some WEOG members, but deeper objections remain. He
had heard that Wellington, for example, would oppose Israel's
inclusion in WEOG unless Israel acceded to the NPT. Michaeli
is inclined not to press the issue of Israel's membership in
the IAEA-WEOG too hard, as this could close the door, but
rather to take a lower profile and allow discussions to
continue.

Comment
--------------


7. (C) WEOG members seem inclined to slow-roll any decision
on Israel's membership, and any effort to force such a
decision would be divisive. While Ireland and New Zealand
had assured us privately that they would be more
accommodating, they proceeded to raise the same objections in
the February WEOG meeting as they had in November (Ref B).
Turkey is no longer objecting (they attributed their stance
in November to a lack of instructions) but we are
disappointed that several other WEOG members have now
seconded Ireland and New Zealand. Given the unhelpful
positions of some EU members, the EU is also not likely to be
receptive, and WEOG supporters of Israel such as the U.S.,
Canada, Australia and Norway may be isolated. Mission will
continue to back Israel's request for membership, in
principle, but agrees that the prospects are not good. End
Comment.

Israel's Letter to the IAEA-WEOG
--------------


8. (SBU) Begin text of February 14 letter to Australian WEOG
Chairman, Ambassador Peter Shannon from Israeli Ambassador
Michaeli:

Dear Sir,

The State of Israel wishes to become a full member of WEOG in
the framework of the IAEA. As you are aware, Israel's request
has been already brought to the attention and consideration
of your distinguished predecessors, the Ambassadors of the
United Kingdom and of the United States of America.

Israel's decision to apply for WEOG membership comes against
the background of continued refusal by the MESA group, which
is clearly politically motivated, to allow Israel to
participate in its natural regional group.

The State of Israel already enjoys WEOG's membership in the
UNGA, including the First Committee, as well as the Geneva
based WIPO and CD and Vienna based Commission on Narcotic
Drugs and UNIDO.

We would appreciate a favorable consideration of our request
by WEOG members. Israel is fully aware of the politically
sensitive nature of certain topics pertaining to the Middle
East under discussion and consideration in WEOG. We therefore

UNVIE VIEN 00000165 003 OF 003


wish to assure all WEOG members, through you Mr. Chairman, of
Israel's willingness to accommodate possible sensitivities
and concerns in this regard through mutually agreed
modalities.

We would appreciate informing of this formal request by the
State of Israel to all WEOG members.

Please accept, Sir, the assurances of my highest
consideration.

End text.



SCHULTE