DOHA DARFUR CONSULTATIONS: AGREEMENT OF GOODWILL SIGNED

UNCLAS SECTION 01 OF 03 DOHA 000133

SENSITIVE

FOR AF/SPG AND NEA/ARP

E.O. 12958: N/A
TAGS: PREL SU QA
SUBJECT: DOHA DARFUR CONSULTATIONS: AGREEMENT OF GOODWILL SIGNED

--------------
(SBU) KEY POINTS
--------------

-- (SBU) On February 17, representatives of Sudan's Government of
National Unity (GNU) and the Justice and Equality Movement (JEM)
signed an "Agreement of Goodwill and Confidence Building for the
Settlement of the Problem in Darfur."

-- (SBU) The agreement (text at para 11) calls for an exchange of
prisoners; for guaranteeing the flow of humanitarian assistance; and
for working toward a framework agreement within three months.

-- (SBU) AU/UN Joint Mediator Djibril Bassole and Qatari Prime
Minister/Foreign Minister Hamad bin Jassim Al Thani announced at a
press conference that they would soon travel to Khartoum to work out
a timeframe for next steps. JEM leader Khalil Ibrahim announced
that he would unilaterally release a number of prisoners as a
goodwill gesture.

-- (SBU) Both delegations agreed to maintain representatives in
Doha to continue discussions. Mediator Bassole intends to convene a
Contact Group meeting in Brussels in early March.

-- (SBU) Qatari Minister of State for Foreign Affairs Ahmed bin
Abdullah al-Mahmoud and Bassole expected that an announcement by the
International Criminal Court of an arrest warrant for Sudanese
President Bashir could dampen the GNU's interest in pursuing an
agreement, but reiterated Qatar's commitment to the peace process no
matter the ICC's verdict.

-- (SBU) Qatar is committed to reconstruction in Darfur, but as a
bottom-up process. Al-Mahmoud and Bassole will look for ways to
engage civil society organizations in the peace consultations, as
well as post-agreement reconstruction.

END KEY POINTS

--------------
A STATEMENT OF INTENTIONS
--------------


1. (U) Sudanese Minister of Culture, Youth and Sports, Dr. Amin
Hassan Omer, and JEM representative Jibril Ibrahim signed an
"Agreement of Goodwill and Confidence Building for the Settlement of
the Problem in Darfur" in Doha on February 17 at the Amiri Diwan.
The signing was witnessed by representatives of the five permanent
members of the UN Security Council (P5) and the Qatari Foreign
Minister/Prime Minister.


2. (U) The agreement stipulates that both sides agree to refrain
from harassing internally displaced people; guarantee the flow of
aid; work toward a framework agreement that leads to a cessation of
hostilities in under three months; and exchange prisoners based on a
timeline to be developed by Mediator Bassole.


3. (U) At the signing ceremony press conference, Bassole and the
Qatari Prime Minister announced that they would soon travel to
Khartoum to help work out the timeline for prisoner exchanges and
other next steps. JEM's Khalil Ibrahim announced that he would
unilaterally release a number of prisoners as a goodwill gesture.

--------------
BASSOLE AND AL-MAHMOUD: WHAT NEXT?
--------------


4. (SBU) After the signing ceremony, Qatar's Minister of State for
Foreign Affairs Abdullah al-Mahmoud met with P5 representatives, and
thanked them for their support and advice during the consultations,
which he said was vital to the success of "round one." He
encouraged the P5 to issue individual statements of support, as it
would encourage those who remain outside the process to join in.


5. (SBU) Al-Mahmoud and Bassole stressed the need for an inclusive
process and that the parties have agreed to this in principle, even
though it was not spelled out in the agreement itself. The
mediators explained that they preferred to leave it out of the text
to prevent either party from believing it had a veto over if/ who
participates in the peace process. Al-Mahmoud and Bassole said
they would now start an intensive engagement with other actors.


6. (SBU) JEM and GNU will leave some delegation members in Doha to
continue consultations and prepare for the final talks on a draft
framework agreement. Bassole felt the confidence building measure
agreement was good, but that the most difficult task was yet to
come. The first issue is the need to create a good environment that
"could bring in others who continue to resist."


7. (SBU) Bassole also underscored the importance of normalizing
relations between Chad and Sudan, and engaging with Libya, Egypt,
and Eritrea for their constructive involvement and support for the
Qatari/AU/UN mediation efforts. He suggested working with these
countries to get them to a stage where "they speak with one voice
during the final talks." Bassole said he planned to visit each
country soon, but did not specify a timeline. He also pledged to
call a Contact Group meeting in Brussels by mid-March.

--------------
POSSIBLE ICC IMPACT
--------------


8. (SBU) Asked what impact an ICC announcement might have on the
process begun in Doha, both al-Mahmoud and Bassole emphasized that
they intended to continue their mediation efforts, but feared that
the rebels could refuse to join talks and the government may no
longer see the benefit of talks if an arrest warrant were issued.
Bassole surmised that JEM refused to sign a cessation of hostilities
agreement because they are waiting for the announcement. Though an
announcement of the ICC could create some uncertainty, said Bassole,
it should not detract the mediators from their focus.


9. (SBU) Al-Mahmoud opined that peace is more of a priority for
Darfuris than justice. The Qataris are committed to move forward to
conclude a comprehensive agreement, but al-Mahmoud said he wanted
the ICC judges to think about the people of Darfur and the impact an
announcement could have on their lives. Ultimately, however, Qatar
will respect the ICC's verdict.

--------------
RECONSTRUCTION AND PEACE FROM THE GROUND UP
--------------


10. (SBU) The Minister of State said that Qatar would like to
engage in reconstruction in Darfur after a peace agreement is
concluded, but believes that any successful project needs to start
from the grassroots, so a bottom-up approach is indispensable to the
peace process. He and Bassole are discussing how to engage civil
society, to inform them of what has been done so far and what the
next steps are.

--------------
AGREEMENT TEXT
--------------


11. (U) Begin text of the "Agreement of Goodwill and Confidence
Building for the Settlement of the Problem in Darfur:"

In the name of God, the Most Compassionate, the Most Merciful

AGREEMENT OF GOOD WILL AND CONFIDENCE BUILDING FOR THE SETTLEMENT OF
THE PROBLEM IN DARFUR

Under the kind auspices of the State of Qatar and the AU-UN Joint
Chief Mediator for Darfur, a meeting was convened from 10th to 17th
of February 2009 in Doha, capital of the State of Qatar between a
delegation from the Government of National Unity of the Republic of
Sudan (GNU) and a delegation from the Justice and Equality Movement
Sudan (JEM) to pursue a negotiated peaceful settlement for the Sudan
conflict in Darfur.

The two Parties hereby:

Firstly: Highly appreciate the role of the State of Qatar as the
Host Country and agree upon Doha as the venue for the talks between
them.

Secondly: Appreciate the kind auspices of H.H. Sheikh Hamad bin
Khalifa Al-Thani, Emir of the State of Qatar and the mediation by
the esteemed Government of the State of Qatar and the AU-UN Joint
Chief Mediator, Mr. Djibrill Bassole;

Thirdly: Recognize the constructive support to the peace process
provided by neighboring countries and the international community.

Fourthly: Declare their intent to work towards ending the ongoing
conflict between them, as follows:

Give the peace process a strategic priority over other issues to
settle the conflict in Darfur.

Agree to adopt a comprehensive approach which addresses the
root-causes of the problem and realizes a lasting peace in the
country.

Agree to take all necessary measures to create a conducive
environment for reaching a lasting settlement of the conflict,
including:

Refrain from all kinds of harassment of IDPs.

Guarantee the smooth and unobstructed flow of relief assistance to
the needy people without any obstacles or constraints.

Commit to exchange prisoners and release imprisoned, convicted,
detained and arrested persons in relation to the conflict between
them with a view to building confidence and accelerating the peace
process. The state of Qatar and the AU-UN Joint Chief Mediator will
maintain contacts with both parties to work out a time-line for
concluding the release of the above-mentioned.

Work towards an early framework agreement that leads to cessation of
hostilities and lay down the basis for detailed issues.
Undertake to follow the framework agreement with serious talks to
end the conflict in the shortest possible time, not to exceed three
months.

Pledge to remain engaged in the peace process and to maintain
representatives in Doha to prepare a framework agreement to the
final talks.

Done in three languages, in Arabic, English and French, all texts
are equally authentic.

Signed in Doha on 17th February 2009

For the Sudan Government of National Unity
Dr. Amin Hassan Omer, Minister of State, Ministry of Culture, Youth
and Sports

For the Justice and Equality Movement
Dr. Gebreil Ibrahim Mohamed, Head of the JEM delegation to the Doha
talks

Witnessed by:

Ahmed bin Abdulla Al-Mahmoud
Minister of State for Foreign Affairs and Member of the Cabinet,
State of Qatar

Djibrill Yipene Bassole
AU-UN Joint Chief Mediator for Darfur

END AGREEMENT TEXT

LEBARON