ISRAELI PARTICIPATION IN UNRWA AT 60 EVENT - USUN

C O N F I D E N T I A L USUN NEW YORK 000798 E.O. 12958: DECL: 08/26/2019 TAGS: PREL PREF UNGA IS KPAL SUBJECT: ISRAELI PARTICIPATION IN UNRWA AT 60 EVENT - USUN CONSULTATIONS Classified By: Ambassador Wolff for reasons 1.4 (b) and (d) ¶1. (C) Summary: The Palestinian Observer Mission to the UN has taken a very hard-line position against the Israeli request for a speaking role at the high level segment of the UNRWA 60th anniversary commemorative event. The Arab members of the steering committee are likely to follow the Palestinians' lead. Thus, absent clear instructions from the highest levels of the Palestinian Authority (PA) to support the Israeli request, the Palestinian position will translate into active opposition to the request by the steering committee's Arab members. Other members of the steering committee organizing the event are generally more positive about the request, but have raised objections about process, re-opening the speakers' list to other requests to speak, the content of Israel's statement, and - most seriously - concerns about the reaction of Arab states. Active opposition from the Palestinians could undermine even this limited support for Israeli participation, thus preventing any opportunity for consensus in the steering committee. Turning the Palestinian and Arab position to accepting an Israeli speaking role is the key. The steering committee is now scheduled to meet on September 8. End summary. -------------- Arab Reaction -------------- ¶2. (C) The members of the United Nations Relief and Works Agency (UNWRA) steering committee that is organizing the UNRWA 60th anniversary event are Norway (acting as the chair),Egypt, Jordan, Indonesia, Senegal, France, Czech Republic, Sweden, Japan, Mexico, and the United States along with observers from the Palestinian Observer Mission and the European Union (EU). The Palestinian Observer Mission has taken a very hard line against Israeli participation as a speaker in the foreign-minister-level event, telling Ambassador Wolff that he has taken this position as the representative of the Palestinian people. The Jordanian Ambassador was extremely guarded in his response to Ambassador Wolff and said the Arab Group would have to meet to discuss the issue. (Comment: We read this response from our usually forthcoming Jordanian colleague as foreshadowing Jordan's adherence to whatever decision the group takes. End comment.) The Jordanian Mission has requested instructions on this from Amman on August 25. There is an Arab Group meeting scheduled for the week of September 7 to discuss UN General Assembly issues and the Palestinians could raise the issue during that meeting. The Jordanian expert suggested that a strong positive statement from UNRWA on the Israeli request, as well as a moderate position from the Arab League and the Palestinians would be key to shaping any decision made by the Arab states. The Egyptian Charge was noncommittal when Ambassador Wolff raised the issue with him. The Egyptian expert (whom we have found to be a frank and helpful interlocutor) told us that it will be very difficult to reach agreement on Israel's participation; that the Palestinian position will be absolutely key, as the Arab countries will not support this if the Palestinians are opposed; and that concern about what Israel may say in its speech will certainly play a role in the Arab decision. -------------- European Reaction -------------- ¶3. (C) The French expert noted that France has withheld its final agreement on the current speakers' list because it is seeking a "global solution" that will include a speaking role for France. The Norwegian expert (chair of the steering committee) has taken a conciliatory approach but is concerned about reaching consensus within the committee. The Swedish expert expressed concern about the ability and authority of the steering committee to make a decision instead of having a formal Advisory Committee (AdCom) meeting on the topic. (Note: The Jordanian expert raised similar concerns. End note.) -------------- Reaction from other steering committee members -------------- ¶4. (C) The Indonesian PermRep told Ambassador Wolff that Indonesia will not oppose Israeli participation, since the UNRWA event should remain non-political. The expert from Senegal, while noting the need to seek instructions, was positive about the idea, saying that it would add "balance" to the speakers list. In an August 27 meeting, Senegalese Foreign Minister Gadis told Ambassador Rice they could support Israeli participation provided the Israeli statement would be constructive. The Japanese expert had no reservations about including Israel if all other steering committee members could agree. The Mexican expert said Mexico has no political problem with Israel's participation, but asked if the U.S. could reiterate to all steering committee members and speakers the desire for the event to be a commemoration of UNRWA's work, not a chance to make political statements about Palestinian refugees. -------------- Procedural issues -------------- ¶5. (C) The steering committee's next meeting is scheduled for September 8. The committee is an ad hoc group with no official standing as a UN body and no written rules of procedure. It has always operated by consensus. The AdCom's rules of procedure on subsidiary bodies state "The Commission may form subsidiary bodies, such as sub-committees. The Commission will study the possibility of establishing ad hoc Working Groups at a future date. These bodies report back to the full Advisory Commission." There is no mention of voting as a fallback if consensus cannot be reached. Given the steering committee's lack of its own rules, some members may argue that it should operate under the same rules as the AdCom. ¶6. (SBU) AdCom rules of procedure require six weeks' notice for a "regular session" but make a provision for convening an extraordinary session "in order to discuss urgent business at the request of: the Commisioner-General; the Bureau; or at least three members" (The rules may be found at http://www.un.org/unrwa/AdComHDM 07/public/AdComDocs.html). We understand that the June AdCom meeting decision that established the current speakers' list also delegated to the steering committee the possibility of adding additional speakers. -------------- Comment -------------- ¶7. (C) Comment: It is clear that the Palestinian position will help determine the other Arabs' stance. In the absence of clear instructions from the PA leadership, their Ambassador's position of strong opposition to the Israeli request will ensure a negative Arab position. If Arab group opposition emerges and the committee cannot agree by consensus to Israeli participation, we expect that other members of the steering committee will argue that the committee, as an ad hoc group operating without rules, should simply defer to the current speakers list "approved" by the AdCom. Absent strong instructions from capitals we do not expect that even steering committee members favorably disposed to Israel's request, such as Japan and Mexico, will take a vocal position of support during the meeting. RICE