USUN AND TURKISH MISSIONS EXCHANGE VIEWS ON ISSUES

C O N F I D E N T I A L USUN NEW YORK 000095 SIPDIS E.O. 12958: DECL: 02/08/2020 TAGS: PREL TU UNSC SUBJECT: USUN AND TURKISH MISSIONS EXCHANGE VIEWS ON ISSUES BEFORE SECURITY COUNCIL Classified By: Ambassador Alejandro D. Wolff, Deputy Permanent Representative, for Reasons 1.4 (b) and (d). ¶1. (U) This is an action request. Please see para 27. ¶2. (C) SUMMARY. Turkish Permrep Apakan and DPR Corman and Ambassadors Wolff and DiCarlo engaged in a wide ranging discussion of issues before the Security Council at lunch on February 5. They covered Cyprus, the Horn of Africa, Iraq, the Middle East, Iran, and the Balkans, among other topics. On Cyprus talks, Apakan said that Turkey strongly supports the SYG's good offices role and that these efforts deserve higher visibility. He asked that the U.S. remain engaged and support the UN when things move to a more critical stage. Apakan wants to discuss the Cyprus issue bilaterally with USUN "from time to time." On Somalia, Apakan reported that Turkey has expressed interest in hosting a UN conference on reconstruction and development, as called for in the Djibouti Accords, and hopes to work closely with the U.S. Apakan also reported that Ankara has put on hold a request from the Eritrean FM to visit Turkey but will reconsider if more encouraging signals from Asmara emerge. Apakan announced that Turkey would host a summit of least developed countries in 2011 and counted on U.S. support for the event. Apakan told Ambassadors Wolff and DiCarlo that Iraq had invited him for a visit in his capacity as chair of the Security Council committee on counter-terrorism. He was favorably disposed but wanted U.S. views. Ambassador DiCarlo welcomed the news, noting that the Iraqis had never formally responded to UN A/SYG Fernandez Taranco's offer of technical assistance from the committee's executive directorate (CTED) following the bombings in Baghdad in August and September of 2009. Apakan pressed for a U.S. decision to join the Alliance for Civilizations, underscoring that alliance objectives match President Obama's Cairo speech. ¶3. (C) SUMMARY CONTINUED: Apakan said he wants a consensus resolution on the Middle East and has been frustrated by the Council's lack of action. He explained the reasons behind Turkey's surprise statement in the Council at the end of 2009 criticizing Israeli actions in Gaza, insisting he was acting on far tougher instructions to mark the incursion's one year anniversary. Ambassador Wolff expressed concern that this episode along with others caused some to think Turkey's traditionally astute foreign policy toward the region was changing. Apakan disputed the policy shift. We are focused on the West and the EU, and value our relationship with Israel, he said. "We continue on our path to be a secular, modern, pluralistic society in the image of Ataturk. We know we have no other option." Apakan committed to raising with USUN difficult instructions from Ankara in the future to avoid misunderstandings. Wolff applauded this, noting that the U.S. wants to work closely with Turkey to manage these challenges. On Iran, Apakan said he understands U.S. concerns, opposes Iran's approach to nuclear issues, but hopes a diplomatic solution is still possible. Turkey is talking to Iran "at all levels" to convince them to change course, he said. Ambassador Wolff reported that preliminary discussions were under way among the P-5-plus-one in capitals on appropriate measures as Iran has been unwilling to resolve the outstanding issues with dialogue. Wolff told Apakan that it would be very important for Turkey to stand with the U.S. Apakan and DiCarlo agreed that the U.S. and Turkey shared views on Kosovo and Bosnia Herzegovina, particularly with respect to the transition from the Office of the High Representative (OHR) to an EU Special Representative (EUSR) in B-H. Apakan urged that the U.S. and Turkey consult closely in New York on Balkan developments. On Haiti, Turkey will contribute a formed policy unit to MINUSTAH. Finally, Apakan noted that Turkey plans to hold a Security Council summit during their September presidency on the margins of the UNGA general debate and is soliciting U.S. views on topics that would attract heads of state and be helpful to the Council's work. END SUMMARY. ¶4. (C) On February 5, Turkish PermRep Apakan, Deputy PermRep Corman and First Counselor Gumrukcu hosted Ambassadors Wolff and DiCarlo and USUN Pol Minister Counselor (notetaker) for a lunch to discuss Security Council issues. Apakan opened by declaring that the U.S.-Turkish partnership continued to grow. He highlighted close bilateral ties and the importance of the U.S. to Turkey. Our main operating assumption on the Security Council, he said, is to maximize cooperation with the U.S. Ambassador Wolff responded that the U.S. and Turkey have a uniquely positive history and relationship, and he looked forward to a frank and collegial exchange as friends on key issues in the Council and elsewhere. CYPRUS ¶5. (C) Apakan said that the recent visit of the Secretary General was important (the first since Kofi Annan in 2004), and that Turkey had encouraged Ban to go and strongly supports the UN role. Apakan stressed that the Cypriot issue should not be left to the EU which could not offer a balanced perspective with Cyprus and Greece as members. That said, he underscored that Ankara likes, appreciates and respects Greek PM Papandreou. We have to give Mr. Papandreou a chance, he said. Apakan observed that talks between "the communities" were moving and Turkey would do its best to encourage this. However, Turkey needs the U.S. to remain engaged and to support the UN when things move to a more critical stage. ¶6. (C) Apakan lamented the shift in terminology and language in recent UN resolutions and statements away from the good offices mission of the SYG, established in UNSCR 1250 (1999), and toward UNFICYP's role (note: UNFICYP is in Cyprus without the consent of Turkey. End note) outlined in UNSCR 1251 (1999). He observed that "many on the Council" (he mentioned Austria, in particular) continue to want the UN role diminished. The UN good offices mission deserves higher visibility, he said. He reiterated that Turkey wanted the U.S. to be involved "when things start to move." We do not want to vote against the next UNFICYP renewal if it can be avoided, he said. To the extent the "UN language" is reinforced, we are happy. To the extent it is changed, we are unhappy. Apakan requested that he and his team discuss Cyprus on a bilateral basis with USUN from time to time, and hoped that his office and USUN could remain in close touch on it. ¶7. (C) Ambassador Wolff assured Apakan that the U.S. supported the UN's role and good offices mission. While noting that the issue was in good hands with UN U/SYG Lynn Pascoe, Wolff said that the UN would receive U.S. support on Cyprus in any manner they want or need it. Wolff offered to review the issue of the "language shift" in UN resolutions, but underscored that rollover/renewal resolutions tend not to break new ground. He cautioned Apakan not to focus too much on it. The real issue is how to move the negotiations forward. Apakan took the point. HORN OF AFRICA ¶8. (C) Somalia: Apakan said that Turkey was following U.S. positions on Somalia and Eritrea. On Somalia, he indicated that Turkey wanted to be helpful to the TFG which was trying to reach out to the various groups on the ground. To support these efforts, Turkey initially was thinking of proposing an international conference in Istanbul with the relevant parties. According to Apakan, both the Somalis and the UN discouraged the idea (note: also according to Apakan, Department officials questioned the timing although not the idea) so Turkey has backed off. However, the UN came back with a counterproposal. SRSG Ould Abdullah suggested that Turkey consider hosting a UN conference on reconstruction and development with the relevant international actors, as called for in the Djibouti Accords. Ould Abdullah told the Turks that UN offices in Nairobi (UNPOS) had already begun working on modalities although this was still in a preliminary stage. Apakan said Turkey was not in a hurry but believed his government was uniquely positioned to be helpful to Somalia and wanted to work closely with the U.S. on this initiative. He requested that he and Ambassadors Rice, Wolff and DiCarlo have further discussions. Ambassador DiCarlo expressed support for Turkey's role and initiative. She agreed with Apakan that a donors conference was not advisable, but suggested that the event Turkey hoped to organize could be used to encourage the pledges made in Brussels. ¶9. (C) Eritrea: Apakan said that the Eritrean foreign minister had recently expressed an interest in visiting Turkey. Ankara was making an assessment on how to respond. Turkish thinking was that Eritrea needed more avenues to reach out to, although initial feelers with Eritrea had yielded little. Eritrean officials were saying the same things and showing little flexibility, according to Apakan. He speculated that "looming sanctions" could change the dynamic. Apakan said that Ankara remained in a holding pattern and informed the Eritreans that their Foreign Minister's schedule made a visit difficult. Apakan said that Ankara would re-visit the Eritrean request if signals from Asmara began to change. Turkey wants to stay in close touch with the U.S. on this, he said, and would welcome any reaction or ideas from the U.S. Amb. Wolff undertook to report this to Washington and seek any reaction. LEAST DEVELOPED COUNTRIES SUMMIT ¶10. (C) Apakan previewed that Turkey would host a summit of least developed countries (LDCs) in 2011. The LDC nations want Turkey to advocate for them, he said, and at some point soon, Apakan and his team will want to discuss the event with USUN and visit Washington as well. He hoped he could count on U.S. support. Ambassador Wolff expressed appreciation for Turkey's willingness to assist the LDCs. He noted that the U.S. has its own dialogue with them and wants to be an advocate as well, given the unique difficulties they face. Wolff and Apakan agreed that both countries should work to make the summit a success, and not politicized and hijacked by others looking for a less constructive outcome. Apakan reiterated that he wanted increased contacts with the U.S. on this. IRAQ ¶11. (C) Apakan said that he wanted to give more visibility to the work of the Security Council Committee established pursuant to UNSCR 1373 (2001) concerning counter-terrorism. He reported that he had recently received a note verbal from Iraq with an invitation to visit Baghdad. Apakan said he was trying to clarify with the Iraqis if this was an individual invitation to him, or directed to the 1737 committee and its Executive Directorate (CTED). Apakan said he was favorably disposed, but wanted U.S. views and hoped to stay in close touch with us on Iraq and counter-terrorism issues in general. Ambassador DiCarlo welcomed the news, noting that the Iraqis had never formally responded to UN A/SYG Fernandez Taranco's offer of assistance from CTED following the bombings in Baghdad in August and September 2009. She encouraged the Turks to suggest to the Iraqis that they also speak to CTED officials. (Note: on February 12, CTED officials informed USUN that they had received a formal invitation from the Iraqi government to visit Iraq to consult on counter-terrorism issues. CTED officials have agreed to begin making preliminary arrangements for a possible trip in the Spring. End Note.) ¶12. (C) Ambassador Wolff said that a CTED visit to Iraq made good sense. Ambassador DiCarlo encouraged Apakan to try to channel Iraqi officials to the 1373 committee and the CTC executive directorate, and to explore with them what CTED could offer in the way of technical assistance. SC RETREAT TO ISTANBUL, MISSION TO AFGHANISTAN, ALLIANCE FOR CIVILIZATIONS ¶13. (C) Apakan said that Turkey was planning a retreat for Security Council PermReps June 25-27 in Istanbul on the linkages between peacekeeping and peace building. Ankara was working on a concept paper and other papers would be commissioned. Apart from PermReps, Ankara was counting on high-level participation from the UN, including the Secretary General and the head of the Peacebuilding Commission. Recently inheriting from Japan the lead in the Security Council on Afghanistan, Apakan also proposed a short Council mission to Afghanistan on the margins of the Istanbul retreat. Wolff and DiCarlo agreed in principle that this would be useful and the timing workable given the postponement of elections until the fall. ¶14. (C) Apakan also raised the Alliance of Civilizations and said he wanted the U.S. on board. He stressed that President Obama's statement in Cairo touched exactly on the objectives of the Alliance. Ambassador Wolff said Washington was looking at this closely. MIDDLE EAST ¶15. (C) Apakan expressed some frustration with how the Middle East has been addressed in the Security Council. He said that Turkey wants to see a consensus resolution on the Middle East during its term. He underscored that his delegation would not push if there is no consensus but stressed that the Gaza situation remained a sensitive issue among the Turkish population. Apakan reviewed his actions during Security Council consultations on December 24, 2009 when he surprised members with a controversial statement on Gaza. He said that he had received firm instructions on the morning of December 24 to call for a Security Council open debate on Gaza on December 27, the one-year anniversary of Israel's incursion. Apakan underscored that with no Council meetings scheduled for the remainder of 2009 and the likelihood that he could not secure consensus for an open debate (due to a likely U.S. objection),his only alternative was to make a statement at the end of consultations on December 24. He insisted that he was not trying to surprise anyone but had to take some kind of action to respond to his instructions. It was the best way to do it under the circumstances, he said. Apakan stressed that Turkey was not against Israel and, as a Muslim nation, prided itself on its support for the Israeli state. We have strategic and military ties with Israel, he stressed, and we need another democracy like Israel in the region. He cited Turkey's solid relationship with Israeli Defense Minister Ehud Barack, in particular. ¶16. (C) Ambassador Wolff expressed appreciation for Apakan's candor regarding what happened in the Council on December 24. He said the U.S. valued Turkey's unique experiences and the role it has played in the region, but said some were increasingly concerned that this might be changing. Policy makers in Washington and elsewhere were watching closely. The incident in Davos and others of late fueled these concerns and could undermine the role Turkey wants to play, he said. Wolff reminded Apakan that the handling of the Middle East in the Council had evolved into a long-established arrangement of monthly meetings. The December meeting had been held the week before and Turkey did not raise its proposal then. Furthermore, Apakan's action followed only a few days after Libya made its final intervention on the Middle East in the Council with provocative visual aids. The Gaza issue, in particular said Wolff, requires special handling if the Council hoped to support the peace process and bring the parties back to the negotiating table. ¶17. (C) Apakan acknowledged that it would have been better to make his points the week before. He claimed that he is under constant pressure from Arab delegations to bring Middle East-related initiatives to the Council and resists regularly. But, an instruction from Ankara I cannot ignore, he said. Apakan contested emphatically the assertion that Turkey's foreign policy might be changing. He insisted that Turkish policy remains as it has always been: focusing on the West and joining the European Union. "There is no shift in Turkey's foreign policy because we have no other options." We continue on our path to be a secular, modern, pluralistic society in the image of Ataturk, he said. Apakan committed to advising USUN immediately of surprise instructions from Ankara in the future to avoid misunderstandings, but cautioned that the U.S. had to expect some stylistic differences from Turkey when necessary. ¶18. (C) Ambassador Wolff encouraged Apakan to consult closely with the U.S. and committed to work closely with Turkey to manage these kinds of challenges in the future. Wolff told Apakan that the U.S. would welcome a consensus resolution on the Middle East in the Security Council but "we can't get one now." He reiterated that the criteria for such an outcome should not be a public relations exercise to satisfy the politics at UN headquarters. The Security Council must be a support instrument for the real work -- bringing the parties back to the negotiating table. ¶19. (C) Goldstone Report: Ambassador Wolff took the opportunity to reiterate U.S. views that the Goldstone report does not belong in the Security Council and that it should be addressed by the Human Rights Council which commissioned the original report. Wolff noted that we also needed to be mindful of potential comparisons to the actions of other member states combating terrorism or engaged in asymmetrical conflicts. Apakan said he understood the point and would reflect on U.S. concerns. IRAN ¶20. (C) Apakan said that Turkey was following Iran closely. We know U.S. concerns, he said, and hope there is still a window of opportunity for a diplomatic solution. Apakan reported that Turkey continued to engage at all levels with Iranian officials, to convince them to move in the right direction. We will consult with you regarding our efforts to the extent possible, he said. There are "some signs of hope but we can't give you assurances." ¶21. (C) Ambassador Wolff assured Apakan that the U.S. remained committed to a diplomatic solution but the results of our efforts to date to resolve the outstanding issues related to Iran's nuclear program through dialogue have shown that Iran is unwilling. As a result, a process has begun to consider new UN sanctions. Wolff reported that there was still no action in New York. P-5 plus 1 conversations continued in capitals with Political Directors, but New York discussions will need to start soon. At no point has either track--engagement and pressure--stopped. ¶22. (C) Wolff further assured Apakan that any new sanctions were intended to support -- not close off -- opportunities for future engagement. Wolff said that it will be very important for Turkey to be with us on this. Apakan responded that he understood U.S. logic and opposed Iran's approach on nuclear issues, but urged the U.S. to think about Turkey and the neighborhood as it moves forward. BALKANS ¶23. (C) Apakan said that Turkey shared U.S. views on Kosovo and Bosnia Herzegovina. Turkey would be happy to engage, and take initiatives that would be helpful. He said that Turkey was developing relations with Serbia as well. We are at your service, he said. The transition from the Office of the High Representative (OHR) to an EU Special Representative (EUSR) is a matter of concern. Like the U.S., Turkey believes that we should be cautious about prematurely closing the OHR. Non-EU countries should continue to play an important role. ¶24. (c) Ambassador DiCarlo noted the similarity of views between the U.S. and Turkey on Balkan issues. She and Apakan agreed that the region should not be forgotten. On Kosovo, DiCarlo lamented that the Council continues to re-hash the same issues every three months and suggested that Turkey work with the U.S. to find a way to hold these meetings less often and in consultations (behind closed doors) rather than public sessions in the Council chamber with Serb and Kosovar leaders. DiCarlo said that the U.S. continues to lobby for more recognitions for Kosovo. We need to be active because Serbia is active, she said, and she expressed concerns that Serbia may introduce an UNGA resolution to re-establish negotiations between Serbia and Kosovo following the advisory opinion of the ICJ. On Bosnia, she agreed that it was premature to close OHR. We need the PIC steering committee in place to keep the balance. She also noted ongoing concerns about what is happening with Republika Srpska. Apakan urged that we continue to consult closely on a bilateral basis here in New York. SECURITY COUNCIL PRESIDENCY ¶25. (C) Apakan raised Turkey's Security Council presidency in September and said that his President was looking to preside over a Council summit as President Obama had done last September. Ankara was beginning to consider what topic would attract heads of state and be helpful to the Council's work. While they were leaning toward peacekeeping and peace building, Turkey remained open to other suggestions and welcomed U.S. guidance in this regard to ensure a successful summit. HAITI ¶26. (U) Apakan expressed concern about the situation in Haiti and said that his government was prepared to contribute a formed police unit to MINUSTAH. Ankara was also looking at assisting in the rebuilding of schools, hospitals and irrigation system. Ambassador Wolff welcomed Turkish engagement and support of Haiti. ACTION REQUEST ¶27. (C) To recap, Apakan requested: (1) to have occasional discussions with USUN on Cyprus; (2) to stay in close touch on the Eritrean FM's request to visit Turkey and obtain U.S. views; (3) to consult on Iraq and on how encourage Baghdad to engage with the Council's counter-terrorism executive directorate for technical assistance; (4) to coordinate efforts with respect to Kosovo and Bosnia-Herzegovina; and (5) an answer on the Alliance for Civilizations. USUN will follow up on these issues as appropriate. USUN will also stay in close touch with Turkey on Middle East issues and Iran. With respect to Somalia, USUN recommends that the Department encourage and support Turkey's initiative to host a UN conference on reconstruction and development. USUN will explore in more detail with the Turkish Mission Ankara's willingness to host a summit with least developed countries in 2011, and encourages the Department to welcome Apakan and team in Washington for further discussions on this initiative. RICE