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C O N F I D E N T I A L SECTION 01 OF 04 BANJUL 000411 
 
SIPDIS 
 
SIPDIS 
 
DEPARTMENT FOR AF/SPG, AF/RSA, D:T.SMITH 
LONDON, PARIS, ROME: FOR AFRICA WATCHER 
 
E.O. 12958: DECL: 06/28/2016 
TAGS: PREL MOPS KPKO AU SU SO
SUBJECT: DARFUR PEACE AGREEMENT: AU PSC REAFFIRMS AMIS 
TRANSITION TO UN PEACEKEEPING OPERATION 
 
REF: ADDIS ABABA 1738 
 
Classified By: ERIC WONG, TDY POLITICAL OFFICER.  REASON: 1.4 (D). 
 
¶1. (C) SUMMARY.  The African Union's Peace and Security 
Council (PSC), meeting on June 27 at the ministerial level at 
the AU Summit in Banjul, heard briefings on Somalia and 
election preparations in the Democratic Republic of Congo, 
but issued a sole communique focusing on Darfur Peace 
Agreement (DPA) and the AU Mission in Sudan (AMIS).  The PSC 
calls for the AU to identify persons or groups "undermining 
the DPA" and for "targeted measures" to be taken against 
them.  Contrary to previous expectations, the PSC did not 
formally adopt the draft CONOPS for AMIS, although it did 
approve "additional tasks and the new mandate of AMIS" 
stemming from the DPA.  Noting Sudan's recent public 
rejection of a UN operation, the PSC nevertheless reaffirmed 
previous PSC decisions "on the transition from AMIS to a UN 
peacekeeping operation" and underscored that the mandate for 
AMIS would end on September 30 -- even though UN planners 
have said a transition to a UN operation could not occur 
until January 2007.  Convening a pledging conference for AMIS 
is key, as it currently has funding only through the end of 
July.  END SUMMARY. 
 
--------------------------------------------- ---------- 
AU AFFIRMS UN TRANSITION, BUT DEFERS APPROVAL OF CONOPS 
--------------------------------------------- ---------- 
 
¶2. (U) On June 27, a ministerial-level meeting of the AU PSC, 
held at the AU Summit in Banjul, noted Sudan's recent public 
rejection of the transition of the AU Mission in Sudan (AMIS) 
to a UN peacekeeping operation, but nevertheless reaffirmed 
previous PSC decisions "on ending the mandate of AMIS by 30 
September 2006 and on the transition from AMIS to a UN 
peacekeeping operation."  Although widely expected to 
formally adopt the new concept of operations (CONOPS) for an 
enhanced AMIS, following the AMIS Force Commander's 
presentation of the draft revised conops to the AU PSC's 
Military Staff Committee on June 23, the PSC settled on a 
more measured approach:  giving only "interim" approval of 
"additional tasks and the new mandate of AMIS, including the 
protection of civilians within existing strength and 
capacity" but deferring final approval of the CONOPS to "the 
appropriate time, in the light of any decision on a 
transition to the UN and the availability of logistical and 
financial support."  The PSC welcomes the convening of a July 
18 pledging conference on AMIS, but specifically notes that 
it is intended to mobilize resources needed only "from 1 
April to 30 September 2006," not beyond. 
 
¶3. (SBU) In a June 26 briefing to AU partners in Addis Ababa, 
AU Darfur Integrated Task Force head Ambassador Ki Doulaye 
Korentin noted that the revised CONOPS calls for nearly 
doubling the current size of AMIS:  increasing AMIS troop 
strength to 10,500, and increasing total AMIS personnel 
(i.e., including civilian police and administrative staff) to 
13,000. 
 
¶4. (C) According to AU Commission Peace and Security 
Department Director Geofrey Mugumya, Sudanese FM Lam Akol 
addressed the PSC meeting and reiterated that Sudan opposed a 
UN operation but supported enhancing AMIS.  The PSC also 
heard the Chadian PermRep discuss allegations of Sudanese 
incursions. 
 
--------------------------------------------- 
IDENTIFY AND SANCTION THOSE WHO UNDERMINE DPA 
--------------------------------------------- 
 
¶5. (SBU) Like the previous May 15 PSC communique on Darfur, 
the June 27 communique specifically identifies DPA 
non-signatories ("the SLM/A of Abdulwahid El Nour and the JEM 
of Khalil Ibrahim"), but calls instead for "targeted 
measures, including travel ban and assets freeze, against all 
persons or groups undermining the DPA, obstructing its 
implementation, or violating the Comprehensive Ceasefire." 
(NOTE: In a discussion with poloffs, AU Director Mugumya 
observed that the new language, revised from DPA 
non-signatories to those "undermining the DPA," was broader, 
as it could thus refer to DPA signatories as well.  END 
NOTE.)  The PSC also requests that the AU establish "the list 
of all such persons or groups" and forward it to the UN 
 
BANJUL 00000411  002 OF 004 
 
 
Security Council. 
 
¶6. (U) The PSC failed to decide whether DPA non-signatories 
should participate in the DPA Ceasefire Commission or Joint 
Commission, an issue which brought the June 23 inaugural 
meeting of the Joint Commission to a standstill (reftel), 
noting only "the need to conclude, in consultation with all 
stakeholders, the modalities for their effective functioning." 
 
--------------------------------------------- --- 
WELCOME PARTNER ASSISTANCE IN DPA IMPLEMENTATION 
--------------------------------------------- --- 
 
¶7. (U) While not explicitly mentioning either AU Chairperson 
Konare's recent letter to NATO SYG Scheffer (which reaffirmed 
the AU's request for limited NATO support to AMIS), or the 
USG initiative to provide a three-person implementation 
verification team (discussed with both AU principals and 
partner representatives) in Darfur, the PSC "welcomes the 
offers made by AU partners to assist the Commission and the 
parties in the implementation process of the DPA." 
 
¶8. (U) Current members of the 15-member AU PSC include: 
Algeria, Botswana, Burkina Faso, Cameroon, Congo-B, Egypt, 
Ethiopia, Gabon, Ghana, Malawi, Nigeria, Rwanda, Senegal, 
South Africa (chair), and Uganda. 
 
¶9. (C) COMMENT: While the AU PSC reiterates that the mandate 
for AMIS will end on September 30, UN officials (ranging from 
working level logistics planners to USYG for Peacekeeping 
Operations Jean Marie Guehenno) have repeatedly stressed that 
transition to a UN peacekeeping operation will require six 
months -- or January 2007 at the earliest.  The uncertainty 
surrounding the actual timeframe for UN transition depends 
largely on when Sudan provides its approval, but it also 
raises questions about the financial viability of AMIS, 
should AMIS need to be extended or if the pledging conference 
for AMIS is delayed.  According to Addis Ababa-based European 
Commission officials, AMIS currently has funds only through 
the end of July.  The EU is spending 28 million Euros monthly 
on AMIS, drawn from the EC's 250 million-Euro African Peace 
Facility (APF); 50 million additional Euros have been 
requested to cover expenses through September.  EC officials 
note that additional funds exist in the APF but may be 
difficult to reprogram for AMIS:  28 million Euros in the APF 
are reserved for general capacity-building of the African 
Union; another 30 million Euros in the APF are earmarked by 
the EC for possible AU missions in Somalia or the Democratic 
Republic of Congo.  END COMMENT. 
 
¶10. (SBU) Text of June 27 AU PSC communique, as provided June 
28 by AU Commission Conflict Management Director El-Ghassim 
Wane, follows below: 
 
BEGIN TEXT. 
 
27 JUNE 2006 
BANJUL, THE GAMBIA 
PSC/MIN/Comm(LVIII) 
 
COMMUNIQUE OF THE 58th MEETING OF THE PEACE AND SECURITY 
COUNCIL 
 
The Peace and Security Council (PSC) of the African Union 
(AU), at its 58th meeting, held at ministerial level, on 27 
June 2006, in Banjul, The Gambia, adopted the following 
decision on the situation in Darfur: 
 
Council, 
 
¶1. Takes note of the report of the Chairperson of the 
Commission on the situation in Darfur (PSC/MIN/2(LVIII)); 
 
¶2. Urges the signatory parties to the Darfur Peace Agreement 
(DPA to fully honor their commitments and to take all 
required measures to that effect, including refraining from 
attacks and violations of the comprehensive ceasefire, 
restraining alleged armed militia, releasing detainees and 
child soldiers, and initiating joint activities regarding the 
implementation of the DPA; 
 
¶3. Takes note of the steps already taken by the Chairperson 
of the Commission towards the implementation of the DPA, 
 
BANJUL 00000411  003 OF 004 
 
 
including the establishment of an implementation team within 
the African Union Mission in the Sudan (AMIS) and of a 
support team at the AU Headquarters.  Council welcomes the 
offers made AU partners to assist the Commission and the 
parties in the implementation process of the DPA; 
 
¶4. Welcomes the launching of the activities of both the 
restructured Ceasefire Commission, in El-Fasher, on 13 June 
2006, as well as of the Joint Commission, in Addis Ababa, on 
23 June 2006.  Council stresses the need to conclude, in 
consultation with all stakeholders, the modalities for their 
effective functioning; 
 
¶5. Welcomes further the signing by several political leaders, 
military commanders and other groups from the Sudan 
Liberation Movement/Army (SLM/A) of Abdulwahid El Nour and 
the Justice and Equality Movement (JEM) of Khalil Ibrahim of 
a Declaration of Commitment to the DPA and their pledge to 
fully cooperate in the implementation of its provisions. 
Council recognizes them as partners in the peace process and 
requests the Commission, working closely with the signatory 
parties to the DPA, to develop practical modalities for their 
effective involvement; 
 
¶6. Expresses concern at the activities spearheaded, from 
within Darfur and outside, by the leadership of the SLM/A of 
Abdulwahid El Nour and the JEM of Khalil Ibrahim and their 
followers to undermine the DPA: 
 
¶7. Decides to impose targeted measures, including travel ban 
and assets freeze, against all persons or groups undermining 
the DPA, obstructing its implementation, or violating the 
Comprehensive Ceasefire; 
 
¶8. Requests that the Chairperson of the Commission 
establishes the list of all such persons or groups, in 
consultation with the Joint Commission and all other 
stakeholders, and communicate the same to all Member States, 
as well as to other relevant members of the international 
community, including, in particular, the UN Security Council, 
which, in its resolution 1679 (2006) of 16 May 2006, 
expressed its intention to consider taking, including in 
response to a request by the African Union, strong and 
effective measures, such as a travel ban and assets freeze, 
against any individual or group that violates or attempts to 
block the implementation of the DPA; 
 
¶9. Takes note of the outcome of the UN/AU joint technical 
assessment mission that visit the Sudan and Chad from 9 to 22 
June 2006 and the position of the Government of Sudan 
rejecting the proposed transition from AMIS to a UN 
peacekeeping operation; 
 
¶10. Reaffirms its decisions of 10 March and 15 May 2006 on 
ending the mandate of AMIS by 30 September 2006 and on the 
transition from AMIS to a UN peacekeeping operation.  In this 
regard, Council expresses its readiness to review the mandate 
of AMIS in the event that the ongoing consultations between 
the Government of the Sudan and the United Nations conclude 
on an agreement for a transition to a UN peacekeeping 
operation; 
 
¶11. Takes note of the new AMIS Concept of Operations (CONOPS) 
proposed by the Chairperson of the Commission and recommended 
by the Military Staff Committee at its meeting of 23 June 
2006, and decides to consider it at the appropriate time, in 
the light of any decision on a transition to the UN and the 
availability of logistical and financial support.  In the 
interim, Council approves the additional tasks and the new 
mandate of AMIS, including the protection of civilians within 
existing strength and capacity, as proposed on the CONOPS; 
 
¶12. Welcomes the convening in Brussels, on 18 July 2006, of a 
pledging conference to mobilize the necessary financial and 
logistical resources for the sustenance of AMIS from 1 April 
to 30 September 2006.  Council urges the AU partners to 
provide on that occasion the requisite support and further 
urges all Member States to attend the conference and to make 
their own contributions in support of AMIS, including by 
seconding, at their own expense, qualified personnel to the 
Mission; 
 
¶13.  Reiterates its strong condemnation of all human rights 
 
BANJUL 00000411  004.2 OF 004 
 
 
violation in Darfur, including gender based violence; 
 
¶14. Appeals to the Member States and the international 
community at large to provide increased humanitarian 
assistance to the affected people in Darfur and to the 
refugees in Chad; 
 
¶15. Decides to remain seized of the matter. 
 
END TEXT. 
STAFFORD