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Viewing cable 06USUNNEWYORK1335, PEACEBUILDING COMMISSION: FIRST MEETING

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Reference ID Created Released Classification Origin
06USUNNEWYORK1335 2006-07-10 17:23 2011-08-30 01:44 CONFIDENTIAL USUN New York
VZCZCXYZ0016
RR RUEHWEB

DE RUCNDT #1335/01 1911723
ZNY CCCCC ZZH
R 101723Z JUL 06
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC 9543
INFO RUEHGG/UN SECURITY COUNCIL COLLECTIVE
RUEHJB/AMEMBASSY BUJUMBURA 0663
RUEHEG/AMEMBASSY CAIRO 0695
RUEHCP/AMEMBASSY COPENHAGEN 0187
RUEHFN/AMEMBASSY FREETOWN 0642
RUEHLU/AMEMBASSY LUANDA 0068
RUEHNY/AMEMBASSY OSLO 0654
RUEHSN/AMEMBASSY SAN SALVADOR 0102
C O N F I D E N T I A L USUN NEW YORK 001335 
 
SIPDIS 
 
SIPDIS 
 
E.O. 12958: DECL: 06/30/2016 
TAGS: AF EAID PREL UNSC KPKO KCRS
SUBJECT: PEACEBUILDING COMMISSION: FIRST MEETING 
 
REF: USUN 1229 
 
Classified By: AMBASSADOR JOHN R. BOLTON, REASONS:  1.5(b) (d) 
 
1.  (U) SUMMARY. UN officials, international financial 
representatives and 31 member states inaugurated the 
Peacebuilding Commission on June 23.  The Angolan permrep 
took the chair, and announced the selection by consensus of 
Norway and El Salvador as vice chairs.  Each will lead 
country-specific meetings that are initially expected 
(although still not confirmed) to focus on Sierra Leone and 
Burundi, which the Security Council requested.  Speakers 
emphasized that the success of this innovative body would 
depend upon the cohesion and results orientation of the 
country groups, as well as implementation of their 
recommendations on the ground. Engagement of the country 
under consideration, including country ownership and a 
country's commitment to rebuilding its own institutions, were 
paramount.  Speakers also underscored the central role of the 
Security Council, reflecting hard-fought principles that 
Ambassador Bolton had secured in lengthy negotiations.  End 
Summary. 
 
ANGOLA TAKES THE CHAIR 
---------------------- 
 
2.  (C) Following introductory remarks by Secretary General 
Kofi Annan, Angolan Ambassador Ismael Gaspar Martins gaveled 
to order the first, ceremonial meeting of the Peacebuilding 
Commission (PBC). There was a quiet relief that Egypt's 
attempt to wrest control of the PBC had just barely been 
foiled (reftel).  Expectations, for the moment, ran high 
among UN officials, the 31 PBC member states, representatives 
of international financial institutions, the press and civil 
society (NGO) representatives.  After months of bickering and 
negotiating over PBC reporting lines, equitable geographic 
representation, membership rotational plans and rules of 
procedure, among other issues, the first meeting had finally 
begun.  The Angolan ambassador said, "As a representative of 
a country which is in the process of overcoming the negative 
consequences of many years of conflict, and from a continent 
with the largest number of countries in post-conflict 
situations, this choice is a symbolic recognition of the 
purposes for which our leaders decided to establish the 
Peacebuilding Commission." 
 
3.  (SBU) Angola then announced that PBC members had chosen 
by consensus Norway and El Salvador to serve as vice chairs. 
The chair and vice chairs will serve one-year terms, 
according to provisional rules of procedure.  El Salvador's 
permrep Mrs. Carmen Maria Gallardo Hernandez immediately 
announced her intention to infuse a gender perspective into 
the work of the PBC.  Angola said that members had agreed to 
select Sierra Leone and Burundi as country focus groups at 
the first business meeting of the Organizational Committee. 
In an early indication of possible procedural difficulties, 
however, the chair unexpectedly declined to confirm their 
selection.  USUN later learned that a Secretariat official 
had (inappropriately) advised the chair to delay this 
announcement until after the PBC held its first full business 
meeting, thus delaying a decision that PBC member states and 
the Security Council had agreed upon.  Ambassador Gaspar 
Martins urged international donors to contribute to the 
voluntary Peacebuilding Fund.  (Later that day, India 
announced a contribution of $2 million.)  Several speakers 
hailed the appointment of Carolyn McAskie, former SRSG to 
Burundi (Canadian), as the Assistant Secretary General of a 
small Peacebuilding Support Office. 
 
4.  (U)  SYG Annan referred to the PBC as "a unique 
intergovernmental body" that "is the first specifically 
devoted to peacebuilding."  He said the "core task" of the 
PBC is "to build effective public institutions within 
constitutional frameworks and the rule of law."  He defined a 
limited and non-bureaucratic role for the Peacebuilding 
Support Office, specifically to provide information and 
analysis and to ensure that recommendations of the PBC are 
translated into concrete action at the country level.  Annan 
added that however well-intentioned outsiders may be, they 
"cannot substitute for the knowledge and will of the people 
of the country concerned." 
 
SUCCESS DEPENDS ON COUNTRY OWNERSHIP 
------------------------------------ 
 
5.  (U) President of the General Assembly Jan Eliasson 
underscored this emphasis on country-level responsibility, 
which has reemerged gradually but consistently in the course 
of an arduous and elaborate negotiating process.  In the 
complex interplay among 191 member states, there were no 
shortcuts to establish an innovative institution with 
multiple membership sources, a multifaceted coordination 
mandate, and crosscutting institutional reporting lines. Yet 
the PBC itself will need to be lean and efficient in order to 
make cogent, timely recommendations.  "It is in the 
country-specific settings that the work of the Peacebuilding 
Commission ultimately will be judged," Eliasson said.  SYG 
Annan expressed the hope that the PBC would focus its work on 
national situations and that national authorities would 
participate actively in country meetings. 
 
6.  (U) The World Bank was represented by Vice President 
James Adams. In Africa since the 1990's, he said some six 
million people have lost their lives and 15 million have been 
displaced.  The destruction of physical infrastructure, loss 
of institutional capacity and social capital have amounted to 
an average loss 2.2% in annual growth per conflict. 
"Conflict brings appalling human suffering and loss," he 
said. "Conflict and state fragility produce a vicious cycle." 
 From the World Bank's experience in working with countries 
emerging from conflict, Adams emphasized that progress needs 
to be driven from within.  He pledged that the World Bank 
would be an active partner to the PBC.  An IMF representative 
also emphasized the central need for country ownership.  On 
behalf of the Security Council Presidency, Danish Foreign 
Minister Stig Moller stated, "The primary responsibility for 
building a nation lies with the national or transitional 
authorities of the individual country.  Without the strong 
cooperation of the country on the agenda, the efforts of the 
Peacebuilding Commission risk failure." 
 
THE SECURITY COUNCIL IS PIVOTAL 
------------------------------- 
 
7.  (U) In an unusual nod to the central role of the Security 
Council, PGA Eliasson noted the importance of close 
coordination between peacekeeping and peacebuilding, which he 
said are both essential for reconstruction and 
rehabilitation.  FM Moller reminded that the main purpose of 
the PBC is to provide advice to the Security Council, "in 
particular when there is a UN mandated peacekeeping mission 
on the ground or underway, as stated in the resolution." 
Moller added that the SC would use PBC advice in its own 
deliberations and when reviewing the mandates of peacekeeping 
operations.  A letter from the SC President  requesting that 
Burundi and Sierra Leone be put on the first business agenda 
circulated as the second official document of the PBC. These 
country groups are expected to be formally adopted at the 
first meeting of the Organizational Committee, Angola said. 
 
8.  (C)  COMMENT.  The swift, pivotal request by the 
President of the Security Council to establish the first two 
PBC country groups was a deft jump-start, institutionalizing 
a core concept that the United States particularly sought. 
It is unfortunate that the PBC Chair did not follow through 
more decisively and that authorization of these two country 
groups has still not been confirmed in the absence of a 
follow-up OC meeting. Throughout negotiations to establish 
the PBC, Ambassador Bolton argued repeatedly, with strong 
interagency and legal support, for a core SC-PBC linkage. 
Effective peacebuilding will depend upon close coordination 
of peacekeeping operations and reconstruction programs on the 
ground.  This formerly controversial assumption has gained 
increasing currency as the PBC has emerged. 
 
9.  (C)  COMMENT CONTINUATION.  While most PBC members say 
they are now committed to making the PBC work pragmatically 
and transparently, significant challenges lie ahead.  For 
example, some countries and Secretariat staff continue to 
advocate for a heavier architecture for the Organizational 
Committee, including establishment of a traditional "bureau" 
reflecting geographic equities.  As rules of procedure 
continue to evolve, we will advocate for a light OC structure 
that transfers action to the (hopefully) less formal country 
meetings.  The role of NGOs has yet to be determined.  Terms 
of reference for the administration of the voluntary 
Peacebuilding Fund, which the Secretariat drafted, are 
notably turgid and will require revision by member states. 
International financial institutions (IFIs) will participate 
in the PBC without compromising their own governing 
 
arrangements.  Nevertheless, questions have already arisen 
about whether the IFIs will need to join consensus in order 
for a country group to make a decision.  Strong leadership of 
the country groups will be essential to avoid endless 
discourse and concur on recommendations from among the 
various participants.  The U.S. will need to continue to play 
a proactive role in order to help shape procedures and 
discussions.  We will seek the Department's guidance to 
identify a variety of stakeholders to participate in 
country-specific meetings, anticipating that USAID, among 
others, may bring particular expertise.  End Comment. 
 
9.  (U)  The current member state composition of the PBC 
follows: 
 
Seven members from the Security Council including China, 
Denmark, France, the Russian Federation, U.K., Tanzania and 
the U.S. 
 
Seven members elected by the Economic and Social Council, 
including Angola, Belgium, Brazil, Guinea-Bissau, Indonesia, 
Poland and Sri Lanka. 
 
Five top providers of assessed and voluntary contributions to 
UN budgets, funds and programs, including Germany, Italy, 
Japan, The Netherlands, and Norway. 
 
Five top providers of troops and civilian police to UN 
peacekeeping operations, including Bangladesh, Ghana, India, 
Nigeria and Pakistan. 
 
Seven members elected by the General Assembly, including 
Burundi, Chile, Croatia, Egypt, El Salvador, Fiji and 
Jamaica. 
 
 
 
 
 
 
BOLTON