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DE RUCNDT #0764/01 2242121
ZNR UUUUU ZZH
O 122121Z AUG 09
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC IMMEDIATE 7066
INFO RUEHZO/AFRICAN UNION COLLECTIVE IMMEDIATE
RUEHZL/EUROPEAN POLITICAL COLLECTIVE IMMEDIATE
RUEHGG/UN SECURITY COUNCIL COLLECTIVE IMMEDIATE
RUEHKA/AMEMBASSY DHAKA IMMEDIATE 0092
RUEHIL/AMEMBASSY ISLAMABAD IMMEDIATE 2450
RUEHNE/AMEMBASSY NEW DELHI IMMEDIATE 2758
RUEHOT/AMEMBASSY OTTAWA IMMEDIATE 1207

UNCLAS SECTION 01 OF 05 USUN NEW YORK 000764 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: UNSC PHUM PREL
SUBJECT: SECURITY COUNCIL AGAIN DEBATES THE FUTURE OF 
PEACEKEEPING 
 
REF: USUN NEW YORK 644 
 
¶1.  (SBU) Summary:  U/SYG Alain Le Roy, U/SYG Susana Malcorra 
and UNAMID Force Commander Agwai briefed the Security Council 
on August 5, during an open debate on peacekeeping convened 
by the UK.  The two U/SYGs highlighted key themes in the 
Secretariat's recently issued "New Horizon" non-paper, 
including:  strengthening cooperation between the Council, 
troop contributors and the Secretariat in mission planning 
and conduct; improving management and oversight of UN 
missions; deepening understanding of what is entailed for 
protection of civilians and "robust" peacekeeping; shifting 
from a focus on numbers to a "capability-driven" approach; 
crafting better transition and peace-building strategies; and 
rethinking business models for mission support.  General 
Agwai, the outgoing Force Commander for the UN Assistance 
Mission in Darfur (UNAMID), candidly described some of the 
peacekeepers' limitations and shortcomings in fulfilling 
their protection of civilians mandate in Darfur. 
 
¶2.  (SBU) Summary Cont'd:  Ambassador Rice, Council and 
non-Council members alike encouraged the U/SYGs to further 
develop their ideas in the months ahead, but largely stopped 
short of commenting on specific recommendations in what is 
still just a non-paper.  Troop and police contributing 
countries signaled some cautious appreciation for the 
Council's intentions to improve consultations with TCCs, in 
contrast to previous years' acerbic expressions of 
frustration.  Ambassador Rice utilized the occasion to inform 
the Council of the U.S. Congress' recent appropriation of 
funds that will enable the U.S. to clear peacekeeping arrears 
from 2005-2008 and meet obligations for 2009 in full, 
originally estimated at approximately $2.2 billion.  The 
Council adopted a Presidential Statement outlining measures 
to enhance the peacekeeping mandate formulation process, 
strengthen dialogue with the Secretariat and deepen 
consultations with troop and police contributing countries on 
collective oversight of UNPKOs.  End Summary. 
 
Secretariat Calls for Better 
Coordination, Shared Vision 
---------------------------- 
 
¶3. (SBU) Under Secretary-General for Peacekeeping Operations 
Alain Le Roy, Under Secretary-General for Field Operations 
Susana Malcorra and UNAMID Force Commander Martin Luther 
Agwai briefed the Security Council about the future of UN 
Peacekeeping Operations (UNPKOs) in a thematic debate on 
August 5 convened by the U.K.  In addition to Council 
members, 22 other countries made statements, including Sweden 
on behalf of the EU, Morocco on behalf of the Non-Aligned 
Movement (NAM), and several major troop contributing 
countries (TCCs).  The Force Commanders for each of the 14 
UNPKOs, in New York for their annual meeting, attended the 
beginning of the debate. 
 
¶4.  (SBU) Under Secretary-General for Peacekeeping Operations 
Alain Le Roy highlighted that next year will mark a decade 
since the publication of the Brahimi report (S/2000/809) and 
recalled the 2008 Capstone Doctrine, which reaffirmed "the 
basic principles of UN Peacekeeping--consent, impartiality, 
and the non-use of force except in self-defense and defense 
of mandate."  Le Roy underscored the importance of having "a 
peace to keep," a political process to support and an 
integrated approach to peacekeeping.  Le Roy noted that the 
British-French initiative, launched in January, and the 
Working Group on Peacekeeping Operations chaired by Japan 
have helped identify urgent challenges including finding 
sufficient personnel, equipment, senior leaders and political 
leverage, formulating a "shared vision" on the use of UNPKOs, 
and identifying effective transition strategies to ensure 
sustained recovery. 
 
¶5.  (SBU) Le Roy emphasized four key points from the 
Department of Peacekeeping Operations (DPKO) and Department 
of Field Support (DFS) New Horizons non-paper, released in 
July as a part of a process to reinvigorate UN peacekeeping: 
1) the need for the Council and Secretariat to improve the 
quality of assessments through enhanced information sharing; 
2) the need to improve management and oversight of UNPKOs as 
well as accountability controls between headquarters and 
mission leaders; 3) the need to develop a common view of the 
role that peacekeepers should play in the protection of 
civilians and critical peacekeeping tasks; and 4) the need 
 
USUN NEW Y 00000764  002 OF 005 
 
 
for the Council and Secretariat to shift from a focus on 
numbers toward a "capability-driven approach." 
 
¶6.  (SBU) Le Roy underscored DPKO's commitment to monitor 
missions' progress more carefully, provide the Council with 
timely information and assessments, and consult with the 
Council and TCCs in advance of the deployment of technical 
assessments missions, and continue to produce benchmarks for 
missions. 
 
¶7.  (SBU) Under Secretary-General for Field Support Susana 
Malcorra remarked that DFS must holistically improve its 
response to the evolving and increasing needs for support. 
Malcorra called for an updated regulatory framework to 
"strike the right balance between the demands for effective 
delivery and the demands to comply with rules and 
regulations."  She also called for striking the appropriate 
balance between "the risk to mandate delivery associated with 
delays in mission deployment and the risks stemming from 
increased operational empowerment."  Malcorra announced DFS' 
intention to seek Member State guidance on the establishment 
of a new support framework for the delivery of services and 
field operations, the adoption of standardized mission 
support models, and the implementation of flexible resource 
management strategies.  Malcorra emphasized that support is 
"not an end in itself," but rather serves the ultimate 
purpose of achieving and maintaining peace in conflict zones. 
 
¶8.  (SBU) UNAMID Force Commander General Martin Luther Agwai 
reported on the challenges confronting UNAMID and emphasized 
the lack of key enablers to carry out the mission, especially 
military helicopters and communication technology.  Agwai 
explained that effective peacekeeping requires sufficient 
enablers, well-trained troops, an effective command and 
control structure, and the willingness to accept casualties. 
He noted that a lack of skills, discipline, and equipment as 
well as the inadequacy of predeployment training among 
peacekeepers in Darfur has limited their ability to perform 
critical functions such as extended patrols.  Agwai 
emphasized the "high burden of expectations" shouldered by UN 
peacekeepers, noting that "when the UN deploys, civilians 
expect protection." 
 
U.S. Reaffirms Commitment to UNPKOs, 
Asks Others to Follow Suit 
------------------------------------ 
 
¶9.  (SBU) Ambassador Rice implicitly encouraged further 
development of ideas put forward by U/SYGs Le Roy and 
Malcorra without expressly taking a position on individual 
recommendations contained in what is still just a non-paper. 
Rice urged the Council and Secretariat to do a better job of 
consulting with troop and police contributing countries, 
especially when adopting or renewing mandates, and noted that 
"success in peacekeeping depends on our collective unity of 
purpose and effort."  She called for "clear, credible and 
achievable mandates" and stated that the U.S. would not 
simply "roll-over" mandates upon their expiration. 
Ambassador Rice urged Members States to "do more for UN 
peacekeeping" and noted Congress' recent appropriation of 
funds to clear U.S. peacekeeping arrears from 2005-2008 as 
well as fully fund U.S. peacekeeping obligations in 2009 
(originally estimated at $2.2 billion but likely to be closer 
to $1.9 billion).  (NOTE.  At a press conference following 
the morning session, U/SYG Le Roy stated that he was 
"extremely grateful" for the appropriation and for the 
support expressed by Ambassador Rice and Congress for UNPKOs. 
 The Australian PermRep also praised the U.S. for its 
contributions.  END NOTE.) 
 
Council Members Pledge Better Cooperation with 
TCCs; Non-Committal or Supportive in General 
Terms Only of "New Horizon" Proposals 
--------------------------------------------- - 
 
¶10.  (SBU) U.K. PermRep Sawers stated that UNPKOs represent a 
"unique global partnership" and called for greater 
involvement of troop and police contributing countries as 
well as better information sharing, especially on military 
issues.  Sawers called for establishing realistic 
peacekeeping mandates based on achievable objectives and 
encouraged the incorporation of peacebuilding and 
peacekeeping efforts into broader political strategy.  Sawers 
stated that UNPKOs must protect civilians, ensure human 
 
USUN NEW Y 00000764  003 OF 005 
 
 
rights, help build national police forces, and support 
judiciaries and electoral processes.  Sawers "support(ed) the 
call...to establish a new horizon for (UNPKOs)" but did not 
expressly endorse the report. 
 
¶11.  (SBU)  French PermRep Ripert called for sustainable 
UNPKOs based on "clear and hierarchical" mandates 
specifically tailored to the conflict at issue.  Ripert 
praised the French-British initiative, launched in January, 
for increasing dialogue among the Council, Secretariat and 
TCCs.  Ripert called for increasing dialogue with TCCs, NGOs 
and UN specialized agencies on issues such as protection of 
civilians, combating sexual and gender-based violence and 
preventing recruitment of child soldiers.  Ripert stated that 
UN peacekeepers might sometimes need to take actions which 
place civilians at risk.  Finally, Ripert called for 
enhancing the UN's capacity to "implement complex mandates" 
which touch upon issues such as rule of law, human rights and 
economic development.  Ripert made no mention of the New 
Horizon report. 
 
¶12.  (SBU) Chinese Deputy PermRep Liu called for "revers(ing) 
the trend of favoring conflict resolution over prevention," 
in order to reduce the need for UNPKOs.  Liu stated that 
UNPKOs "must exercise caution in the use of force and avoid 
excessive emphasis on military options."  Liu urged more 
discussion on the issue of mandating UNPKOs to protect 
civilians, noting the "divergence of views" on this point. 
He stated that most TCCs are developing countries, and 
"call(ed) on more countries to contribute troops to 
peacekeeping operations."  Lastly, Liu urged increased 
cooperation with regional organizations, especially the 
African Union. 
 
¶13.  (SBU) Russian Deputy PermRep Shcherbak derisively 
characterized the New Horizon report as "an adequate 
assessment" of UNPKOs and declared Russia's intention to 
"carefully study (its) proposals and 
recommendations...particularly since many of them require 
further analysis."  Shcherbak called for improved 
consultations among the Council, Secretariat and TCCs, 
greater cooperation with "regional structures," including the 
Shanghai Cooperation Organization and the Collective Security 
Treaty Organization.  Shcherbak criticized the New Horizon 
report for "overlooking the need for effective military 
consultations," and questioned the feasibility of "robust 
peacekeeping."  Shcherbak highlighted Russia's contributions 
to UNPKOs in the Middle East, Africa, Haiti and Kosovo, 
recommended the reactivation of the Military Staff Committee 
(MSC), comprised of all 15 Council members, and stated that 
the PRST did not sufficiently address the role of the General 
Assembly's Peacekeeping Committee (C-34). 
 
¶14.  (SBU) There was general consensus among other Council 
members on the need to improve coordination and increase 
dialogue among the Council, Secretariat and TCCs.  Japanese 
Deputy PermRep Okuda urged the creation of informal 
"Coalition Groups" comprised of regional organizations and 
donors, while Libya Deputy PermRep Dabbashi called for 
increased collaboration with regional organizations, 
specifically the African Union.  Austrian PermRep 
Mayr-Harting said that Council briefings on the status of 
UNPKOs by field commanders are "indispensable" and should be 
conducted more frequently.  He also stressed the importance 
of peacekeepers' protection of civilians mandate and looked 
forward to debate on this subject in November, during the 
Austrian Presidency. 
 
Non-Council Members Urge Better Coordination 
and Support for "Basic Principles" 
-------------------------------------------- 
 
¶15.  (SBU) Sweden, speaking on behalf of the EU, called for 
wider and different forms of burden-sharing for UNPKOs since 
"countries bring different contributions to peacekeeping, and 
regional organizations take on an increasing share of the 
burden."  Sweden also pressed for "closer consultation 
mechanisms between the different actors involved in 
peacekeeping," and noted the implementation of the 
Joint-Declarations on UN-EU Co-operation of 2003 and 2007. 
 
¶16.  (SBU) Canada called for improved performance on the 
non-military dimensions of UNPKOs to create conditions for 
successful peacebuilding and stated that "policing, security 
 
USUN NEW Y 00000764  004 OF 005 
 
 
system reform, and rule of law are now recognized as core 
functions of modern UN peacekeeping."  Australia emphasized 
that "informal mission-specific coalitions of engaged 
stake-holders" can mobilize political support and resources. 
Norway pushed for greater commitments from countries not yet 
contributing their full potential to UNPKOs and urged moving 
away from "a somewhat obsessive focus on troop numbers to a 
focus on quality and total capability."  New Zealand remarked 
that recruitment and retention of capable UNPKO personnel, 
despite omission from the New Horizon paper, is critical for 
UNPKO success and "deserves a renewed focus."  Brazil called 
for "exploring synergies between peacebuilding and 
peacekeeping." 
 
¶17.  (SBU) Non-Aligned Movement (NAM) members expressed 
cautious appreciation for the Council's recent increased 
consultations with TCCs, in particular through the Security 
Council Working Group chaired by Japan.  They reiterated, as 
in all prior statements, the importance of UNPKOs adhering to 
what they referred to as peacekeeping's "basic principles": 
consent of the parties, impartiality, and the non-use of 
force except in self-defense.  Morocco, speaking on behalf of 
NAM, underscored that "the concept of self-defense of the 
mandate cannot be put at the same level as the three guiding 
principles, since its application is restricted to the 
operational and tactical levels."  NAM members also 
reiterated calls for developed countries to share the 
deployment burdens of peacekeeping, to engage TCCs when 
drafting, changing, and renewing mandates, and more generally 
to strengthen cooperation among TCCs, the Secretariat and the 
Council.  India urged active consulatation with TCCs, as 
opposed to passive information sharing, and called for 
"applying the capacities and knowledge of countries that have 
undergone successful post-colonial nation-building exercises 
to (conflict) situations." 
 
¶18.  (SBU) Morocco, Pakistan, Guatemala and Uruguay stated 
that DPKO's New Horizon report and the French-U.K. initiative 
must be considered by the UNGA's Special Committee on 
Peacekeeping (C-34) because it "is the only forum to 
comprehensively review UNPKOs."  Reiterating a theme from 
earlier debates, Guatemala articulated its view that the 
expression "financial contributors" should not be used in 
connection with UNPKOs since "all Member States contribute to 
the budget in accordance with their capacity to pay." 
 
¶19.  (SBU) Pakistan encouraged "a more meaningful and 
tangible partnership" with TCCs and called for the "adequate 
representation of the major TCCs at the leadership level in 
the field and particularly at the headquarters."  On the 
issue of collective burden sharing and greater participation 
of Member States, Pakistan pushed for "the two-way process" 
which ties increases in contributions to increases in 
decision-making power. 
 
¶20.  (SBU) Several delegations, including Indonesia, South 
Africa, and Thailand, emphasized the crucial role of regional 
and sub-regional organizations in peacekeeping and urged the 
United Nations to strengthen the capacity of these 
organizations.  While Bangladesh and Serbia agreed that 
regional organizations can play a complementary role to 
UNPKOs, they noted that these organizations should not be 
used as a substitute for UN involvement. 
 
Council Adopts Peacekeeping PRST 
-------------------------------- 
 
¶21.  (SBU) Following the open debate, the Council adopted 
Presidential Statement S/PRST/2009/24 by consensus.  The PRST 
praised the efforts of the Council over the past six months 
to improve dialogue with the Secretariat and deepen 
consultations with TCCs on collective oversight of 
peacekeeping operations.  The PRST acknowledged that further 
improvements are necessary in the following areas:  (1) 
ensuring that peacekeeping mandates are clear, credible, 
achievable and adequately resourced; (2) improving 
information sharing, especially on the military level; (3) 
increasing interaction with the Secretariat on military, 
police, justice, rule of law and peacebuilding issues; (4) 
improving engagement with TCCs, especially before renewing or 
modifying mandates; (5) increasing awareness of the resource 
and field support implications of its decisions; and (6) 
enhancing understanding of the strategic challenges that 
confront UNPKOs. 
 
USUN NEW Y 00000764  005 OF 005 
 
 
 
¶22.  (SBU) The PRST recognized the importance of framing 
peacekeeping initiatives in the context of broader political 
strategy, enlarging the pool of TCCs, and strengthening the 
capacity of the African Union and other regional 
organizations to maintain international peace and security. 
The PRST further recognized the need for coherence among 
peacemaking, peacekeeping, peacebuilding and post conflict 
initiatives. 
 
¶23.  (U) Note:  A transcript of the debate is available on 
the Security Council section of the UN website, www.un.org, 
under "Meetings." 
RICE