VZCZCXRO5658
OO RUEHROV RUEHTRO
DE RUEHKH #1227/01 3051349
ZNR UUUUU ZZH
O 011349Z NOV 09
FM AMEMBASSY KHARTOUM
TO RUEHC/SECSTATE WASHDC IMMEDIATE 4667
INFO RUCNIAD/IGAD COLLECTIVE
RUEHGG/UN SECURITY COUNCIL COLLECTIVE
RHMFISS/CJTF HOA

UNCLAS SECTION 01 OF 03 KHARTOUM 001227 
 
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SIPDIS 
 
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DEPT PLS PASS USAID FOR AFR/SUDAN 
ADDIS ABABA ALSO FOR USAU 
GENEVA FOR NKYLOH 
UN ROME FOR HSPANOS 
NEW YORK FOR DMERCADO 
 
E.O. 12958: N/A 
TAGS: EAID PREF PGOV PHUM SOCI SMIG UN SU
SUBJECT:  OCTOBER HIGH-LEVEL COMMITTEE MEETING FOCUSES ON DARFUR 
SECURITY CONCERNS 
 
¶1.  (SBU) Summary:  In a spirited session of the expanded High-Level 
Committee (HLC) on October 28, committee members discussed key 
challenges in the humanitarian operating environment in Darfur as a 
follow-up to the recent HLC visit to El Geneina, West Darfur.  The 
discussion centered on the October 24 abduction of an International 
Committee of the Red Cross (ICRC) international staff member near El 
Geneina, West Darfur.  The UN and donors, including the U.S. 
Government (USG), represented by Deputy Chief of Mission (DCM) Mark 
¶L. Asquino, strongly condemned the continued impunity surrounding 
the kidnapping incidents and noted the importance of immediate 
action to bring perpetrators to justice. 
 
¶2.  Summary continued:  While Government of National Unity (GNU) 
representatives uniformly stated that the GNU is actively engaged in 
securing the release of humanitarian workers, their tone became 
decidedly defensive after repeated UN and donor statements on the 
issue of impunity.  GNU officials stressed the lack of local police 
capacity, complained about lack of non-governmental organization 
(NGO) cooperation with security investigations, and alleged that 
NGOs are further worsening the problem by hiring "unknown," and 
possibly dangerous, local staff.  In addition, the meeting revealed 
remaining GNU misunderstandings regarding the meaning of 
humanitarian protection vis-a-vis Darfuri civilians.  End summary. 
 
 
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DONORS, UN CONDEMN WORSENING INSECURITY 
--------------------------------------- 
 
¶3. (SBU) Meeting co-chair Deputy Special Representative to the UN 
Secretary-General (DSRSG) and UN Resident/Humanitarian Coordinator 
(RC/HC) Ameerah Haq thanked the GOS for their hospitality during the 
recent West Darfur HLC visit, noting that the visit was shortened 
and the delegation reduced to focus specifically on safety and 
security for humanitarian workers in the wake of the ICRC staff 
kidnapping.  Haq welcomed the release of two GOAL international 
staff members, whom kidnappers had held for more than 100 days, and 
recognized GNU efforts to facilitate negotiations leading to their 
release.  However, the DSRSG noted that the escalating level of 
violence and the climate of impunity surrounding these attacks 
remain unacceptable, stating that "NGOs seeking to help the people 
of Darfur should be able to do so without fear."  The DSRSG 
recommended the immediate establishment of a sub-committee comprised 
of a smaller number of HLC members to address safety and security 
concerns facing humanitarian staff. 
 
¶4.  (SBU) Debriefing the committee on the West Darfur HLC visit and 
echoing the DSRSG's comments, the head of UK Department of 
International Development (DFID)/Sudan read a statement, which the 
USG and the European Union (EU) endorsed, identifying the ICRC 
kidnapping as a "new low" in the Darfur operating environment and 
calling for strong action to deter criminal actions and protect 
humanitarian workers.  The statement condemned impunity for 
perpetrators and noted that ransom payments to secure staff release 
are unacceptable and only encourage further abductions.  In 
addition, the statement referenced NGO messages during the HLC visit 
to El Geneina regarding the deleterious impact that insecurity 
continues to have on program delivery and outreach, particularly to 
rural areas.  Donors stressed that the deteriorating operating 
environment, particularly with regard to attacks on international 
relief staff, precludes development in Darfur, especially outside of 
IDP camps, and hampers humanitarian support for rural populations 
and possible returns.  DCM Asquino reiterated that the international 
community will not tolerate continued attacks on humanitarian 
workers and called on the GNU to bring perpetrators to justice.  In 
addition, Asquino noted the importance of positive and accurate 
media messaging regarding NGO work. 
 
--------------------------------------------- ----- 
GOS RESPONDS WITH SECURITY ASSURANCES, FRUSTRATION 
--------------------------------------------- ----- 
 
¶5.  (SBU) Responding to the UN and donor statements, GNU 
Humanitarian Aid Commission (HAC) Commissioner Hassabo Mohamed Abdul 
Rahman assured all parties of the Sudanese government's commitment 
to the security of humanitarian agencies working in Darfur and to 
the safe release of hostages without payment of ransom.  However, 
several GNU representatives, including the HAC Commissioner, HLC 
co-chair and Minister for Humanitarian Affairs Haroun Lual Ruun, and 
the GNU Ministry of Interior representative, expressed some 
frustration regarding perceived lack of NGO cooperation with the 
police, security officials, and judiciary on security issues. 
 
KHARTOUM 00001227  002 OF 003 
 
 
 
¶6.  (SBU) While commending NGOs for "doing a good job in a difficult 
security environment," Hassabo called for increased coordination on 
security issues on the part of humanitarian agencies. Hassabo 
stressed that NGOs must cooperate with and defer to security 
officials when hiring local staff, including drivers and security 
guards, alleging that some of the kidnapping and banditry incidents 
could originate from within the NGOs.  (Note: NGOs already 
participate in a lengthy staff vetting process with the HAC to hire 
local and international workers. End note.)  The HAC Commissioner 
and Minister for Humanitarian Affairs both asserted that NGOs often 
do not fully participate in criminal investigations, stating that 
"without good information, we can't have justice." 
 
¶7.  (SBU) The GNU Ministry of Interior (MoI) representative 
expounded on the assertions of the Minister and the HAC 
Commissioner, squarely placing much of the blame for recent 
insecurity in Darfur with the international community.  The MoI 
official complained that international donors had failed to play the 
promised role in strengthening police capacity as outlined in the 
2006 Darfur Peace Agreement (DPA).  (Note: The DPA is widely 
acknowledged to be defunct.  End note.)  In the MoI official's view, 
if donors had followed through with agreements to improve rule of 
law in Darfur through establishment of police stations and police 
forces among internally displaced persons (IDPs), the current level 
of attacks on humanitarian staff would have been avoided. 
 
¶8. (SBU) In addition, the MoI official blamed the African Union-UN 
Hybrid Operations in Darfur (UNAMID) and humanitarian agencies for 
the alleged presence of armed movements operating openly in IDP 
camps and frequently repeated that the camps serve as training 
centers and safe havens for criminal elements.  When Sudanese 
security officials seek to eliminate these problems, he added, 
instead of providing support, UNAMID representatives urge inaction 
and request that government security personnel remain outside the 
camps due to "sensitivities."  (Note: The MoI was likely referencing 
the UNAMID response following the August 2008 incident in Kalma IDP 
camp, in which government "security raids" led to the deaths of more 
than 30 civilians.  End note.)  The official asserted that the GOS 
must eliminate criminal hideouts in IDP camps as a means to protect 
Darfuri citizens, including IDPs themselves.  The MoI representative 
further complained that NGO and UN staff do not inform security 
officials of their travel plans within towns and villages; thus, 
security officials are unable to provide protection and ease NGO 
work.  In closing, the official expressed support for the role that 
NGOs play in Darfur and asked for further cooperation to "remove 
these difficulties together." 
 
¶9. (SBU) DSRSG Haq responded by noting the need for future dialogue 
regarding security as part of the proposed HLC security 
sub-committee.  Haq highlighted the complexity of establishing 
security procedures among various government and international 
stakeholders due to the humanitarian principles involved in the 
Darfur context.  Later in the meeting, participants endorsed the HLC 
Monitoring Mechanism, including new sub-committees on security at 
the state and federal level. 
 
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GOVERNMENT CONFUSION ON PROTECTION 
---------------------------------- 
 
¶10. (SBU) Following the heated security discussion, the 
representative of the Office of the UN High Commissioner for 
Refugees (UNHCR) noted that the MoI's presentation had touched on 
issues related to security and humanitarian protection, distinct yet 
sometimes interrelated concepts.  The GNU Ministry of Defense 
official present interjected to state that humanitarian agencies' 
definition of protection remains unclear, with various messages 
espoused by UNHCR, the International Organization for Migration 
(IOM), and ICRC.  The defense official asked that the international 
community come to a consensus on the matter and share clear 
information with Sudanese government representatives.  UNHCR agreed 
to follow up with a protection workshop and training. 
 
¶11. (SBU) This lack of clarity on protection issues among Sudanese 
government representatives was highlighted during comments by HAC 
Commissioner Hassabo.  Hassabo strongly recommended a merger of the 
protection sector working group and the new security sub-committee, 
as, in his view, these groups were essentially discussing the same 
issues and comprised the same GOS stakeholders.  UNHCR clarified 
that the protection sector working group should remain distinct, as 
humanitarian protection as a sector focuses on the protection 
 
KHARTOUM 00001227  003 OF 003 
 
 
concerns affecting Darfuri beneficiaries and not on security of aid 
workers. 
 
-------------------------------- 
JOINT RETURNS MECHANISM APPROVED 
-------------------------------- 
 
¶12.  (SBU) Turning to the next agenda item, HLC co-chair MoHA Haroun 
tabled the Joint Verification Mechanism on IDP returns.  The 
mechanism proposes "to help ensure that returns in Darfur are 
sustainable by enabling IDPs to exercise a free, informed, and 
voluntary choice to return to their areas of origin in safety and 
dignity, where and when appropriate."  (Note: This objective 
statement is consistent with international humanitarian principles 
on internal displacement. End note.)  The terms of reference 
document established the composition of a Joint Verification 
Sub-Committee, including the HAC Commissioner and the UN RC/HC as 
co-chairs, as well as representatives of the GNU National 
Intelligence and Security Service (NISS), UNAMID, UNHCR, WFP, 
UNICEF, and IOM, international NGO members, one national NGO 
representative, and one IDP representative, and other HLC members on 
an ad hoc basis.  HLC participants observed that the Joint 
Verification Mechanism only establishes the criteria for the 
appropriateness and voluntary nature of returns and does not 
elaborate on assistance options when returns are verified as such. 
DSRSG Haq stated that, upon HLC approval, the first task of the new 
HLC Joint Verification Sub-Committee would be to investigate next 
steps following returns verification.  The HLC approved the 
mechanism without objection. 
 
 
WHITEHEAD