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Viewing cable 06USUNNEWYORK915, LARSEN TELLS SECURITY COUNCIL WHY SYRIA NEEDS TO
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
06USUNNEWYORK915 | 2006-05-04 13:19 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | USUN New York |
VZCZCXRO4162
OO RUEHBC RUEHDE RUEHKUK RUEHMOS
DE RUCNDT #0915/01 1241319
ZNR UUUUU ZZH
O 041319Z MAY 06
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC IMMEDIATE 8916
INFO RUEHEE/ARAB LEAGUE COLLECTIVE IMMEDIATE
RUEHGG/UN SECURITY COUNCIL COLLECTIVE IMMEDIATE
RUEHLB/AMEMBASSY BEIRUT IMMEDIATE 0692
RUEHDM/AMEMBASSY DAMASCUS IMMEDIATE 0287
UNCLAS SECTION 01 OF 03 USUN NEW YORK 000915
SIPDIS
SIPDIS
SENSITIVE
E.O. 12958: N/A
TAGS: PREL PGOV UNSC LE SY
SUBJECT: LARSEN TELLS SECURITY COUNCIL WHY SYRIA NEEDS TO
DO MORE ON UNSCR 1559
¶1. (SBU) Summary. During private consultations with the UNSC
on April 26, UN Special Envoy Terje Roed-Larsen robustly
argued that full implementation of UNSCR 1559 would not be
achieved until Syria responded to Lebanon's offer to
demarcate their shared border and establish diplomatic
relations. Characterizing these measures as operational
requirements at "the heart" of UNSCR 1559, he firmly rejected
the Russian argument that these issues are strictly bilateral
matters. Lebanon, he said, "simply can't do it alone." On
Sheba'a Farms, Larsen wryly observed that "maps are not
occupied" to insist that delineation of the border could
proceed despite Israeli control of the area. Praising
Lebanon's National Dialogue for its decision to disarm
Palestinian militias in Lebanon, Larsen argued that both the
Taif Agreement and UNSCR 1559 demand that Hizballah follow
suit. While he reiterated SYG Annan's view that no leader
should remain in office beyond his term, Larsen declined
further comment on the fate of Lebanese President Lahoud by
noting the National Dialogue would soon take up the issue.
He replied to USUN Ambassador Sanders's question about
Iranian interference in Lebanon by explaining that he
maintains a dialogue with all countries with influence on
those "parties" critical to implementation of UNSCR 1559.
While Russia offered a general defense of Syria's compliance
with UNSCR 1559, Qatar and China delivered relatively neutral
interventions that called for full implementation of the
resolution but cautioned against outside pressure on the two
sides. Argentina, however, expressed reluctance to "impose"
a solution. Tanzania, Congo, and Japan joined the P-3 in
welcoming the prospect of a new resolution. End Summary.
Larsen Gives Impressive Performance
-----------------------------------
¶2. (SBU) While he praised the significant progress achieved
in the implementation of UNSCR 1559 over the past six months,
Larsen noted that several provisions of the resolution had
yet to be fulfilled: the disbanding and disarmament of all
Lebanese and non-Lebanese militia; the extension of GOL
control over all Lebanese territory; strict respect for the
sovereignty, territorial integrity, unity, and political
independence of Lebanon; and the holding of presidential
elections. He made clear that implementing these provisions
would depend on the cooperation of parties other than
Lebanon. Specifically, he called on Syria to respond to the
"outstretched hand" Lebanon had offered to delineate their
common border, especially in the Sheba'a Farms area, and to
establish full diplomatic relations. Larsen praised the
decision taken in the Lebanese National Dialogue to disarm
Palestinian militias outside refugee camps in Lebanon, but
observed that the Taif Agreement -- which was endorsed by the
Arab League -- and UNSCR 1559 both demand that all Lebanese
and non-Lebanese militia be disarmed. While acknowledging
that some Lebanese see Hizballah as a "resistance group,"
Larsen insisted that the fact that Hizballah is outside the
control of the GOL means that it is a militia that should be
disarmed. He called on "all parties who have the ability to
influence Hizballah and other militias" to urge them to
disarm in order to facilitate Lebanon's historical
transformation.
France and UK Support USG
-------------------------
¶3. (SBU) France and the UK joined USUN Ambassador Sanders in
defending the need for an ongoing UNSC role in fully
restoring Lebanon's sovereignty and in calling on the Council
to act on PM Siniora's request for continued UNSC support.
Both strongly urged Syria to respond to Lebanon's offer to
establish diplomatic relations and demarcate their shared
border, with the UK specifically rejecting Syrian arguments
that these issues should be handled bilaterally. Recalling
references to Iran in the latest report on UNSCR 1559
implementation, the UK highlighted the obligation of all
countries to implement the resolution and averred that Iran
"must become part of the solution rather than part of the
problem." French PermRep de la Sabliere did not cite Iran by
name but called on "all those with influence on militias to
build on the progress of the National Dialogue." Declaring
that the UNSC should "face up to its responsibility to
support Lebanon," de la Sabliere announced that France would
present a draft text to reinforce Larsen's report and the
implementation of UNSCR 1559 in the next few days.
Russia Fronts for Syria
-----------------------
¶4. (SBU) Offering a general defense of Syria's position,
USUN NEW Y 00000915 002 OF 003
Russian Deputy PermRep Dolgov argued that Syria had complied
with UNSCR 1559 by withdrawing its troops from Lebanon. He
characterized demarcation of borders and establishment of
diplomatic relations as "bilateral issues" to be decided
between the two sides alone. He expressed hope that PM
Siniora would visit Damascus soon. The Russian DPR said "the
only solution" to the question of Lahoud's authority is for
the Lebanese to resolve the issue themselves "with no outside
participation." Describing Hizballah as an "internal
Lebanese organization," Dolgov recalled the group's origins
vis-a-vis Israel to explain away its refusal to disarm. He
went so far as to dismiss concerns about a continued Syrian
intelligence presence in Lebanon by arguing that as a
sovereign state, "Lebanon is open to ordinary intelligence
activities." Praising Syria's "cooperative approach" to its
relations with Lebanon, Dolgov noted that Syria had just
welcomed UNIIIC head Brammertz to Damascus for an interview
with President Asad. He welcomed Larsen's finding that no
arms had been transferred across the Syrian-Lebanese border
after February 2006 and asked the Special Envoy about
Lebanese media reports to the contrary. He regretted
"sharp-tongued" statements about Syria by certain Lebanese
politicians, blaming such Lebanese rhetoric for the current
tension.
Qatar and China Relatively Neutral
----------------------------------
¶5. (SBU) Qatar and China delivered relatively neutral
interventions calling for full implementation of UNSCR 1559.
Recognizing that the National Dialogue had confirmed the need
for a "strong and positive bilateral relationship" between
Syria and Lebanon, the Qatari PermRep opined that these links
should be based on "mutual respect and shared history" and in
a manner the two states "deem suitable." China avoided
comment on any of the contentious aspects of Larsen's
presentation, with the sole exception of an assertion that
Lebanon's internal issues (presumably a reference to Lahoud's
presidency) should be resolved in a "constitutional manner."
The Argentinian PermRep urged Syria to cooperate fully with
Lebanon, but argued that dialogue between the two sides
should not be imposed from the outside. On Sheba'a Farms,
however, he stated that Israeli occupation of the area is "no
excuse (for the government of Lebanon) to fail to fulfill
UNSCR 1559" by disarming militias and extending its authority
over all its territory.
Other UNSC Members Generally Support Larsen
-------------------------------------------
¶6. (SBU) Most other UNSC members voiced general support for
Larsen's efforts to implement UNSCR 1559. Peru and Denmark
urged Syria and Lebanon to demarcate their border and
establish diplomatic links. Noting Siniora's contention that
Sheba'a Farms is the key to resolving the militia issue, Peru
asked if the UNSC could take custody of the area pending its
transfer to Syria or Lebanon. Slovakia and Tanzania agreed
with Peru that Sheba'a is a key to resolving the issue and
that its status should be clarified. The Japanese expressed
hope that Lebanon would hold free and fair presidential
elections, while Greece observed that full implementation of
UNSCR 1559 would help ensure stability in the region. Japan,
Tanzania, and Congo welcomed the prospect of a new
resolution.
Larsen Rebuts His Critic(s)
---------------------------
¶7. (SBU) After interventions by UNSC delegates, Larsen
offered a spirited rebuttal of the Russian position and
defended his own interpretation of the UNSCR, arguing that
resolving the issue of the border and establishing embassies
are operational requirements of 1559. Citing language from
the resolution, he said these two activities are "part and
parcel" and "the heart" of UNSCR 1559. Achieving Lebanon's
territorial integrity requires establishment of the border
with Syria; obtaining strict respect for Lebanon's
sovereignty and political independence depends upon the
establishment of embassies. He observed that Syria and
Lebanon are the only two countries in the Arab League without
diplomatic relations. In an indirect bid for a new
resolution, he advised the Council that it "takes two to
tango" and "Lebanon can't do it alone."
¶8. (SBU) On Sheba'a Farms, Larsen recalled the history of
UNSCR 425, highlighting the conclusion by the UN
Secretary-General in 2000 that the area is Syrian territory
SIPDIS
-- a conclusion that the Council has repeatedly endorsed,
USUN NEW Y 00000915 003 OF 003
including Syria during its term as an elected member of the
Security Council. He explained however, that the Blue Line
is a line of withdrawal, not a formal boundary, and clarified
that the UN had therefore maintained it was subject to
review. Now that Syria and Lebanon have agreed that the
territory is Lebanese, Larsen mused that the two sides are
well-positioned to draw a line delineating their border. He
outlined three ways to do so. The first two options --
international arbitration or referral to the International
Court of Justice -- are not feasible because Syria has
rejected third party involvement. The remaining option is a
bilateral agreement between the two countries. Larsen
rejected the argument that Israeli control of Sheba'a
prevents negotiation of such an agreement, observing that
"maps are not occupied" and that the delineation process
could begin immediately. Demarcation of the physical border,
he averred, could be addressed later.
¶9. (SBU) Larsen responded to questions about Lahoud's
authority by reiterating SYG Annan's view that no leader
should serve longer than his term in office, a principle
which he said applies to Lebanon as well. He agreed that
Hizballah's fate should be decided domestically, but on the
basis of the Taif Agreement and UNSCR 1559. Describing UNSCR
1559 as an "instrument in support of Taif," which he recalled
has been endorsed by the Arab League, Larsen reported that
Taif had stipulated that all militias should be disbanded
within six months. By contrast, the Security Council had not
established a deadline in UNSCR 1559. Discounting Lebanese
media reports of arms transfers from Syria to Lebanon after
February 2006, Larsen said he had no information to back up
these claims. He admitted that while the GOL and SARG had
supplied conflicting reports about the presence of Syrian
intelligence in Lebanon, he had no way to verify either
story. In response to Ambassador Sanders's question about
Iranian interference in Lebanon, Larsen explained he engaged
in a dialogue with those countries that have influence on the
"parties" (i.e., Syria and Iran) whose support is essential
to achieve implementation of UNSCR 1559.
Comment: Delineation vs. Demarcation
------------------------------------
¶10. (SBU) Larsen's aide Fabrice Aidan told us that Larsen
chose to emphasize "delineation" of the border on the map
rather than physical "demarcation" on the ground as a way to
counter arguments that Israel must withdraw from Sheba'a
Farms before the process of establishing the Syrian-Lebanese
border can begin.
BOLTON