C O N F I D E N T I A L USUN NEW YORK 000798
E.O. 12958: DECL: 08/26/2019
TAGS: PREL, PREF, UNGA, IS, KPAL
SUBJECT: ISRAELI PARTICIPATION IN UNRWA AT 60 EVENT - USUN
CONSULTATIONS
Classified By: Ambassador Wolff for reasons 1.4 (b) and (d)
1. (C) Summary: The Palestinian Observer Mission to the UN
has taken a very hard-line position against the Israeli
request for a speaking role at the high level segment of the
UNRWA 60th anniversary commemorative event. The Arab members
of the steering committee are likely to follow the
Palestinians' lead. Thus, absent clear instructions from the
highest levels of the Palestinian Authority (PA) to support
the Israeli request, the Palestinian position will translate
into active opposition to the request by the steering
committee's Arab members. Other members of the steering
committee organizing the event are generally more positive
about the request, but have raised objections about process,
re-opening the speakers' list to other requests to speak, the
content of Israel's statement, and - most seriously -
concerns about the reaction of Arab states. Active
opposition from the Palestinians could undermine even this
limited support for Israeli participation, thus preventing
any opportunity for consensus in the steering committee.
Turning the Palestinian and Arab position to accepting an
Israeli speaking role is the key. The steering committee is
now scheduled to meet on September 8. End summary.
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Arab Reaction
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2. (C) The members of the United Nations Relief and Works
Agency (UNWRA) steering committee that is organizing the
UNRWA 60th anniversary event are Norway (acting as the
chair), Egypt, Jordan, Indonesia, Senegal, France, Czech
Republic, Sweden, Japan, Mexico, and the United States along
with observers from the Palestinian Observer Mission and the
European Union (EU). The Palestinian Observer Mission has
taken a very hard line against Israeli participation as a
speaker in the foreign-minister-level event, telling
Ambassador Wolff that he has taken this position as the
representative of the Palestinian people. The Jordanian
Ambassador was extremely guarded in his response to
Ambassador Wolff and said the Arab Group would have to meet
to discuss the issue. (Comment: We read this response from
our usually forthcoming Jordanian colleague as foreshadowing
Jordan's adherence to whatever decision the group takes. End
comment.) The Jordanian Mission has requested instructions
on this from Amman on August 25. There is an Arab Group
meeting scheduled for the week of September 7 to discuss UN
General Assembly issues and the Palestinians could raise the
issue during that meeting. The Jordanian expert suggested
that a strong positive statement from UNRWA on the Israeli
request, as well as a moderate position from the Arab League
and the Palestinians would be key to shaping any decision
made by the Arab states. The Egyptian Charge was
noncommittal when Ambassador Wolff raised the issue with him.
The Egyptian expert (whom we have found to be a frank and
helpful interlocutor) told us that it will be very difficult
to reach agreement on Israel's participation; that the
Palestinian position will be absolutely key, as the Arab
countries will not support this if the Palestinians are
opposed; and that concern about what Israel may say in its
speech will certainly play a role in the Arab decision.
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European Reaction
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3. (C) The French expert noted that France has withheld its
final agreement on the current speakers' list because it is
seeking a "global solution" that will include a speaking role
for France. The Norwegian expert (chair of the steering
committee) has taken a conciliatory approach but is concerned
about reaching consensus within the committee. The Swedish
expert expressed concern about the ability and authority of
the steering committee to make a decision instead of having a
formal Advisory Committee (AdCom) meeting on the topic.
(Note: The Jordanian expert raised similar concerns. End
note.)
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Reaction from other steering
committee members
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4. (C) The Indonesian PermRep told Ambassador Wolff that
Indonesia will not oppose Israeli participation, since the
UNRWA event should remain non-political. The expert from
Senegal, while noting the need to seek instructions, was
positive about the idea, saying that it would add "balance"
to the speakers list. In an August 27 meeting, Senegalese
Foreign Minister Gadis told Ambassador Rice they could
support Israeli participation provided the Israeli statement
would be constructive. The Japanese expert had no
reservations about including Israel if all other steering
committee members could agree. The Mexican expert said
Mexico has no political problem with Israel's participation,
but asked if the U.S. could reiterate to all steering
committee members and speakers the desire for the event to be
a commemoration of UNRWA's work, not a chance to make
political statements about Palestinian refugees.
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Procedural issues
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5. (C) The steering committee's next meeting is scheduled for
September 8. The committee is an ad hoc group with no
official standing as a UN body and no written rules of
procedure. It has always operated by consensus. The AdCom's
rules of procedure on subsidiary bodies state "The Commission
may form subsidiary bodies, such as sub-committees. The
Commission will study the possibility of establishing ad hoc
Working Groups at a future date. These bodies report back to
the full Advisory Commission." There is no mention of voting
as a fallback if consensus cannot be reached. Given the
steering committee's lack of its own rules, some members may
argue that it should operate under the same rules as the
AdCom.
6. (SBU) AdCom rules of procedure require six weeks' notice
for a "regular session" but make a provision for convening an
extraordinary session "in order to discuss urgent business at
the request of: the Commisioner-General; the Bureau; or at
least three members" (The rules may be found at
http://www.un.org/unrwa/AdComHDM 07/public/AdComDocs.html).
We understand that the June AdCom meeting decision that
established the current speakers' list also delegated to the
steering committee the possibility of adding additional
speakers.
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Comment
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7. (C) Comment: It is clear that the Palestinian position
will help determine the other Arabs' stance. In the absence
of clear instructions from the PA leadership, their
Ambassador's position of strong opposition to the Israeli
request will ensure a negative Arab position. If Arab group
opposition emerges and the committee cannot agree by
consensus to Israeli participation, we expect that other
members of the steering committee will argue that the
committee, as an ad hoc group operating without rules, should
simply defer to the current speakers list "approved" by the
AdCom. Absent strong instructions from capitals we do not
expect that even steering committee members favorably
disposed to Israel's request, such as Japan and Mexico, will
take a vocal position of support during the meeting.
RICE