1
500
3
-
https://clinton.presidentiallibraries.us/files/original/bc2844cd61d83d61364e1a9a77444f51.pdf
01b1e7d4a2ae222223160e413121df06
PDF Text
Text
Clinton Presidential Records
Mandatory Declassification Review
This is not a presidential record. This is used as an administrative
marker by the William J. Clinton Presidential Library Staff.
Documents from this Mandatory Declassification Review were
released in full.
�9325703
United States Department
of State
Washington, D.C. 20520
November 4, 19 9 3
DECL: OADR
MEMORANDUM FOR ANTHONY LAKE
THE WHITE HOUSE
SUBJECT: Moving Forward w i t h t h e Peacekeeping PDD
We have reviewed t h e d r a f t PDD on peacekeeping i n l i g h t o f
the events o f recent weeks and have concluded t h a t i t remains a
s o l i d f o u n d a t i o n upon which t o base U.S. peacekeeping p o l i c y .
We have a l s o concluded, however, t h a t i n a d d i t i o n t o t h e
m o d i f i c a t i o n s S t a t e proposed on September 23, r e v i s e d s e c t i o n s
are r e q u i r e d on: ( 1 ) s h a r i n g r e s p o n s i b i l i t y , ( 2 ) U.S. f i n a n c i n g ,
and ( 3 ) command o f U.S. f o r c e s .
(1) Shared
responsibility:
S p e c i f i c a l l y , t h e Department c o n t i n u e s t o b e l i e v e t h a t t h e r e
needs t o be g r e a t e r f l e x i b i l i t y i n t h e d i v i s i o n o f
r e s p o n s i b i l i t y than i s r e f l e c t e d i n t h e document. The mere
presence ( o r l a c k t h e r e o f ) o f U.S. combat f o r c e s i n a Chapter V I
peacekeeping o p e r a t i o n may n o t be t h e most a p p r o p r i a t e c r i t e r i o n
f o r d e t e r m i n i n g t h e lead agency.
(For example, a U.S. i n f a n t r y
company may be o n l y a s m a l l p a r t o f l a r g e r UN m i l i t a r y presence
whether under Chapter V I o r V I I . A l t e r n a t i v e l y , non-combat U.S.
u n i t s such as e n g i n e e r s may form t h e b u l k o f a Chapter V I
operation.)
The P r e s i d e n t should have t h e a b i l i t y t o designate
e i t h e r S t a t e o r DoD as t h e lead agency f o r a p a r t i c u l a r
o p e r a t i o n i f t h e circumstances warrant.
We suggest t h e
i n s e r t i o n o f a new t h i r d t i c k under paragraph 9.A. o f t h e P o l i c y
Guidance.
"-- I n a p p r o p r i a t e c i r c u m s t a n c e s , t h e P r e s i d e n t may d e s i g n a t e
e i t h e r S t a t e o r DoD as lead agency f o r Chapter V I
o p e r a t i o n s , i r r e s p e c t i v e o f t h e presence o f U.S. combat
units."
DECL: OADR
CLINTON LIBRARY P O" C P
H 0 0Y
DECLASSIFIED
PERE
"
a 13526
�SECRET
-2In a d d i t i o n , i n the f i r s t t i c k under Paragraph 9.A, replace
the clause " i n which U.S. combat u n i t s are not p a r t i c i p a t i n g "
w i t h "unless a s i g n i f i c a n t number of U.S. combat troops are
p a r t i c i p a t i n g . " I n the second t i c k , replace "U.S. combat u n i t s "
at the end of the f i r s t sentence w i t h "a s i g n i f i c a n t number of
U.S. combat troops."
(2) U.S. Funding:
Annex I I I should include a sentence r e a f f i r m i n g the
President's statement t h a t the U.S. assessment must be lowered.
The document should also r e c a l l that the Congress has recentlyd i r e c t e d us to make clear t o the UN t h a t our assessment should
be no more than 25 percent. Annex VI requires r e v i s i o n to
r e f l e c t the P r i n c i p a l s ' Committee decision to share
r e s p o n s i b i l i t y f o r oversight and funding of peacekeeping
operations. Paragraph 2 on the long-term approach t o
reimbursement should r e f l e c t the decision to seek a separate DoD
CIPA account t o pay U.S. assessments f o r Chapter V I I operations
and those Chapter V I operations w i t h s i g n i f i c a n t U.S. m i l i t a r y
p a r t i c i p a t i o n . A proposed r e d r a f t i s at Tab A. Although t h i s
change i s consistent w i t h the shared r e s p o n s i b i l i t y model, we
w i l l need to discuss i t f u r t h e r w i t h DoD and the NSC.
(3) Command of U.S. Forces:
Paragraph 9.D. on page 9 should be strengthened by changing
the f i r s t sentence t o read: "The President r e t a i n s and w i l l not
r e l i n q u i s h command a u t h o r i t y over U.S. forces." JCS and OSD
should agree w i t h t h i s change.
Thank you f o r your assistance i n t h i s matter.
Marc Grossman
Executive Secretary
DCE*
ERT.
(DECL: OADR)
CLINTON LIBRARY P O O O Y
HTCP
�ANNEX VI
Reimbursement Policy f o r U.S. Contributions
to UN Peacekeeping Operations
There i s interagency agreement t h a t the U.S. should be
reimbursed by the United Nations when DoD c o n t r i b u t e s troops,
supplies or services t o assessed UN peacekeeping operations. As
a matter of p o l i c y u n t i l permanent change i s achieved i n the way
that the USG funds UN peace operations. State and DoD have
agreed t o the f o l l o w i n g procedures, without prejudice t o each
agency's views of e x i s t i n g legal a u t h o r i t i e s :
1. SHORT-TERM: I n the short-term, State and DoD w i l l continue to
consider each assessed UN peacekeeping operation on a
case-by-case basis.
l a . DoD Troop Contributions: When DoD d e t a i l s forces t o
assessed UN peacekeeping operations under e i t h e r Chapter VI
(peacekeeping) or Chapter V I I (peace enforcement) of the UN
Charter, the U.S. s h a l l seek the normal reimbursement to which
a l l troop c o n t r i b u t o r nations are e n t i t l e d (e.g.,
$988/troop/month; or $1279/troop/month f o r s p e c i a l i s t s ) .
Such reimbursement, i n excess of DoD component incremental
troop costs, could be used, t o the extent provided under
e x i s t i n g s t a t u t e s , t o o f f s e t the USG's peacekeeping assessment
-- paid from the e x i s t i n g State CIPA account.
l b . DoD Goods and Services: When DoD provides goods or
services (e.g., l i f t , l o g i s t i c s support, medical or technical
services) t o assessed UN peacekeeping operations, DoD s h a l l seek
d i r e c t reimbursement from the UN.
DoD and State w i l l consult i n exceptional s i t u a t i o n s which
may require waiver of reimbursement. I n such exceptional"
circumstances, when DoD and State agree, DoD would waive
reimbursement. DoD believes that we should consider such a
waiver only when the UN i s not i n a p o s i t i o n t o provide
reimbursement. When the UN does not reimburse DoD, State
believes that i t may seek a c r e d i t against i t s peacekeeping
assessment. State and Defense agree t h a t we should continue t o
resolve these issues on a case-by-case basis.
2. LONG-TERM: Under the shared r e s p o n s i b i l i t y model, the
A d m i n i s t r a t i o n would seek new l e g i s l a t i o n t o authorize the
President t o pay expenses f o r c e r t a i n UN assessed peace
operations from funds authorized t o be appropriated t o a new DoD
account — a DoD Contributions f o r I n t e r n a t i o n a l Peace
Operations A c t i v i t i e s (CIPA) Account.
SECRET
DECL: OADR
CLINTON LIBRARY P O O O Y
HTCP
�-2I f such l e g i s l a t i o n i s enacted, funds appropriated t o t h i s
account would pay f o r the U.S. assessments f o r Chapter V I I peace
operations and those Chapter VI operations i n v o l v i n g s i g n i f i c a n t
U.S. forces.
2a. DoD Troop C o n t r i b u t i o n s : When DoD d e t a i l s forces t o assessed
UN Chapter V I I operations, or s i g n i f i c a n t forces t o Chapter VI
operations, the U.S. s h a l l seek the normal UN reimbursement f o r
troop c o n t r i b u t o r nations (e.g., the $988 or $1279).
Such reimbursement i n excess of DoD's incremental troop
costs could be used, t o the extent provided by DoD a u t h o r i t i e s ,
to o f f s e t the USG assessment paid from the DoD CIPA.
2b. DoD Goods and Services: When DoD provides goods or services
to assessed UN peacekeeping operations, the U.S. s h a l l seek
reimbursement f o r the costs of DoD c o n t r i b u t i o n s .
(1) DoD normally s h a l l seek d i r e c t reimbursement from the UN
for the incremental costs of goods and services provided. Such
reimbursement w i l l be credited t o appropriate DoD components'
appropriations.
(2) On a case-by-case basis, DoD and the Department of State
j o i n t l y could waive some or a l l of t h i s d i r e c t reimbursement
based on considerations such as: assessment of the importance of
the operation t o U.S. p o l i t i c a l and s e c u r i t y i n t e r e s t s ; the
timeliness and a v a i l a b i l i t y of funds from the DoD a p p r o p r i a t i o n
f o r peacekeeping t o reimburse DoD components, personnel and
other resources; and the impact on the M i l i t a r y Departments.
I f the U.S. waives d i r e c t reimbursement:
— the U.S. may seek reimbursement through a UN c r e d i t t o
the U.S. peacekeeping assessment (State or DoD CIPA, as
appropriate) f o r up t o the f u l l value ( i . e . , base and
incremental costs) of DoD's c o n t r i b u t i o n ; and
— DoD component incremental costs w i l l be reimbursed from
the DoD a p p r o p r i a t i o n f o r peacekeeping.
DECL: OADR
CLINTON LIBRARY P O O O Y
HTCP
�United States Department of State
Washington, D.C.
20520
I
December 30, 1993
QZO
SECngfDECL: OADR
MEMORANDUM FOR ANTHONY LAKE
THE WHITE HOUSE
SUBJECT:
F i n a l i z i n g t h e D r a f t PDD on Peacekeeping
Policy
At your l u n c h on December 29 w i t h A c t i ng Secreta ry T a r n o f f
you suggested t h a t t h e o n l y ou t s t a n d i n g i s sue on t h eproposed
peacekeeping p o l i c y r e l a t e d t o the t i m i n g of seeking amendments
to S e c t i o n 7 o f t h e UN P a r t i c i p a t i o n A c t . The S t a t e Department
i s eager t o f i n a l i z e t h e peace keeping PDD. However, w i t h o u t t h e
b e n e f i t o f seeing how our e a r l i e r comments were i n c o r p o r a t e d
ee
i n t o t h e PDD, i t would be d i f f i c u l t f o r St ate t o agr t h a t t h e
PDD i s indeed ready t o present t o t h e Pres i d e n t and the Congress,
I n our memorandum o f December 6, we h i g h l i g h t e d s e v e r a l
o u t s t a n d i n g i s s u e s , i n c l u d i n g : amending t h e UN P a r t i c i p a t i o n
A c t ; shared r e s p o n s i b i l i t y ; Annex V I on reimbursement p o l i c y ;
and Annex V I I on terms and d e f i n i t i o n s .
S e c r e t a r y C h r i s t o p h e r b e l i e v e s t h a t any r e f e r e n c e t o
amending t h e UN P a r t i c i p a t i o n A c t s h o u l d be removed from t h e PDD
at t h i s t i m e . Even w i t h caveats, he i s concerned t h a t r a i s i n g
the i s s u e i n t h e c u r r e n t Congressional c l i m a t e w i l l foment a
debate t h a t c o u l d d e r a i l our e f f o r t s t o improve UN
peacekeeping. The q u e s t i o n would be r e v i s i t e d l a t e r , once we
had gained C o n g r e s s i o n a l support f o r our o v e r a l l p o l i c y .
The NSC forwarded t h i s week a d r a f t l e g i s l a t i v e p r o p o s a l and
accompanying e x e c u t i v e order c r e a t i n g a DoD CIPA account.
This
p r o p o s a l d i d n o t r e f l e c t the agreement between you and t h e
S e c r e t a r y a t l a s t week's lunch t h a t DoD would have l e a d
r e s p o n s i b i l i t y o n l y f o r Chapter V I I o p e r a t i o n s and those Chapter
VI o p e r a t i o n s i n which " s i g n i f i c a n t " U.S. combat u n i t s a r e
participating.
—SECRET"
PERE a 1 3 5 2 6
CLINTON LIBRARY PH0T0C0PY '
�GECRET
-2JCS i n f o r m a l l y sent t o S t a t e i n mid-December proposed
r e v i s i o n s t o Annex V I (reimbursement p o l i c y ) and Annex V I I
(terms and d e f i n i t i o n s ) .
We w i l l have S t a t e comments ready t h e
f i r s t week o f January.
The Department requests t h a t a f i n a l v e r s i o n o f t h e PDD be
p r o v i d e d f o r t h e S e c r e t a r y ' s a p p r o v a l . We w i l l p r o v i d e comments
e x p e d i t i o u s l y , and suggest t h a t a P r i n c i p a l s Committee meeting
be c a l l e d i n t h e near f u t u r e t o b r i n g t h i s document t o c l o s u r e .
Thank you v e r y much f o r your a s s i s t a n c e i n t h i s
jfe Md
a
[) E x e c u t i v e S e c r e t a r y
GECRET
LINTON LIBRARY P O O O Y
HTCP
matter.
�9327944
^
O
United States Department of State
Washington, D.C. 20520
December 6, 1993
CEGgcr~
DECL: OADR
MEMORANDUM FOR ANTHONY LAKE
THE WHITE HOUSE
SUBJECT: Moving Forward w i t h
t h e Peacekeeping PDD
We have reviewed t h e d r a f t PDD on peacekeeping i n l i g h t o f
the events o f r e c e n t weeks and have concluded t h a t i t remains a
s o l i d f o u n d a t i o n upon which t o base U.S. peacekeeping p o l i c y .
We have a l s o concluded, however, t h a t r e v i s e d s e c t i o n s are
r e q u i r e d on: ( 1 ) s h a r i n g r e s p o n s i b i l i t y , ( 2 ) peacekeeping i n
the former S o v i e t Union, ( 3 ) t h e UN F i e l d O p e r a t i o n s D i v i s i o n ,
(4) Annex V I I , ( 5 ) t h e s e c t i o n on amending t h e UN P a r t i c i p a t i o n
Act, and ( 6 ) U.S. f i n a n c i n g .
(1)
Shared
Responsibility:
The p r i m a r y purpose o f t h e shared r e s p o n s i b i l i t y model i s
t o improve peacekeeping p o l i c y f o r m u l a t i o n and i m p l e m e n t a t i o n
and t o ensure adequate f i n a n c i n g by drawing on t h e s t r e n g t h s o f
b o t h S t a t e and Defense. For t h i s p o l i c y t o work e f f e c t i v e l y ,
lead r e s p o n s i b i l i t y f o r i n d i v i d u a l o p e r a t i o n s must be assigned
t o t h e most a p p r o p r i a t e agency.
The i n t e r a g e n c y process has
l a b o r e d t o f i n d a b r i g h t l i n e t h a t would a s s i g n r e s p o n s i b i l i t y
s u c c e s s f u l l y . There appears t o be no s a t i s f a c t o r y b r i g h t l i n e
because peacekeeping o p e r a t i o n s a r e so d i v e r s e .
As c u r r e n t l y d r a f t e d , t h e PDD assigns t o DoD l e a d p o l i c y
r e s p o n s i b i l i t y f o r a l l Chapter V I I o p e r a t i o n s ( r e g a r d l e s s o f
the p a r t i c i p a t i o n o f U.S. f o r c e s ) and those Chapter V I
o p e r a t i o n s where U.S. combat u n i t s ( i . e . , i n f a n t r y , armor,
a r t i l l e r y ) are p a r t i c i p a t i n g .
(Chapter V I o p e r a t i o n s do n o t
a l l o w f o r combat a c t i v i t y except i n s t r i c t s e l f - d e f e n s e . )
A l t h o u g h t h e c u r r e n t d r a f t PDD g i v e s t h e P r e s i d e n t s l i g h t
f l e x i b i l i t y t o d e s i g n a t e a d i f f e r e n t lead agency f o r Chapter V I
PER E 0 " 3 2
..156
CLINTON LIBRARY P O O O Y
HTCP
�-2o p e r a t i o n s i f "unusual" c i r c u m s t a n c e s w a r r a n t (he would not
have f l e x i b i l i t y t o a s s i g n Chapter V I I o p e r a t i o n s t o S t a t e ) , i n
p r a c t i c e i t w i l l be d i f f i c u l t t o overcome t h e presumption t h a t
DoD s h o u l d have t h e p o l i c y lead whenever U.S. combat t r o o p s are
p r e s e n t , r e g a r d l e s s o f t h e a c t u a l r i s k o f f i g h t i n g or t h e s i z e
of t h e U.S. deployment.
The fundamental i s s u e here i s n o t agency p r e r o g a t i v e s b u t
how t o assure c l a r i t y of a u t h o r i t y and r e s p o n s i b i l i t y f o r
success i n m a t t e r s t h a t are almost always d i p l o m a t i c a l l y
complex and may have major m i l i t a r y r e q u i r e m e n t s .
Here a r e a few examples based on c u r r e n t UN o p e r a t i o n s of
how t h e PDD would a s s i g n r e s p o n s i b i l i t y :
Bosnia and C r o a t i a , b o t h Chapter V I I o p e r a t i o n s , would be
t r a n s f e r r e d t o DoD even though no U.S. combat t r o o p s are
deployed and t h e fundamental q u e s t i o n s are p o l i t i c a l and
diplomatic.
Macedonia, a Chapter V I o p e r a t i o n , would a l s o be
t r a n s f e r r e d t o DoD s i n c e a U.S. i n f a n t r y company makes up a
s m a l l p a r t o f t h e l a r g e r UN deployment.
UNIKOM, i n I r a q and Kuwait, i s another Chapter V I I
o p e r a t i o n where no U.S. t r o o p s are deployed and our
i n t e r e s t s are o v e r w h e l m i n g l y d i p l o m a t i c , y e t DoD would
assume t h e l e a d i n managing our peacekeeping p o l i c y .
Even i n Somalia, where t h e r e i s a l a r g e American combat
presence i n a Chapter V I I o p e r a t i o n , no one i s a r g u i n g t h a t
l e a d r e s p o n s i b i l i t y f o r our p o l i c y s h o u l d be t u r n e d over t o
DoD. That would happen under t h e c u r r e n t d r a f t o f t h e PDD.
The planned m i s s i o n t o H a i t i , d e s p i t e i t s l a r g e c o n t i n g e n t
of U.S. t r o o p s , would remain under S t a t e d i r e c t i o n because
the t r o o p s i n v o l v e d w i l l be non-combat t r o o p s .
These anomalies are a r e a l problem. They f o r c e DoD,
e s p e c i a l l y , i n t o areas where i t c l a i m s no e x p e r t i s e .
On
C a p i t o l H i l l , we can expect q u e s t i o n s t h a t can j e o p a r d i z e t h e
e n t i r e shared r e s p o n s i b i l i t y approach.
I f t h e r e i s no s a t i s f a c t o r y b r i g h t l i n e , t h e o n l y o p t i o n
seems t o be p r e s i d e n t i a l d i s c r e t i o n . T h i s t o o w i l l have
problems on t h e H i l l , b u t a t l e a s t i t p r o v i d e s a r a t i o n a l
response on t h e i s s u e . We t h e r e f o r e propose t h a t t h e P r e s i d e n t
have d i s c r e t i o n t o a s s i g n b o t h Chapter V I and Chapter V I I
o p e r a t i o n s as c o n d i t i o n s w a r r a n t .
CLINTON LIBRARY P O O O Y
HTCP
�-&B€RgT-3To address t h i s we propose t o m o d i f y t h e f i r s t f u l l t i c k on
page 8 of t h e P o l i c y Guidance t o d e l e t e t h e word " a l l " b e f o r e
Chapter V I I and "those" b e f o r e Chapter V I and i n s e r t t h e word
" s i g n i f i c a n t " i n f r o n t of t h e phrase U.S. combat u n i t s i n the
f i r s t sentence. We a l s o propose changing t h e second f u l l t i c k
to read:
"The P r e s i d e n t may choose t o d e s i g n a t e e i t h e r S t a t e or DOD
as l e a d agency f o r Chapter V I or Chapter V I I o p e r a t i o n s ,
i r r e s p e c t i v e of t h e presence of U.S. combat u n i t s . "
A l s o , t h e r e i s a need t o ensure t h a t r e s p o n s i b i l i t y f o r
o v e r s i g h t of f u l f i l l m e n t of U.S. o b l i g a t i o n s t o t h e UN i s
c e n t r a l i z e d i n one p l a c e , even i f , f o r example, t h e U.S.
assessed c o n t r i b u t i o n i s p a i d from two accounts. Thus on
page 3 of t h e PDD, i n t h e p e n u l t i m a t e paragraph, i n t h e l a s t
sentence (and on page 7 of t h e P o l i c y Guidance, i n
paragraph 9a, i n t h e l a s t s e n t e n c e ) , we^propose adding a f t e r
"The conduct of diplomacy," t h e p h r a s e , ^ " o v e r s i g h t
r e s p o n s i b i l i t y -regarding t h e f u l f i l l m e n t of USG o b l i g a t i o n s t o
the
UN,".
(2)
Peacekeeping
i n the Former S o v i e t Union:
The P o l i c y Guidance (page 3, s e c t i o n 7, f i r s t t i c k )
addresses i n one paragraph b o t h our p o l i c y f o r t r a d i t i o n a l
"blue-helmeted" peacekeeping i n t h e former S o v i e t Union and our
w i l l i n g n e s s t o c o n s i d e r on a case-by-case b a s i s a v o l u n t a r y
fund f o r peacekeeping o p e r a t i o n s by Russia and o t h e r r e g i o n a l
s t a t e s . These a r e , i n f a c t , s e p a r a t e i s s u e s . A l l c u r r e n t ,
t r a d i t i o n a l "blue-helmeted" o p e r a t i o n s are funded by
assessment.
We f i n d no s u p p o r t i n t h e UNSC f o r changing t h a t
p o l i c y . Our t a l k s w i t h t h e Russians about v o l u n t a r y funds have
focused on a p o s s i b l e r e g i o n a l peacekeeping f o r c e (Russia and
o t h e r former S o v i e t Union s t a t e s ) t h a t might o p e r a t e under a UN
mandate, but would not be a "blue-helmeted" UN o p e r a t i o n .
We
proposed amending t h e l a s t sentence o f t h i s t i c k t o d e l e t e t h e
f i r s t word " i n s t e a d " and t o move t h e remainder of t h e sentence
down t o become t h e t h i r d t i c k of t h e s e c t i o n .
(3)
Logistics
Division:
On page f i v e of t h e P o l i c y Guidance ( t i c k on L o g i s t i c s
D i v i s i o n ) a minor f i x i s needed t o r e f l e c t t h e f a c t t h a t t h e
t r a n s f e r of F i e l d O p e r a t i o n s D i v i s i o n t o t h e Department of
Peacekeeping O p e r a t i o n s has a l r e a d y been accomplished.
The
second sentence of t h e t i c k s h o u l d read "The U.S.
e n t h u s i a s t i c a l l y s u p p o r t s t h e t r a n s f e r of t h e F i e l d O p e r a t i o n s
D i v i s i o n (FOD) from the Department of A d m i n i s t r a t i o n
—SBGRfiT""*
CLINTON LIBRARY P O O O Y
HTCP
�GECRET-4(4)
Annex V I I - Legal A u t h o r i t y , Terms and D e f i n i t i o n s :
There has been no i n t e r - a g e n c y d i s c u s s i o n and no
i n t e r - a g e n c y agreement o f t h e terms d e f i n e d i n Annex V I I . The
Annex does not always a c c u r a t e l y r e f l e c t c u r r e n t d e f i n i t i o n s i n
use, nor i s i t always l e g a l l y c o r r e c t . We a l s o note t h a t t h e
f o o t n o t e a t t h e bottom o f page 1 o f t h e P o l i c y Guidance p o i n t s
out t h e these terms are t o guide m i l i t a r y p r a c t i t i o n e r s w i t h i n
t h e USG. Given t h a t t h i s s e c t i o n has l i m i t e d a p p l i c a t i o n
w i t h i n the USG and does not have i n t e r - a g e n c y agreement, we
propose d e l e t i n g t h e Annex. The f o o t n o t e a t t h e bottom o f page
one o f the P o l i c y Guidance should a l s o be amended t o r e f l e c t
t h i s change. A p r e f e r a b l e o p t i o n t o i n c l u d i n g t h e Annex would
be t o charge t h e Peacekeeping Core Group w i t h d e v e l o p i n g a set
of d e f i n i t i o n s which would meet DOD's needs and have
i n t e r - a g e n c y acceptance.
(5)
Amending the UN P a r t i c i p a t i o n A c t :
The P o l i c y Guidance (Page 8, paragraph 9C, f i r s t t i c k )
c o n t i n u e s t o s t a t e t h a t t h e A d m i n i s t r a t i o n w i l l seek an
amendment t o s e c t i o n 7 o f t h e U n i t e d Nations P a r t i c i p a t i o n Act
t h a t would remove l i m i t a t i o n s on use o f personnel i n Chapter V I
o p e r a t i o n s and, " t o t h e e x t e n t i t i s p o l i t i c a l l y f e a s i b l e , "
d e l e t e p r o h i b i t i o n s a g a i n s t u s i n g s e c t i o n 7 as a u t h o r i t y t o
support Chapter V I I o p e r a t i o n s .
Amending the UNPA i s p r o b a b l y p o l i t i c a l l y i n f e a s i b l e f o r
the f o r e s e e a b l e f u t u r e .
I t i s hard t o imagine Congress
removing l e g i s l a t i v e h u r d l e s f o r the use o f U.S. assets and
personnel i n peacekeeping o p e r a t i o n s . Rather than g i v e t h e
i m p r e s s i o n t h a t t h i s l e g i s l a t i v e f i x i s a t t h e t o p o f our
agenda, i t might be more a d v i s a b l e t o remove i t a l t o g e t h e r from
the PDD and r e s e r v e i t f o r another day.
I n doing so, we might
preempt what would o t h e r w i s e be c e r t a i n c o n g r e s s i o n a l
opposition.
(This i s also w i t h o u t p r e j u d i c e t o the President's
c o n s t i t u t i o n a l p r e r o g a t i v e s as Commander-in-Chief.)
(6)
U.S. Funding:
On page two o f t h e PDD t h e f i r s t sentence i n t h e t h i r d t i c k
(the one which begins "Having c o n s i d e r e d t h e f a c t o r s i n Annex
I . . . " ) should have t h e words "the U.S. and" i n s e r t e d b e f o r e the
words " o t h e r n a t i o n s " i n the phrase t h a t c u r r e n t l y reads "when
o t h e r n a t i o n s are prepared t o support the e f f o r t w i t h f o r c e s
and f u n d s ; " .
GECRET
CLINTON LIBRARY P O O O Y
HTCP
�-sgeggr-5Annex I I I should i n c l u d e a sentence r e a f f i r m i n g t h e
P r e s i d e n t ' s statement t h a t the U.S. assessment must be
lowered.
The document should a l s o r e c a l l t h a t t h e Congress has
r e c e n t l y d i r e c t e d us t o make c l e a r t o the UN t h a t our
assessment should be no more than 25 p e r c e n t .
The t h i r d t i c k of
a d d i t i o n of Japan and
S e c u r i t y C o u n c i l , and
share of peacekeeping
percent t a r g e t .
Annex I I I should a l s o note t h a t the
Germany as permanent members o f the
an agreement by China t o pay a l a r g e r
assessments, are r e q u i r e d t o meet the 25
Thank you f o r your a s s i s t a n c e i n t h i s m a t t e r .
7"
Marc Grossman
Executive Secretary
(DECL: OADR)
CLINTON LIBRARY P O O O Y
HTCP
�GECRET
Note t o : TL
Re: The S t a t u s o f PDD on Peacekeeping
Jim Reed asked t h a t I g i v e you a note on j ^ ^ s t a t u s o f t h e
a t t a c h e d package. The s t a t u s o f t h e a t t a c h e d package i s t h e same
today as i t was on 15 December. The a t t a c h e d t e x t i s agreed,
w i t h t h e e x c p e t i o n t h a t S t a t e does n o t want t o mention seeking
amendments t o t h e UNPA, as noted.
I n y o u r m a r g i n a l i a , you
d i s a g r e e w i t h S t a t e . With t h a t d e c i s i o n , t h e t e x t i s c l e a r e d .
S t a t e s t a f f had promised comments on annexes V I and V I I , b u t
have n o t p r o v i d e d any d e s p i t e our r e p e a t e d a t t e m p t s t o g e t them
t o do so.
The Implemenating l e g i s l a t i o n on Shared R e s p o n s i b i l i t y i s
o u t f o r i n t e r a g e n c y c o o r d i n a t i o n by n e x t week. I t l o o k s l i k e we
have 98% agreement on a t e x t .
;ick
DECLASSIFIED
PER E.O. 13526
CLINTON
£ P OO O Y
HTCP
�J H N y4 '34
02:41PM
DEPARTMENT OF STATE
AUTH
DRAFT.
CLEAR 1
2 .
3
H
S _
b
7
6 _
CONriPCNTIAL
I O / S i JDFOX:JDF
SESSB H2fiS
S:THE SECRETARY
P:PTARNOFF
HiMCHAPMAN
USUN/U.'DSCHEFFER fltRHOPPER
NEA/RA:RALLEN FPIP :RfiREENE
EAP/BAHALtCIN SA/FAB I JHOLZMAN
IO:DJBENNET
AF/RArSMOATS
ARA/PPC5HBAUM
EUR/PSJfiUNPERSON
IMMEDIATE
USUN N W YORK
E
ROUTINE
10 CO, GENSCi EURPO
E.O. 123Sb: DECL: O D
AR
TAGS: UN, AORC, PREL-, M R - A U
AR, B D
SUBJECT: DEMARCHE TO SECRETARY GENERAL O U.S.
N
PEACEKEEPING ASSESSMENT RATE
1. 'CONflDCNTIAL - ENTIRE TEXT.
2. S M A Y AMBASSADOR ALBRIGHT IS REQUESTED T SEEK AN
UMR:
O
APPOINTMENT UITH THE SYG O A URGENT BASIS TO EXPLAIN TO
N N
HIM U.S. PLANS FOR REDUCING THE U.S. PEACEKEEPING RATE OF
ASSESSMENT AND TO SEEK HIS SUPPORT FOR THIS EFFORT. AS
EXPLAINED BELOW; THESE PLANS INCLUDE ESTABLISHING
OBJECTIVE CRITERIA FOR MEMBERSHIP IN THE DIFFERENT GROUPS
OF THE PEACEKEEPING SCALE-, ADDING JAPAN AND G R A Y AS
EMN
PERMANENT MEMBERS OF THE SECURITY COUNCIL, AND PERSUADING
CHINA VOLUNTARILY TO ACCEPT A GREATLY INCREASED
PEACEKEEPING ASSESSMENT RATE. END S M A Y
UMR.
CHANGES IN THE PEACEKEEPING SCALE OF ASSESSMENTS
3. IN ORDER TO MEET THE PRESIDENT'S OBJECTIVE OF REDUCING
THE U.S. PEACEKEEPING RATE OF ASSESSMENT, THE SECRETARY
HAS APPROVED SEEKING THE FOLLOWING CHANGES IN THE U
N
-COttFIDCNTlAL
PER E.O.
CLINTON LIBRARY P O O O Y
HTCP
�JHN 04 ' 9 4
02:42PM
P.10
^OHI'lULW 1 IAL
PEACEKEEPING SCALE OF ASSESSMENTS:
A. USE PLACEMENT O THE LIST OF LEAST DEVELOPED COUNTRIES
N
APPROVED BY THE GENERAL ASSEMBLY AS THE CRITERION FOR
MEMBERSHIP IN GROUP D. THIS W U D PROVIDE AN OBJECTIVE
OL
STANDARD TO BE APPLIED AUTOMATICALLY OVER THE YEARS.
UNDER THIS STANDARD N W FIVE COUNTRIES W U D BE M V D
O,
OL
OE
FROM GROUP C TO GROUP D AND FIFTEEN FROM GROUP D TO GROUP
C. THE NET EFFECT ON THE U.S. RATE WOULD BE MINIMAL,
REDUCING IT FROM 31.73T PERCENT TO 31.733 PERCENT, BUT
ADVOCATING IT W U D DEMONSTRATE A "CLEAN H N S * APPROACH.
OL
AD*
— THE FIVE COUNTRIES TO MOVE FROM GROUP C TO GROUP D
ARE: LIBERIA, ZAMBIA, MADAGASCAR, ZAIRE, AND CAMBODIA•
THE FIFTEEN COUNTRIES TO MOVE FROM GROUP D TO GROUP C
ARE: ANGOLA, ANTIGUA AND BARBUDA, BELIZE, DOMINICA,
GAMBIA, GRENADA, NAMIBIA, PAPUA N W GUINEA, ST. KITTS AND
E
NEVIS-. ST. LUCIA, ST. VINCENT AND GRENADINES, SENEGAL,
SEYCHELLES, SURINAM, AND ZIMBABWE.
B. USE THE W R D PER CAPITA INCOME AVERAGE AS THE
OL
CRITERION FOR GRADUATING MEMBERS FROM GROUP C TO GROUP B.
THIS W U D BE ANOTHER OBJECTIVE STANDARD THAT COULD BE
OL
APPLIED AUTOMATICALLY OVER THE YEARS. THE UN SECRETARIAT
HAS INDICATED THAT THE W R D PER CAPITA INCOME LEVEL
OL
AVERAGE FOR THE CURRENT SCALE'S BASE PERIOD OF l 380-a J IS
DOLS. a,bOO. APPLYING THE STANDARD N W W U D MOVE
O
OL
TWENTY-NINE COUNTRIES UP TO GROUP B. IN ADDITION TO THE
CHANGE ABOVE, THIS W U D REDUCE THE U.S. RATE TO
OL
PERCENT.
,
,
THE TWENTY-NINE COUNTRIES - A D THEIR AVERAGE PER CAPITA
CN
INCOMES} TO M V F O G O P C TO GROUP 8 CURRENTLY ARE S
OE RM RU
(3ATAR - D L . 17,4^5}, UNITED ARAB EMIRATES {DOLS• 17,470},
COS
KUWAIT - D L . 15,S0H>, BRUNEI DARUSSALAM {DOLS. 13,lHb},
COS
SAUDI ARABIA {DOLS. 6,526}, BAHAMAS {DOLS. 7,SS2}, LIBYA
{DOLS. b^SS^}, SINGAPORE {DOLS. b ^ W ,
BAHRAIN {DOLS.
b,lfiQ}, ISRAEL {DOLS. b ^ ? ! } , SLOVENIA {DOLS. 4,155}, O A
MN
{DOLS. 4,7^1}, TRINIDAD AND TOBAGO {DOLS. 4,b£4}, BARBADOS
{DOLS. H,3fcb}, LATVIA, {DOLS. 4,155}, MALTA {DOLS. 4,077},
CYPRUS {DOLS• 3,114}, KAZAKHSTAN {DOLS. 3,610}, ESTONIA
{DOLS. 3,610}, GREECE {DOLS. 3,766}, LITHUANIA {DOLS.
3,471}, GEORGIA {DOLS• 3,15b}, CROATIA {DOLS• 3,153},
VENEZUELA {DOLS. 3,082}, ARMENIA {DOLS. 3,055}, REPUBLIC
OF MOLDOVA {DOLS. 5,151}, AZERBAIJAN {DOLS. 2,bib}, G B N
AO
{DOLS • 2,bl0}, AND PORTUGAL {DOLS. 2,b06}. THE FSU STATES
WOULD CHALLENGE THE STATISTICS PLACING THEM ON THIS LIST.
1
CLINTON LIBf¥<f#^IOT0C0PY
�J H N IJ4 ' 9 4
idc = 45Pr'l
•CONriDCNTIAL
C. ADD JAPAN AND GERMANY AS PERMANENT MEMBERS OF THE
SECURITY COUNCIL. FOLLOWING THE T O CHANGES ABOVE. THIS
W
W U D REDUCE THE U.S. RATE TO E6.0S3 PERCENT.
OL
D. PERSUADE CHINA TO ACCEPT VOLUNTARILY AN INCREASE IN
ITS PEACEKEEPING ASSESSMENT RATE WITH THE BENEFIT TO BE
SHARED PROPORTIONALLY A O G OTHER PERMANENT MEMBERS OF THE
MN
SECURITY COUNCIL. A MAJOR ANOMALY IN THE CURRENT SCALE IS
THE L W ASSESSMENT RATE OF CHINA J 0-77 PERCENT FOR THE
O
REGULAR BUDGET AND 0.176 PERCENT FOR PEACEKEEPING. AN IMF
STUDY THIS SUMMER, BASED O PURCHASING POWER PARITIES,
N
RANKED THE CHINESE ECONOMY AS THIRD LARGEST IN THE W R D
OL
BEHIND THE UNITED STATES AND JAPAN. EVEN BY U STATISTICS
N
{BASED O NATIONAL INCOME LEVELS}, THE CHINESE E O O Y IS
N
CNM
THE EIGHTH LARGEST IN THE WORLD WITH AN AVERAGE NATIONAL
INCOME OVER THE 1160-81 BASE PERIOD REPRESENTING £.631
PERCENT OF THAT OF ALL UN MEMBERS. THE L W CHINESE
O
ASSESSMENT RATES REFLECT AN ALLOWANCE IN THE UN FORMULA
FOR L W PER CAPITA INCOME {DOLS. 333 FOR CHINA>. IN VIEW
O
OF CHINA'S ROLE AS A MEMBER OF THE PERM FIVE, ITS
INCREASING INTEREST IN UN PEACEKEEPING ACTIVITIES, AND ITS
CURRENTLY BOOMING ECONOMY, IT MIGHT BE POSSIBLE TO
PERSUADE CHINA TO ACCEPT VOLUNTARILY A SIGNIFICANT
INCREASE IN ITS PEACEKEEPING RATE OF ASSESSMENT AND
TRANSFER THE BENEFIT PROPORTIONATELY A O G THE PERMANENT
MN
MEMBERS OF THE SECURITY COUNCIL. WERE THIS TO BE DONE,
FOR EXAMPLE, O THE BASIS OF CHINA FOREGOING THE BENEFIT
N
OF THE L W PER CAPITA INCOME ALLOWANCE, CHINA'S
O
PEACEKEEPING ASSESSMENT RATE W U D INCREASE TO 3.164
OL
PERCENT AND THE U.S. RATE W U D DECREASE TO 27.116
OL
PERCENT* ASSUMING THE CHANGES ABOVE ALSO' ARE MADE.
~ THIS ACTION BY CHINA W U D REQUIRE CAREFUL NEGOTIATIONS
OL
WITH CHINA AS A PART OF THE MULTILATERAL NEGOTIATIONS TO
ACHIEVE THE OTHER CHANGES SOUGHT IN THE PEACEKEEPING
SCALE. THE TIMING OF SUCH AN AGREEMENT WITH CHINA W U D
OL
BE INDEPENDENT OF THE OTHER CHANGES IN THE SCALE. W R
EE
SUCH AN AGREEMENT TO BE REACHED WITH CHINA BEFORE THE
OTHER CHANGES ARE NEGOTIATED, THE U.S. RATE INITIALLY
WOULD BE REDUCED T 30.20S PERCENT AND CHINA'S N W RATE
O
E
INITIALLY W U D INCREASE TO 3.b0b PERCENT. ASSUMING THE
OL
ULTIMATE COMPLETION OF THE OTHER CHANGES, THE END RESULT
W U D BE THE SAME FOR CHINA AND THE U.S., I.E., 3.16H
OL
PERCENT FOR CHINA AND 27.116 PERCENT FOR THE U.S.
STRATEGY
CLINTON LIBftWWOTOCOPY
p_ j j
�JHN 04 '94 02:47PM
H. WHILE W HAVE T 8E READY T FORCE A VOTE O THE
E
O
O
N
MATTER, IT W U D SE BEST T ACHIEVE APPROVAL BY CONSENSUS
OL
O
FOR THE NECESSARY CHANGES IN THE PEACEKEEPING SCALE OF
ASSESSMENTS• DOING SO WILL REQUIRE THE RIGHT COMBINATION
OF DIPLOMATIC APPEAL T THE INTERESTS OF THE AFFECTED
O
MEMBERS A D A CLEAR DEMONSTRATION OF THE SERIOUSNESS OF
N
U.S. INTENT. DEPARTMENT ENVISAGES THE FOLLOWING FOUR-PART
STRATEGY:
A. AMBASSADOR ALBRIGHT W U D MEET WITH THE SYG T EXPLAIN
OL
O
THE OVERALL CHANGES W SEEK A D REQUEST HIS SUPPORT FOR
E
N
THE EFFORT. THE SYG HAS INDICATED HIS INTENTION T SEND
O
AN EMISSARY TO SEEK AGREEMENT FROM THE TEN WEALTHIEST
MEMBERS OF GROUP C TO JOIN GROUP B. THIS IS ACCEPTABLE AS
A FIRST STEP, LEAVING OPEN THE POSSIBILITY OF SUBSEQUENTLY
SENDING THE SAME EMISSARY O OTHERS TO EXTEND THIS LIST TO
R
ALL OF THOSE TWENTY-NINE MEMBERS OF GROUP C WITH PER
CAPITA INCOME LEVELS ABOVE THE WORLD AVERAGE OF DOLS.
2,b00 THAT SHOULD BE ASKED TO JOIN GROUP B {RECOGNIZING
THAT AT LEAST SOME FSU STATES W U D CHALLENGE THEIR PER
OL
CAPITA INCOME LEVEL RANKING} A D TO INCLUDE ALSO THE
N
FIFTEEN MEMBERS OF GROUP D THAT W U D BE ASKED T JOIN
OL
O
GROUP C.
B. SUBJECT TO W A CAN BE W R E , OUT WITH THE SYG,
HT
OKD
PARALLEL DEMARCHES W U D BE .SENT TO THE OTHER PERM FOUR,
OL
THE EC, A D THE OTHER AFFECTED COUNTRIES. THE DEMARCHE T
N
O
CHINA W U D BUILD UPON THEIR INCREASED INTEREST IN U
OL
N
PEACEKEEPING OPERATIONS. THE DEMARCHES T JAPAN A D
O
N
GERMANY W U D RELATE THIS EFFORT TO THEIR INTEREST IN
OL
BECOMING PERMANENT MEMBERS OF"THE SECURITY COUNCIL.
C. BASED O THE SUPPORT OF THE SYG A D THE RESULTS OF THE
N
N
DEMARCHES INDICATED ABOVE, W W U D SEEK APPROVAL FOR THE
E OL
CHANGES IN THE SCALE, EXCEPT FOR THOSE RELATED T JAPAN
O
A D GERMANY BECOMING PERMANENT MEMBERS OF THE SECURITY
N
COUNCIL, AT A EXPECTED RESUMED SESSION OF THE GENERAL
N
ASSEMBLY SCHEDULED NEXT SPRING T ADDRESS THE
O
ADMINISTRATIVE A D BUDGETARY ASPECTS OF THE FINANCING OF
N
UN PEACEKEEPING OPERATIONS, INCLUDING THE ISSUE OF
ANOMALIES IN THE PEACEKEEPING SCALE.
D. TAKING ADVANTAGE OF JAPAN A D GERMANY BECOMING
N
PERMANENT MEMBERS OF THE SECURITY COUNCIL W U D FOLLOW AS
OL
PART OF O R STRATEGY FOR SECURITY COUNCIL REFORM.
U
TALKING POINTS FOR THE SYG
CLINTON LIB^WWOTOCOPY
p.
�JAN 04 "34 02:50PM
-€0NFII>Eaill4L
5. INITIATING THE STRATEGY INDICATED A O E . THE FOLLOWING
BVTALKING POINTS ARE SUGGESTED FOR THE MEETING O A B S A O
F MASDR
ALBRIGHT A D ASSISTANT SECRETARY BENNET WITH THE SYG:
N
A. W GREATLY APPRECIATE T A - W E IN WASHINGTON F R
E
HT, HN
O
CONSULTATIONS WITH MEMBERS OF CONGRESS-, YOU INDICATED A
N
INTENTION T SEND A EMISSARY TO TEN OF THE WEALTHIEST
O
N
COUNTRIES IN G O P C OF THE PEACEKEEPING SCALE T URGE
RU
O
THEIR AGREEMENT T MOVING UP T GROUP 6»
O
O
— THIS DEMONSTRATES Y U UNDERSTANDING FOR PRESIDENT
OR
CLINTON'S CONCERN ABOUT THE NEED TO REDUCE THE U.S. RATE
OF ASSESSMENT FOR U PEACEKEEPING OPERATIONS.
N
8. THE PRESIDENT INDICATED IN HIS SEPTEMBER 57 SPEECH T
O
THE GENERAL ASSEMBLY THAT HE IS COMMITTED T THE UNITED
O
STATES BEING CURRENT IN ITS PEACEKEEPING ASSESSMENTS. HE
IS WORKING WITH CONGRESS T W R THAT END.
OAD
C. HE ALSO M D THE POINT IN HIS SPEECH THAT REDUCING THE
AE
U.S. PEACEKEEPING ASSESSMENT RATE TO REFLECT THE INCREASED
CAPACITY TO PAY OF OTHER NATIONS WILL MAKE IT EASIER F R
O
HIM "TO M K SURE W PAY IN A TIMELY A D FULL FASHION."
AE
E
N
— THIS IS ESPECIALLY TRUE IN VIEW OF THE VAST RANGE OF
OTHER U.S. ACTIVITIES RELATED TO AND IN SUPPORT OF U
N
PEACEKEEPING OPERATIONS FOR WHICH THERE IS N ACCOUNTING
O
IN U BUDGETS.
N
D. THE GENERAL ASSEMBLY RECOGNIZED IN 1172 THAT IT IS
DAMAGING FOR THE REGULAR BUDGET EXPENSES OF THE
ORGANIZATION T BE OVERLY DEPENDENT O CONTRIBUTIONS F O
O
N
RM
ONE M M E STATE. THIS IS EVEN M R TRUE FOR THE
EBR
OE
ORGANIZATION'S PEACEKEEPING EXPENSES.
E• W HAVE DEVELOPED A OVERALL PLAN FOR REDUCING THE
E
N
U.S. RATE OF PEACEKEEPING ASSESSMENTS SIGNIFICANTLY T W R
OAD
THE SB PERCENT LEVEL. Y U ASSISTANCE IN IMPLEMENTING
OR
THIS STRATEGY W U D BE OF GREAT IMPORTANCE T US. W
OL
O
E
BELIEVE SUCCESS IN THIS EFFORT W U D GREATLY STRENGTHEN
OL
THE UN'S CAPACITY T FULFILL ITS EXPANDING PEACEKEEPING
O
RESPONSIBILITIES.
BEFORE EXTENSIVELY DISCUSSING O R PLANS WITH OTHERS, W
U
E
W N TO G OVER T E IN DETAIL WITH YOU. Y U VIEWS A O T
AT
O
HM
OR
BU
O R PLANS A D ACTIONS THAT YOU W U D BE WILLING T TAKE IN
U
N
OL
O
SUPPORT OF T E WILL INFLUENCE H W W APPROACH OTHERS.
HM
O
E
p.
�TAN 04 ' 9 4
02:52PM
•£ 0 N1" ID C N T-IA L
F. THIS STRATEGY CALLS FOR ESTABLISHING OBJECTIVE
CRITERIA TO DETERMINE THE MEMBERSHIP OF THE DIFFERENT
GROUPS IN THE PEACEKEEPING SCALE OF ASSESSMENTS, F R
O
ADDING JAPAN AND GERMANY AS PERMANENT MEMBERS OF THE
SECURITY COUNCIL, AND FOR REACHING AGREEMENT WITH CHINA
VOLUNTARILY TO ACCEPT A M C GREATER PEACEKEEPING
UH
ASSESSMENT RATE IN KEEPING WITH ITS GROWING ROLE IN THE UN
AND IN W R D AFFAIRS.
OL
G. W SUGGEST THE FOLLOWING CRITERIA FOR THE DIFFERENT
E
GROUPS IN THE PEACEKEEPING SCALE:
— GROUP A: THE PERMANENT MEMBERS OF THE SECURITY
COUNCIL, AS ALREADY DEFINED.
— GROUP B: MEMBERS WITH PER CAPITA INCOMES ABOVE THE
WORLD AVERAGE, WHICH CURRENTLY IS DOLS. 2,t00.
— GROUP C: DEVELOPING COUNTRIES WITH PER CAPITA INCOMES
BELOW DOLS. S,bOO.
— GROUP D: THOSE MEMBERS ON THE LIST OF LEAST DEVELOPED
COUNTRIES AS APPROVED BY THE GENERAL ASSEMBLY.
H. USING SUCH OBJECTIVE CRITERIA FOR DETERMINING THE
MEMBERSHIP OF THE DIFFERENT GROUPS W U D ALLOW F R
OL
O
AUTOMATIC ADJUSTMENTS AS THE ECONOMIC SITUATIONS OF
MEMBERS CHANGE O E TIME. THIS W U D OVERCOME THE
VR
OL
RECURRENT AND INCREASINGLY DIFFICULT POLITICAL PROBLEMS IN
THE GENERAL ASSEMBLY W E N W PEACEKEEPING SCALES MUST BE
HN E
APPROVED. THIS ALSO W U D MAKE THE PEACEKEEPING SCALE
OL
MUCH M R TRANSPARENT AND EASIER TO EXPLAIN TO DOMESTIC
OE
LEGISLATIVE BODIES THAT HAVE TO APPROPRIATE FUNDS F R
O
PEACEKEEPING ASSESSMENTS•
I.
W EXPECT THAT ADMINISTRATIVE AND BUDGETARY ASPECTS OF
E
THE FINANCING OF UN PEACEKEEPING OPERATIONS, INCLUDING
ANOMALIES IN THE PEACEKEEPING SCALE OF ASSESSMENTS, WILL
BE ADDRESSED AT A RESUMED SESSION OF THE GENERAL ASSEMBLY
NEXT SPRING. IT IS OUR HOPE THAT THIS SESSION OF THE
GENERAL ASSEMBLY W U D TAKE ACTION O ESTABLISHING
OL
N
OBJECTIVE CRITERIA FOR THE DIFFERENT GROUPS IN THE
PEACEKEEPING SCALE. CLEARLY THIS WILL REflUIRE EXTENSIVE
CONSULTATIONS WITH AFFECTED COUNTRIES IN ADVANCE•
Y U ASSISTANCE T W R THIS END W U D BE M S
OR
OAD
OL
OT
IMPORTANT. W NOTE THAT YOU HAVE INDICATED A INTENTION
E
N
CLINTON LIB^mOTOCOPY
P.14
�JHN 34 '94 02:34PM
CONriDCNTIAL
TO SEND A EMISSARY T TEN COUNTRIES IN GROUP C T URGE
N
O
O
THEM T M V U T G O P B. HOPEFULLY THIS C N BE
O OE P O RU
A
UNDERTAKEN S O SINCE THE U.S. CONGRESS WILL BE MEETING IN
ON
LATE JANUARY O LEGISLATION THAT M Y CAP O R PEACEKEEPING
N
A
U
ASSESSMENT A 2S PERCENT. IT W U D BE DESIRABLE T HAVE
T
OL
O
ACTIVE DIPLOMACY IN PLAY BEFORE THE MEETING OF THE
CONGRESS. W LEAVE OPEN THE POSSIBILITY OF SUBSEQUENTLY
E
SENDING THE SAME EMISSARY O OTHERS T ALL OF THOSE
R
O
COUNTRIES IN G O P C THAT SHOULD BE ASKED T JOIN G O P B
RU
O
RU
A D ALSO T THE FIFTEEN MEMBERS OF GROUP D THAT W BELIEVE
N
O
E
SHOULD BE ASKED T JOIN GROUP C.
O
— W M U D PLAN T SEND PARALLEL DEMARCHES T THE SAME
E OL
O
O
COUNTRIES. F R THIS PURPOSE, W HOPE THAT W C N MAINTAIN
O
E
E A
CLOSE COMMUNICATION WITH Y U AS O R JOINT EFFORTS PROGRESS•
O
U
J • IN REGARD T A INCREASED PEACEKEEPING ASSESSMENT RATE
O N
FOR CHINA, W RECOGNIZE THAT W A W HAVE IN M N WILL
E
HT E
ID
REQUIRE A SIGNIFICANT COMMITMENT F O THEM. HOWEVER, W
RM
E
W U D LIKE T BE ABLE T D A O Y U SUPPORT, A
OL
O
O RW N OR
S
APPROPRIATE, IN O R EFFORTS.
U
K• IN REGARD T ADDING JAPAN A D GERMANY AS PERMANENT
O
N
MEMBERS OF THE SECURITY COUNCIL, THIS IS A MATTER THAT
WILL PROCEED AT ITS O N PACE RELATED T THE ISSUE OF
W
O
OVERALL REFORM O THE SECURITY .COUNCIL.
F
M W GREATLY APPRECIATE THAT Y U WELL UNDERSTAND H W
. E
O
O
SIGNIFICANT THE ISSUE OF PEACEKEEPING ASSESSMENTS IS F R
O
THE UNITED STATES A D F R THE UNITED NATIONS. W L O
N O
E OK
FORWARD T WORKING CLOSELY WITH Y U IN A C M O EFFORT T
O
O
OMN
O
ADDRESS THIS CRITICAL ISSUE.
NEXT STEPS
b. INFO ADDRESSEES ARE REQUESTED T AVOID RAISING THE
O
ISSUE DIRECTLY WITH THEIR HOST GOVERNMENTS UNTIL
INSTRUCTED. BEFORE TAKING FURTHER STEPS, THE DEPARTMENT
WANTS T HAVE A CHANCE T ANALYZE THE RESULTS O
O
O
F
AMBASSADOR ALBRIGHT'S MEETING WITH THE SYG. B C G O N
AKRUD
COMMENTS O INFORMATION O HOST GOVERNMENT VIEWS REGARDING
R
N
THIS ISSUE F O INFO ADDRESSEES W U D BE GREATLY
RM
OL
APPRECIATED {PLEASE SLUG F R I0/S>.
O
V
V
CLINTON LIBfWHWOCOPY
P.15
�JHN
34 "34
02:2bPM
P.2
ACTION MEMORANDUM
S/S
TO:
The Secretary
THROUGH:
P - Mr. Tarnoff
FROM:
10 - Douglas J. Bennet
SUBJECT: Reducing the U.S. Rate of Assessment for UN
Peacekeeping Operations
Thisraeraorandumhas been coordinated with USUN in New
York. Ambassador Albright concurs.
ISSUES FOR DECISION:
(1) Whether to approve a strategy to meet the President's
objective of reducing the U.S. rate of assessment for UN
peacekeeping operations to 25 percent; and
(2) Whether to authorize an instruction cable to USUN to seek
the support of the U Secretary General.
N
ESSENTIAL FACTORS
The President and members of Congress have called for
reducing the U.S. rate of assessment for UN peacekeeping from
31.739 percent to the 25 percent level we are assessed for the
UN regular budget: Non-binding language in the Conference
Report on the FY 1994 Commerce, Justice, and State
appropriation b i l l calls for informing the UN that "the United
States will not accept an assessment of more than 25 percent of
peacekeeping costs...." The Senate may attach more binding
legislation to the State Department Authorization B i l l which i t
i s considering in January.
The Secretary General i s sympathetic to our desire to
reduce our rate of assessment and has indicated he will send an
emissary to urge certain member states with high per capita
incomes to increase their assessment rates. Even with his
help, reducing our rate to 25 percent w i l l be difficult. In
order to get some real savings now, we may have to settle for
paying more than 25 percent, but s t i l l far less than our
current 31.7 percent, and achieving the 25 percent level in the
future.
•€OHFIDEHT*Mr»
CLINTON LIBRARY P O O O Y
HTCP
DECLASSIFIED
�i m 94 '94 02:23Pr"l
P..
-2The UN peacekeeping scale of assessments i s based on the
scale for the UN regular budget, which reflects primarily
capacity to pay as indicated by national income s t a t i s t i c s .
( I t i s important to this discussion to know that the U.S.
assessment rate for the UN regular budget would be 27,5 percent
based on national income s t a t i s t i c s , but i t i s capped at 25
percent because of a c e i l i n g established by the General
Assembly in 1972.) The peacekeeping scale formula was
developed in 1973 to ensure at l e a s t token contributions from
developing countries in order to maintain the principle of
collective financial r e s p o n s i b i l i t y for UN peacekeeping, UN
members are divided into four groups:
Group D: currently f i f t y - f o u r very poor countries
assessed for peacekeeping at ten percent of their
regular budget rates of assessment. In total. Group D
pays 0.054 percent of peacekeeping assessments, a
discount of 0.489 percentage points.
Group C: currently ninety-seven more advanced
"developing countries" (including anomalies such as
Greece, Portugal, Singapore, I s r a e l , Brunei
Darussalam, Saudi Arabia, United Arab Emirates, and
Qatar) assessed at twenty percent of their regular
assessment rates. In t o t a l , Group C pays 2.752
percent, a discount of 11,010 percentage points.
Group B: currently twenty-two developed countries
assessed at theiiT f u l l regular assessment rates. In
total, Group B pays 41.986 percent.
Group A: the five Permanent Members of the Security
Council. Reflecting t h e i r added responsibilities for
peacekeeping, the Perm Five gay at their regular
assessment rates and absorb proportionally the
discounts granted to Groups C and D. In t o t a l . Group
A pays 55.226 percent.
The numbers above w i l l change marginally in 1994 as a
result of adding to the scale the s i x new members (Caech
Republic, Slovak Republic, the former Yugoslav Republic of
Macedonia, Eritrea, Monaco, and Andorra) that have joined the
UN this year. Also, i t should be noted that major changes are
expected in the scale for 1995-97 because much lower, more
accurate economic figures w i l l be used for the FSU states and
others in Eastern Europe. Nonetheless, the overall composition
of the various peacekeeping scale groups s t i l l w i l l not r e f l e c t
global economic r e a l i t i e s .
qOMPTPENTIAL
CLINTON LIBRARY P O O O Y
HTCP
�J H N 04
'94
l
02:30F t1
p. 4
-3A resumed session of the General Assembly in early 1994 i s
expected to address changes in membership of the different
groups for the special peacekeeping scale of assessments.
Ukraine, Belarus, the Czech Republic, and the Slovak Republic,
in particular, sought reassignment from Group B to Group C at
the just completed regular session of the General Assembly.
Action on their requests was deferred for consideration in the
context of an overall reworking of the Group memberships. In
this regard, a Working Group previously established by the
General Assembly to consider anomalies in the Group membership
was continued. The Working Group, whose objective includes the
establishment of standard c r i t e r i a to ensure that placement in
the various peacekeeping scale Groups i s applied in a
consistent manner, i s expected to submit a report to the
General Assembly in 1994. The resumed session of the General
Assembly to address changes in the peacekeeping scale, combined
with the continued mandate of the Working Group on anomalies i n
the scale, provides us with an opportunity to pursue the
changes we seek i n the peacekeeping scale.
Options for Chanoea in the Scale
Option Ai The most simple and direct change would be to
eliminate the special peacekeeping scale and base peacekeeping
assessments on the regular budget scale. The greatest
advantage of this approach i s that i t would meet d i r e c t l y and
f u l l y our stated goal of reducing our peacekeeping assessment
to 25 percent. Gaining General Assembly approval of this
option i s extremely unlikely since i t would require 151 members
to pay multiples of five and ten of what they now pay for
peacekeeping operations. We made an approach along these lines
to the Perm Five i n 1992 and received no support. We may wish
to consider this option as a fall-back in case the incremental
approach (Option C below), which could produce immediate,
tangible gains f a i l s .
Option B: Ah alternative to eliminating the special
peacekeeping scale would be to require a l l members of Group C
to join members of Group B in paying at their regular budget
rates of assessment; existing discounts would be allowed only
for members of Group D. This would reduce the U.S.
peacekeeping rate of assessment to 25.411 percent. However,
the fact that ninety-seven members, more than a majority in the
General Assembly, would be forced to pay amounts five times
greater than they currently do makes General Assembly approval
(two-thirds required for approval of an "important question")
of this change unlikely.
CLINTON LIBRARY P O O O Y
HTCP
�JHN 04 '34
02:32PM
p_
5
•GQNFIDENTIM-—
OPtlP-Jl-.C: Working w i t h i n the parameters ot the current
peacekeeping scale, we would seek a series of ad-hoc
adjustments. The U.S. assessment r a t e could be reduced to 27
percent by c o r r e c t i n g anomalies i n the scale, adding Japan and
Germany as Permanent Members of the Security Council, and
persuading China to accept an increased share of peacekeeping
assessments on a v o l u n t a r y basis.
1. Use placement on the l i s t of least developed CQUntxifiS
approved hv the General Assembly as the c r i t e r i o n f o r
membership i n Group D. This would provide an o b j e c t i v e
standard t o be applied a u t o m a t i c a l l y over the years. Under
t h i s standard now, f i v e c o u n t r i e s would be moved from Group
C to Group D and f i f t e e n from Group D to Group C ( l i s t at
Tab 2 ) . The net e f f e c t on the U.S. rate would be minimal,
reducing i t from 31.739 percent t o 31.733 percent, but
advocating i t would demonstrate a "clean hands" approach.
2. Use the world per c a p i t a income average as the
c r i t e r i o n f o r oraduatina membern from GEPUP C t o B. This
would be another o b j e c t i v e standard that could be applied
automatically over the years. For the current scale's base
period of 1980-89, the UN S e c r e t a r i a t has indicated t h a t
$2,600 approximates the world average per capita income
l e v e l . Applying the standard now would move twenty-nine
countries up t o Group B ( l i s t at Tab 2 — note t h a t some
of the FSU states l i s t e d i n s i s t they have lower per c a p i t a
income l e v e l s ) , i n a d d i t i o n t o the change above, t h i s
would reduce the U.S. r a t e t o 29.446 percent.
3. Add Japan and Germany as Permanent MemheEB Of tha
Security Council. Following the two changes above, t h i s
would reduce the U.S. r a t e t o 28.023 percent.
4. Persuade china to accept voluntarily an increpge in i t s
peacekeeping assessment ™ t « w i t h the_benafit ShflEgQ
p r o p o r t i o n a l l y among other permanent memhfiES Of the
Security Council. A major anomaly i n the current scale i s
the low assessment r a t e of China: 0.77 percent f o r the
regular budget and 0.978 percent f o r peacekeeping. An IMF
study t h i s summer, based on purchasing power p a r i t i e s ,
ranked the Chinese economy as t h i r d largest i n the world
behind the United States and Japan, Even by UN s t a t i s t i c s
(based on n a t i o n a l income l e v e l s ) , the Chinese economy i s
the eighth l a r g e s t i n the world w i t h an average n a t i o n a l
income over the 1980-89 base period representing 2.839
percent of that of a l l UN members. The low Chinese
assessment rates r e f l e c t an allowance i n the UN formula f o r
low per c a p i t a income ($333 f o r China), i n view of China s
role as a member of the Perm Five, i t s increasing i n t e r e s t
CLINTON LIBRARY P O O O Y
HTCP
�JHN
(44 '94
02: 3RPf'l
P. 6
-5in UN peacekeeping a c t i v i t i e s , and i t s currently booming
economy, i t might be possible to persuade China to accept
voluntarily a significant increase in i t s peacekeeping rate
of assessment with the benefit to be shared among the other
permanent members of the Security Council. Were this to be
done, for example by China foregoing the benefit of the low
per capita income allowance, China's peacekeeping
assessment rate would increase to 3.184 percent and the
U.S. rate would decrease to 27.118 percent/ assuming the
changes above also are made. (Were China to accept such an
increase before the other changes are negotiated/ the U.S.
rate would decrease i n i t i a l l y to 30.202 percent and China's
rate would increase i n i t i a l l y to 3.606 percent.)
P o l i t i c a l Estimate
o The UN Secretary General, having heard President
Clinton's speech before the UN General Assembly/ i s well aware
of our urgent concern to reduce our peacekeeping assessment
rate. He has indicated that, in principle, he supports a
reduction in our peacekeeping rate to 25 percent.
o Others would benefit in addition to the U.S.
Eliminating the special peacekeeping scale or requiring a l l
members of Group C to join Group B would benefit a l l other
permanent members of the Security Council in the same
proportion that the U.S. would benefit. Except for China, of
course, the same would be true also for the multi-step Option C
indicated above.
o In 1992 the U.S. consulted the other permanent members
of the Security Council about the p o s s i b i l i t y of establishing a
25 percent c e i l i n g on peacekeeping assessments. However, we
found no support for this at that time. We should test t h i s
again, but, as before, we expect to receive a negative reaction
because of the clear sense by others that the strategy i s
unlikely to work.
o In pursuing any action on the peacekeeping scale, we can
expect to confront a growing sense in the General Assembly that
the special responsibility and privileges of permanent members
of the Security Council for peacekeeping issues means they
should bear an even larger share of financial obligations than
they do today. Thus, there i s a danger that this issue could
reignite past North-South divisions.
o Changing the peacekeeping scale relates to the issue of
Security Council expansion. Attempting to eliminate the
peacekeeping assessment differential could strengthen claims
for a more representative Security Council.
• SQMnpEHTIAIi
CLINTON LIBRARY P O O O Y
HTCP
�P.'
CONFIDENTIAL
-6o This i s an issue that should be raised i n i t i a l l y in
c a p i t a l s . Delegates in New York w i l l resist any plan that puts
them in the position of arguing back home for higher
assessments.
Strategy
Eliminating the special peacekeeping scale at this stage
(Option A) would have no chance of success since i t would
require 151 members to pay multiples of five and ten of what
they now pay for peacekeeping. Actively pursuing t h i s option
now could i s o l a t e the U.S. from other permanent members of the
Security Council and would so polarize the issue that the
success of other options would be seriously threatened.
Seeking to require a l l of Group C to join Group B (Option B)
would have much the same effect. The only r e a l i s t i c means for
making s i g n i f i c a n t progress on the issue at this stage i s the
multi-step approach i n Option C above. Option C would result
in our paying for peacekeeping approximately what we would pay
for the UN regular budget were our assessment for the l a t t e r
not a r t i f i c i a l l y capped at 25 percent. The 27 percent level
might be viewed by other countries as appropriate in light of
our veto power i n the Security Council,
While we have to be ready to force a vote on the matter, i t
would be best to achieve approval by consensus for the
necessary changes i n the scale of peacekeeping assessments.
Doing so w i l l require the. right combination of diplomatic
appeal to the interests of the affected members and a clear
demonstration of the seriousness of the U.S. intent. A
four-step strategy toward achieving the necessary changes i n
the peacekeeping scale i s suggested:
1. Ambassador Albright would approach the Secretary
General to explain the overall changes we seek and request
his support. He has indicated his intention to send an
emissary to seek agreement to join Group B from the ten
members of Group C with the highest per capita income
levels. We should accept that as a f i r s t step, leaving
open the p o s s i b i l i t y of subsequently sending the same
emissary or others to a l l of those members i n Group C with
per capita income levels above the world average of $2,600
that should be asked to join Group B (possibly excluding
some FSU states that can claim lower per capita income
levels) as well as the fifteen members of Group D that
should be asked to join Group C.
2. Subject to what can be worked out with the Secretary
General, we would send p a r a l l e l demarches to the other Perm
4, the EC, and the other affected countries. The demarche
CLINTON LtTOTPHOTOCOPY
�JHN 04 "?4 02:39PM
P.S
-7to China would seek to build upon their increasing interest
in U peacekeeping operations. The demarches to Japan and
N
Germany would relate this effort to their interest in
becoming Permanent Members of the Security Council.
3. Based on the support of the Secretary General and the
results of the demarches indicated above, we would seek
approval for the changes i n the scale, except for those
related to Japan and Germany becoming Permanent Members of
the Security Council, at the expected resumed session of
the General Assembly scheduled t h i s spring (assuming
acquiescence i n c a p i t a l s , there should be no objections).
4. Taking advantage of Japan and Germany becoming
Permanent Members of the Security Council would follow as
part of our strategy for Security Council reform.
5. Begin briefings on Capitol H i l l to show that we have a
strategy in process and develop r e a l i s t i c expectations as
to what can be achieved.
BE
mens:
1.
That you approve the strategy suggested above.
Approve.
.Disapprove.
2. That you authorize the attached telegram (Tab 1) to
USUN instructing Ambassador Albright to join me i n seeking the
support of the Secretary General for the changes in the scale
of assessments for UN peacekeeping operations.
Approve.
.Disapprove,
Attachments:
Tab 1 - Draft telegram to USUN.
Tab 2 - Countries moving between Groups C and D.
Tab 3 - Group C countries to graduate to Group B.
CONFIDCHTfAb.
CLINTON LIBRARY P O O O Y
HTCP
�
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
<strong>Declassified Documents</strong>
Description
An account of the resource
This collection of declassified records focus primarily on foreign affairs. These records were declassified and made available to the public through a <a href="http://clinton.presidentiallibraries.us/mandatory-declassification-review-requests">Mandatory Declassification Review</a> request.
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records
Publisher
An entity responsible for making the resource available
Clinton Presidential Library & Museum
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Declassified Documents concerning PDD-25, Peacekeeping
Identifier
An unambiguous reference to the resource within a given context
2013-0464-M
Description
An account of the resource
This Mandatory Declassification Review contains material on peacekeeping from 1993 and what would later become PDD-25 (Peacekeeping policy). Material includes a note from NSC Global Affairs director Richard Clarke to National Security Advisor Anthony Lake on the status of the peacekeeping PDD.
Creator
An entity primarily responsible for making the resource
National Security Council
Records Management Office
Format
The file format, physical medium, or dimensions of the resource
Adobe Acrobat Document
Medium
The material or physical carrier of the resource.
Reproduction-Reference
Is Part Of
A related resource in which the described resource is physically or logically included.
<a href="https://catalog.archives.gov/id/7388808">National Archives Catalog Description</a>
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records: NSC Cable, Email, and Records Management Systems
Publisher
An entity responsible for making the resource available
William J. Clinton Presidential Library & Museum
Date Created
Date of creation of the resource.
2/6/2015
Source
A related resource from which the described resource is derived
2013-0464-M
7388808
Declassified
Foreign Policy
Peacekeeping
Presidential Decision Directive
Richard Clarke
-
https://clinton.presidentiallibraries.us/files/original/de73d96987d00656decd1e8e5a6ed8df.pdf
bd1a21d8fcb55a14795e423e115d1480
PDF Text
Text
LIBRAE
FARY OF DEFENSE
WASHINGTON, DC
20301-2000
NV I 7 19
O
93
MEMORANDUM FOR DEPUTY ASSISTANT TO THE PRESIDENT
FOR NATIONAL SECURITY AFFAIRS
SUBJECT: Recommended Changes to the Presidential Decision Directive
on Peacekeeping (U)
Secretary Aspin and I have thoroughly reviewed the PDD on
peacekeeping and are convinced that we are nearing the point where we
should seek approval of the President. However, before we take this final
step in the process, we should make some additional changes and reach
agreement on legislative language to implement "shared responsibility."
We should also ensure that the document conveys our intention to closely
scrutinize any new peacekeeping operation before agreeing to provide USG
support—paying careful attention to stringent entry and exit criteria for each
mission. We should therefore clearly specify that before we deploy US
forces to any peace operation, the mission will be closely scrutinized by the
CINC, the JCS, senior interagency review groups, and the President. • Finally,
we must be unequivocal in our willingness to consult with Congress in a
timely and complete manner before agreeing to deploy US forces as pan of a
multilateral peace operation.
In addition to these general concems, I am convinced that several of the
draft FDD's recommendations raise unnecessary questions about the direction
of our policy and could adversely affect our ability to garner necessary
Congressional support. This is particularly true in light of increasing
Congressional scrutiny in past months and our recent experiences in UN peace
operations. Therefore, 1 believe that the following changes to the text should
be made:
I . Page 4, Paragraph 8B and Page 10, Paragraph 10D. Delete both
paragraphs. There is no need to create a separate facility for the DPO if all
we intend to do is to create a more effective planning and current
operation center. This would be an expensive addition that would open
the policy to increased opposition-both because of the additional cost,
and as a result of the appearance that we are attempting to give the UN
greater military capabilities than we have publicly stated.
DECLASSIFIED
PER E.O. 13526
aova-tyAVoM-FN
CLASSIFIED BY: MULTTPLE SOURt
�CLINTON LIBRARY P
H
2. Page 5, Paragraph 8D, first tick. Delete the entire paragraph. There is no
need to create a standing airlift capability for the UN. This concept is
likely to be opposed by Congress as too expensive and will raise fears
about our taking a first step toward creating a standing UN military.
3. Page 6, Paragraph 8E. Delete the recommendation to create a
correspondence course on peacekeeping. This option is a less practical
addition to an otherwise good section on peacekeeping training, and would
not be viewed as a serious proposal by the Congress.
4. Page 9, Paragraph 9D. The current language on Command and Control of
U.S. forces should beftirtherstrengthened. The last sentence in the lead
paragraph states that "The greater the U.S. military role, the less likely it
will be that the U.S. will will allow a UN commander to exercise
operational control over U.S. forces." We should go one step further by
adding language that states what we all believe to be true: "Any
substantial U.S. military participation in a major peace enforcement
operation should be conducted under U.S. command and control tlirough
competent regional organizations or ad hoc coalitions."
5. Page 10, Paragraph 9E and Page \ 1, Paragraph ! OH. Delete both
recommendations. I do not believe it is necessary, or prudent, to even hint
at a willingness to provide rapid reaction capabilities or enter into Article
43 agreements with the United Nations. The option of entering into Article
43 agreements with the United Nations was thoroughly examined during
the review process-and rejected by most participants. While noting that
the U.S. will not pursue Article 43 agreements at this time, the PDD
subsequently tasks the Peacekeeping Core Group to review "rapid reaction
capabilities and Article 43 arrangements" after U.S. recommendations have
been implemented to the extent possible. While the USG may want to
reconsider these options eventually, it is not something we should seriously
consider for many, many years. Including this language in the PDD creates
an unnecessary target for Congressional opposition.
1 agree that it makes sense to begin consultations on the document
because there is much misunderstanding on the Hill about our policy
direction. Our funding requests and discussions about ongoing operations
have suffered from a lack of knowledge aboiit where we are going in our
overall peacekeeping policy.
SECRET
�crpprT
CLINTON LIBRARY P O O O Y
HTCP
However, before the PDD is signed, we also need to reach agreement on
draft legislation to implement the shared responsibility model. As we've seen in
the past, interagency agreement on specific legislative langnage-not just
agreement in principle-is necessary if we are to present a coordinated
Administration position to the Hill.
isner
SECRET
�•Ill- •
THE SECRETARY OF DEFENSE
WASHINGTON, DC
203O1-f0OO
MEMORANDUM FOR THE ASSISTANT TO THE PRESIDENT FOR
NATIONAL SECURITY AFFAIRS
SUBJECT: Peacekeeping PDD
I have reviewed thefinaldraft of the Peacekeeping PDD and while it is
clear that we are now very close tofinalagreement, I still have substantive and
procedural concems that are sufficiently important that I need to ask for these
changes.
Substantively,firstI am concerned that the language on page 3 paragraph
2, and page 9, paragraph 9D, appears to create a legal requirement to consult
| with Congress before placing U.S. forces under the operational control of a UN
commander. I urge that you delete the language. I believe that a general
reference to working more cooperatively with the Congress on peacekeeping
issues would be more appropriate.
Second, I am concerned about the new language on page 8 stressing the
President's ability to designate either State or DoD as the lead agency for
Chapter VI operations, irrespective of the presence of U.S. combat forces.
While I, of course, do not question the President's prerogatives to ask either
Agency to manage an operation and tofinanceit, I urge you to delete this
sentence. Its inclusion will, in my judgment, vastly complicate the process of
securing Congressional approval of the sharedresponsibilityapproach by
reopening the issue of State's and DoD'srespectiveresponsibilities.The new
language suggests that State could have the lead on an operation involving the
deployment of U.S. combat troops, or that DoD could befinanciallyresponsible
for operations not involving combat units. Moreover, the added language is a
statement of the obvious (the President can always assign either Department as
lead).
CLINTON LIBRARY PHCSECHET
DECLASSIFIED
PER E.0.13526
•y»/»5 KBH
�Finally, I remain concerned that we are not prepared to go to Congress
with a complete package. I continue to believe that we should not proceed
without Congressional consultations orfinalapproval of the PDD until we have
final decision on a total package policy, funding and authorities. Without a
comprehensive package agreed within the Executive Branch, we again risk
adding oxygen to the Congressionalfiresalready burning on the issue of
peacekeeping.
I understand that these concems were raised at an interagency meeting on
peacekeeping funding and legislation on December 2nd, and that a process is
well underway to develop and coordinate all the pieces of the package in
advance of the President's Budget Submission to Congress. DoD is an eager
and conscientious participant in this process.
I look forward to working with you to implement the PDD.
CLINTON LIBRARY P O
H
�t
OFFICE OF THE ASSISTANT S E C R E T A R Y O F D E F E N S E
2300 D E F E N S E PENTAGON
WASHINGTON, D C 20301-2300
DEMOCRACY
AND
PEACEKEEPING
1-93/54277
MEMORANDUM FOR SECRETARY OF DEFENSE
DEPUTY SECRETARY OF DEFENSE
THROUGH:
UNDER SECRETARY OF DEFENSE FOR POLICY
FROM:
DEPUTY ASSISTANT SECRETARY OF DEFENSE
FOR PEACEKEEPING AND PEACE
ENFORCEMENT POLICY
Prepared by: Mr. Joseph Berger, (PK/PE), x52310
SUBJECT:
Peacekeeping PDD - ACTION MEMORANDUM-
DISCUSSION: NSC is awaiting our response to thefinalversion of the
Peacekeeping PDD (Tab A). ThefinalPDD contains some, but not all, of the
DoD, State and Joint Staff proposed changes. Your recommendations on Article
43 and command and control are included ("Art 43"/"C3" tabs). A few
remaining issues still cause concem among different components in DoD. A
memorandum to Tony Lake addressing these issues is at Tab B.
Legislation
The final document does not reflect your recommendation that the
interagency should have reached agreement on legislative language to implement
shared responsibility. However, in the last ten days there have been a series of
intense interagency meetings and we are moving toward agreement. We
understand that Tony Lake intends to convene a Principals meeting shortly to
resolve any remaining issues. The proposed memorandumfromyou to Lake
reiterates your position that we should not consult on the Hill until we have a
complete package.
DECLASSIFIED
PER E.O. 13526
7/1/15 K8H
CLINTON LIBRARY PHOTOO®Y
CLASSSFIBD BY: MUUZ
DECLASSIFYON: OADR
�-SECRET
Consultations
The Joint Staff strongly objects to the language appearing to require
consultations with Congress before placing U.S. forces under the operational
control of a UN commander. The memorandum to Lake requests he remove the
"consultation with Congress" language.
Shared Responsibihty
The new draft adds language proposed by State (page 8 of the PDD) that
states that the President may designate either State or DoD to be the lead agency
for Chapter VI operations "irrespective of the presence of U.S. combat units".
We believe this language reopens the issue of defining State and DoD's
respective responsibilities and creates unnecessary ambiguity which could
compUcate the budgeting process and create havoc on the Hill. This new
language could result in having State with the lead on an operation involving the
deployment of U.S. combat troops, or having DoDfinanciallyresponsible for
operations not involving combat units. Most importantly, the added language is
a statement of the obvious (the President can always assign either Department as
lead) which will unnecessarily open every Chapter VI decision to interagency
argument and manipulation. Therefore, the new language on page 8 should be
deleted.
Policy notes, however, that a rigid cost sharing formula may not fit every
circumstance. There may be circumstances in which it would make sense for
State to continue managingMndfeftd/fundingsome Chapter VI operations which
include combat units and oribme Chapter VII operations such as UNIKOM in
which no USG combat units are involved.
The Attached memorandum conveys to Tony Lake the above concems
about a coherent legislative package, war powers issues, and the exceptions to
shared responsibihties.
RECOMMENDATION: That you sign the attached memorandum.
COORDINATION:
OGC
LA
Compt
CLINTON LIBRARY-f^
RSA
JS_
�
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
<strong>Declassified Documents</strong>
Description
An account of the resource
This collection of declassified records focus primarily on foreign affairs. These records were declassified and made available to the public through a <a href="http://clinton.presidentiallibraries.us/mandatory-declassification-review-requests">Mandatory Declassification Review</a> request.
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records
Publisher
An entity responsible for making the resource available
Clinton Presidential Library & Museum
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Original Format
The type of object, such as painting, sculpture, paper, photo, and additional data
Paper
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Declassified documents concerning PDD-25, Peacekeeping
Identifier
An unambiguous reference to the resource within a given context
2013-0464-M
Date Available
Date (often a range) that the resource became or will become available.
9/21/2015
Description
An account of the resource
This Mandatory Declassification Review contains material on peacekeeping from 1993 and what would later become PDD-25 (Peacekeeping policy). Material includes Department of Defense memos regarding recommended changes to the peacekeeping PDD.
Creator
An entity primarily responsible for making the resource
National Security Council
Records Management Office
Is Part Of
A related resource in which the described resource is physically or logically included.
<a href="https://catalog.archives.gov/id/7388808">National Archives Catalog Description</a>
Format
The file format, physical medium, or dimensions of the resource
Adobe Acrobat Document
Medium
The material or physical carrier of the resource.
Preservation-Reproduction-Reference
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records: NSC Cable, Email, and Records Management System
Publisher
An entity responsible for making the resource available
William J. Clinton Presidential Library & Museum
Date Created
Date of creation of the resource.
9/2/2015
Source
A related resource from which the described resource is derived
2013-0464-M
7388808
Declassified
Foreign Policy
Peacekeeping
Presidential Decision Directive
-
https://clinton.presidentiallibraries.us/files/original/b8010547d72be2fd57803828d7e09d04.pdf
fecd27c0347deb3d73b8e43d33d24398
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
<strong>Declassified Documents</strong>
Description
An account of the resource
This collection of declassified records focus primarily on foreign affairs. These records were declassified and made available to the public through a <a href="http://clinton.presidentiallibraries.us/mandatory-declassification-review-requests">Mandatory Declassification Review</a> request.
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records
Publisher
An entity responsible for making the resource available
Clinton Presidential Library & Museum
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Original Format
The type of object, such as painting, sculpture, paper, photo, and additional data
Paper
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Declassified Documents Concerning PDD-25, Peacekeeping
Identifier
An unambiguous reference to the resource within a given context
2013-0464-M
Date Available
Date (often a range) that the resource became or will become available.
3/3/2020
Description
An account of the resource
This Mandatory Declassification Review contains a letter from Lieutenant General Barry McCaffrey to Karl Inderfurth regarding United Nations peacekeeping, August 30, 1993. Also included are cover memoranda and transmittal forms.
Creator
An entity primarily responsible for making the resource
National Security Council
NSC Global Affairs Office
Daalder, Ivo
NSC Records Management System
Format
The file format, physical medium, or dimensions of the resource
Adobe Acrobat Document
Medium
The material or physical carrier of the resource.
Preservation-Reproduction-Reference
Provenance
A statement of any changes in ownership and custody of the resource since its creation that are significant for its authenticity, integrity, and interpretation. The statement may include a description of any changes successive custodians made to the resource.
Clinton Presidential Records: White House Staff and Office Files
Clinton Presidential Records: NSC Cable, Email, and Records Management System
Publisher
An entity responsible for making the resource available
William J. Clinton Presidential Library & Museum
Date Created
Date of creation of the resource.
1/30/2020
PDD