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S. HRG. 107–15 A REPORT ON THE UNITED NATIONS REFORMS HEARING BEFORETHE COMMITTEE ON FOREIGN RELATIONS UNITED STATES SENATE ONE HUNDRED SEVENTH CONGRESS FIRST SESSION JANUARY 9, 2001 Printed for the use of the Committee on Foreign Relations ( Available via the World Wide Web: http://www.access.gpo.gov/congress/senate U.S. GOVERNMENT PRINTING OFFICE 71–537 DTP WASHINGTON : 2001 VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00001 Fmt 5011 Sfmt 5011 71537 SFRELA1 PsN: SFRELA1 COMMITTEE ON FOREIGN RELATIONS JOSEPH R. BIDEN, JR., Delaware, Chairman PAUL S. SARBANES, Maryland JESSE HELMS, North Carolina CHRISTOPHER J. DODD, Connecticut RICHARD G. LUGAR, Indiana JOHN F. KERRY, Massachusetts CHUCK HAGEL, Nebraska RUSSELL D. FEINGOLD, Wisconsin GORDON H. SMITH, Oregon PAUL D. WELLSTONE, Minnesota CRAIG THOMAS, Wyoming BARBARA BOXER, California BILL FRIST, Tennessee ROBERT G. TORRICELLI, New Jersey LINCOLN D. CHAFEE, Rhode Island SAM BROWNBACK, Kansas EDWIN K. HALL, Democratic Staff Director STEPHEN E. BIEGUN, Minority Staff Director (II) VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00002 Fmt 5904 Sfmt 5904 71537 SFRELA1 PsN: SFRELA1 CONTENTS Page Biden, Hon. Joseph R., Jr., U.S. Senator from Delaware, opening statement ... 3 Helms, Hon. Jesse, U.S. Senator from North Carolina, opening statement ....... 5 Holbrooke, Hon. Richard C., U.S. Ambassador to the United Nations ............... 5 Prepared statement (includes charts) ............................................................. 15 Responses to additional questions for the record submitted by Senator Gordon Smith ................................................................................................ 43 (III) VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00003 Fmt 5904 Sfmt 5904 71537 SFRELA1 PsN: SFRELA1 VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00004 Fmt 5904 Sfmt 5904 71537 SFRELA1 PsN: SFRELA1 A REPORT ON THE UNITED NATIONS REFORMS WEDNESDAY, JANUARY 9, 2001 U.S. SENATE, COMMITTEE ON FOREIGN RELATIONS, Washington, DC. The committee met, pursuant to notice, at 10:30 a.m. in room SD–423, Dirksen Senate Office Building, Hon. Joseph Biden, Jr. presiding. Present: Senators Biden, Kerry, Feingold, Helms, Lugar and Hagel. Senator BIDEN. The hearing will come to order. It’s been 6 years since I could say that. And it will be 6 seconds that I get to say it. For the press and the public listening, this is a bit of a—how can I say it?—a bit of a Senate parliamentary excess here. But technically, I am for another 10 or 12 days or 8 days chairman of this committee. But I am not the chairman. I do not claim the right to be the chairman. And I am going to shortly turn back this whole hearing to the real chairman of the committee, Senator Helms. Today, the Committee on Foreign Relations is going to review the status of reform in the United Nations. Nearly 4 years ago under the leadership of Senator Helms, I started down a legislative road with him that culminated in what was called the Helms-Biden legislation. That was approved in the fall of 1999. Folks on the left did not like it. And folks on the right did not like it. And nobody seemed to like it very much but Senator Helms and me. This legislation was premised on two key assumptions. First, that it is in the interest of the United States to have a United Na- tions that works. And second, that the United Nations was in need of reform. The legislation that was finally approved held out the promise that nearly one billion dollars in arrears of back dues and peacekeeping costs would be paid to the United Nations if certain reforms were achieved. I want to make it clear we did not agree on what the arrears are. We have a figure that is lower than—is viewed by some in the United Nations as so-called contested arrears which will, I believe, never be paid by the United States—the contested piece. But I made it clear that I would have preferred the funds to be provided without conditions and then fought for the conditions which I strongly believe are necessary. And I have also made it equally clear and plain that in my judgment the Senate was not going to provide funds unless there were strings attached, unless it was conditional. And a number of distinguished Ambassadors to the United Nations—some of their coun- (1) VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00005 Fmt 6633 Sfmt 6633 71537 SFRELA1 PsN: SFRELA1 2 tries are here today. And I realized that was a bitter pill to swallow and I understand it. We appreciate it. We know how difficult it is. But in my view, it was an absolutely necessary pre-condition for us to get things back on track here in the U.S. Senate. Two of the major changes called for were lowering the assessment rates that the United States pays the U.N. regular budget and for the assessment rates for peacekeeping operations. In the case of peacekeeping, the rates had not been reviewed since the early 1970’s. Senator Helms and I believe that these reforms though tough were necessary and would help put the U.N. on a better financial footing by spreading the burden more equitably and quite frankly help tremendously here in generating con- tinued support and even in some quarters enthusiasm for our par- ticipation in the United Nations. And from what I have heard, it looks like we got almost everything that was asked for. Eighteen months ago during his confirmation hearings before this committee, Ambassador Holbrooke promised that U.N. reform would be his highest sustained priority. I might note parenthetically—and I am not being facetious when I say this—I truly believe had this very close election turned out differently, and I am not complaining about the way it turned out, had it turned out differently, I am confident we would have Mr. Holbrooke, Ambassador Holbrooke, sitting at that very table tomor- row as the nominee for Secretary of State in a different administra- tion. But Ambassador Holbrooke promised that U.N. reform would be his highest sustained priority when this committee confirmed him. There were many naysayers, both here in Washington and in New York, who said it cannot be done. Well, he has done it. And a large share of the credit for this accomplishment goes to Ambassador Holbrooke and the able team which he is going to introduce after the real chairman finishes his opening statement who had the full support of the President and Secretary Albright in this process. The result is this. Fiscal discipline continues at the U.N. And I want to make it clear to the Ambassador, I do not believe that the only reason why there has been improvement at the U.N. is any- thing the United States has done. I think had we not said a single thing in Helms-Biden, you would have undertaken a number of these initiatives unrelated to our share or the dues paying share. So I do not want to sound presumptuous like we are sitting here and we are the only ones who thought there was a need for reform at the United Nations. But fiscal discipline continues. A results based budget is starting to take hold, and the Brahimi report reforms, when implemented, meaning the peacekeeping operations, are going to be improved from the ground up. Equally important, these reforms and the payment of our arrears should bring an end to the debate in this country about the utility of the United Nations. It will ensure in my view that the United States remain fully engaged in the United Nations. For that, Ambassador Holbrooke, you have my thanks and my congratulations for a job superbly done. [The prepared statement of Senator Biden follows:] VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00006 Fmt 6633 Sfmt 6633 71537 SFRELA1 PsN: SFRELA1 3 OPENINGSTATEMENTOFSENATORJOSEPHR. BIDEN, JR. Today the Committee on Foreign Relations will review the status of reform at the United Nations. Nearly four years ago, Senator Helms and I started down a legislative road that culminated in the ‘‘Helms-Biden’’ legislation that was approved in the fall of 1999. This legislation was premised on two key assumptions— • first, that it is in the interests of the United States to have a United Nations that works; • second, that the United Nations was in need of reform. The legislation that was finally approved held out the promise that nearly one billion dollars in arrears—or back dues—would be paid to the United Nations if certain reforms were achieved. I have made it clear that I would have preferred the funds be provided without conditions, but I have also made it equally plain that in my judgment the Senate was not going to provide the funds unless there were strings attached. Two of the major changes called for were the lowering of the assessment rates that the United States pays for the UN’s regular budget and for peacekeeping operations. In the case of peacekeeping, these rates had not been reviewed since the early 1970’s. Senator Helms and I believed that these reforms, though tough, were necessary and would help put the UN on a better financial footing by spreading the burden of funding more equitably. And from what I’ve heard, it looks like we got almost everything we asked for. Eighteen months ago, during his confirmation hearings before this Committee, Ambassador Holbrooke promised that UN reform would be his ‘‘highest sustained priority.’’ Many naysayers, both here in Washington and in New York, said ‘‘it can’t be done.’’ Well, it has been done. And a large share of the credit for this accomplishment must go to Ambassador Holbrooke and his team, who had the full support of the President and Secretary Albright. The result is this: fiscal discipline continues at the UN, ‘‘Results-Based Budg- eting’’ is starting to take hold, and the ‘‘Brahimi Report’’ reforms, when implemented, mean that peacekeeping operations are going to be improved from the ground up. Equally important, these reforms—and the payment of our arrears—should bring an end to the debate in this country about the utility of the United Nations. It will ensure that the United States will remain fully engaged with the UN. For that, Ambassador Holbrooke, you have my thanks and congratulations for a job superbly done. At this time I would also like to welcome to the Senate Foreign Relations Com- mittee the distinguished UN Ambassadors that Ambassador Holbrooke has invited as his guests. Senator BIDEN. At this time now I would like to before we—I do not think I should do this. I think the chairman should. I would like to do one thing. And if you will excuse me from standing, I want to return this committee to the status it will be for at least another 2 years and turn the hearing back over and the gavel over to the real chairman of this committee, Senator Helms. Senator HELMS. Well, thank you, Mr. Chairman. I appreciate your calling this hearing. And as you say, we meet today to receive a final status report from Ambassador Holbrooke, whom we all ad- mire and to whom we are all grateful. Even Americans who have never heard of you should be grateful to you because you have made a big difference. Two weeks ago, Ambassador Holbrooke succeeded at cajoling— and with maybe a little brow beating—some of our friends at the United Nations into implementing several of the key reforms that lie at the heart of the so-called Helms-Biden U.N. legislation. And by the way, parenthetically, my interest in this began with another Senator who is no longer a Senator, Nancy Kassebaum, who is no longer Nancy Kassebaum. She is Mrs. Howard Baker. VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00007 Fmt 6633 Sfmt 6602 71537 SFRELA1 PsN: SFRELA1 4 But anyway, Nancy and I talked about a number of things. And one thing led to another. Then Senator Biden and I got busy and we met and here we are. We are grateful to you. Ambassador Holbrooke, when this deal is fully implemented, it will knock at least $170 million off the amount that the United Nations bills the American taxpayers. More than that, through this debate, we have forced the United Nations to make much needed reforms. And we have protected the American taxpayer from unknown increases that might have hap- pened and been contemplated by the United Nations and its supporters. And I will never forget a day or two after Kofi Annan became Secretary General. He came down here and visited with us. And nobody could have been more cordial and more cooperative than he was. And he made several commitments. We did not ask him to commit, but we asked him to agree to certain benchmarks. In any case, Mr. Ambassador, we are all proud of you and we are pleased to have you here for this one last time as the U.S. Perma- nent Representative to the United Nations. Now, as the U.N. has met with us most of the way down the road, I am prepared to do the same. Now, releasing the biggest payment of money under the Helms-Biden law actually required a reduction to 25 percent in the amount that the United States pays for United Nations peacekeeping. Now, the U.N. missed that target. But on the basis of what was achieved, I am prepared to support a technical change in that law to permit the so-called Year Two payment. That is to say $582 million to be released. Let me be clear. I do not concede the principles that the United States is at all obligated to pay more than 25 percent of the peacekeeping budget of the United Nations. That cap was enacted into a separate law 6 years ago with the signature of President Clinton. But I do believe that we must acknowledge that the important progress that has been made at the U.N. and the Congress should respond to it. Now then, this hearing and the achievements it will highlight represent a close of an important year in the history of U.S. and U.N. relations. Just a year ago this month, the Foreign Relations Committee went up to New York on an historic visit with the United Nations, the first time that a committee had ever ventured as a group to visit an international institution. Now, the U.N. Security Council reciprocated this past March with a visit to Capitol Hill. And the proceedings of that historic dialog have just been published in a book.1 And to paraphrase Am- bassador Holbrooke, copies are on sale outside the hearing room. Seriously, they are free and available on the table at the back of the room. Now, I note that we are joined today by several Ambassadors. You saw them. We welcome them. It is testimony to their esteem for Ambassador Holbrooke that they are here today to support this 1Accessed through the U.S. Government Printing Office Web site at: www.access.gpo.gov/congress/senate/senate//.html VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00008 Fmt 6633 Sfmt 6602 71537 SFRELA1 PsN: SFRELA1 5 package. So welcome, Mr. Ambassador. We look forward to hearing from you. We are proud of you. And you may proceed. [The opening statement of Senator Helms follows:] OPENINGSTATEMENTOFSENATORJESSEHELMS Mr. Chairman, thank you for calling this hearing. We meet today to receive a final status report from Ambassador Holbrooke on the reforms he has achieved at the United Nations. Two weeks ago, Ambassador Holbrooke succeeded in cajoling and generally brow- beating our friends at the United Nations into implementing several of the key reforms that lie at the heart of the Helms-Biden U.N. legislation. Ambassador Holbrooke, when this deal is fully implemented it will knock at least $170 million from the amount that the United Nations bills the American taxpayer. More than that, through this debate we have forced the United Nations to make much-needed reforms, and we have protected the American taxpayer from unknown increases that would have certainly been contemplated by the United Nations and its supporters. This was no simple task and, Ambassador Holbrooke, we are all proud of you and pleased to have you here for what will be one last time as U.S. Permanent Rep- resentative to the United Nations. As the U.N. has met us most of the way down the road, I am prepared to do the same. As you know, Mr. Ambassador, releasing the biggest payment of money under the Helms-Biden law actually required a reduction to 25 percent in the amount that the U.S. pays for United Nations peacekeeping. The U.N. missed that target. However, on the basis of what was achieved I am prepared to support a technical change to that law to permit the so-called ‘‘Year Two’’ payment, $582 million, to be released. Let me be clear, I do not concede the principle that the U.S. is at all obligated to pay more than 25 percent of the peacekeeping budget. That cap was enacted into a separate law six years ago with the signature of President Clinton. But, I do believe that we must acknowledge the important progress that has taken place up at the U.N., and the Congress should respond. This hearing, and the achievements it will highlight, represents the close of an important year in the history of U.S.-U.N. relations. Just a year ago this month, the Foreign Relations Committee traveled to New York for an historic visit to the United Nations—the first time that the Committee had ever ventured as a group to visit an international institution. And the U.N. Security Council reciprocated last March, with a visit to Capitol Hill. The proceedings of that historic dialog have just been published and to paraphrase Ambassador Holbrooke, copies are on sale outside the hearing room. Seri- ously, they are free and available on the table at the back of this room. I note that we are joined today by several Ambassadors serving on the U.N. Secu- rity Council with Ambassador Holbrooke. It is testimony to their esteem for him that they are here today to support this package. So, welcome Mr. Ambassador. We look forward to hearing from you. STATEMENT OF HON. RICHARD C. HOLBROOKE, U.S. AMBASSADOR TO THE UNITED NATIONS Ambassador HOLBROOKE. Thank you, Mr. Chairman. Thank you, Mr. Chairman. I am deeply moved to have been asked to come back here again in my last 10 days in this job. This is my eighth time I have appeared before your committee in 17 months. And since it is my last opportunity to appear before you in my current position, I want to begin by thanking all of the five Senators who are here, Senator Helms, Senator Biden, Senator Lugar, Senator Feingold, Senator Hagel and your colleagues for your incredible support. Four of the five of you have been to New York, more than once in most cases. The fifth of you has been in constant contact with me and we have been friends for over 20 years. And I thank all of you for your support and your visits and your friendship, and your advice and your encouragement. VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00009 Fmt 6633 Sfmt 6602 71537 SFRELA1 PsN: SFRELA1 6 And I am very gratified and honored by the comments that the two of you have just made. But whatever we are here to report on to you today is a shared achievement. This was in my 38 years in the government the most unusual ex- ample of cooperation between the two co-equal branches of government. I was nominated by the executive branch, controlled by one party, confirmed by the legislative branch, controlled by the other, and given a mandate by the legislative branch, and full support by President Clinton, Secretary Albright, Sandy Berger and others. But the real heavy lifting here was day-by-day management of this process. Every one of the five of you spoke to ambassadors on our behalf, wrote letters, helped us and I hope that this historic col- laboration, which also included members of other committees but was centered right here in this room, will continue. I have so rec- ommended to the Secretary designate, Colin Powell. And I believe it’s a model for what should be done. I also urge you to continue the exchange of visits that you began exactly a year ago this month. Mr. Chairman, I brought with me two groups of people who de- serve an introduction. And with your permission, I would like first my team to stand as a team because whatever we have accom- plished could not have been done without them. In strict protocol rank, my own team—who have never come down as a group before and who have worked around the clock, many of them going up to a week without sleep—are Ambassador Jim Cunningham—— Senator HELMS. If you will stand up, please. Ambassador HOLBROOKE. Jim is my deputy, a career diplomat, and I am proud to say General Powell has asked him to remain as charge´ starting next week; Ambassador Don Hays who you confirmed as our management Ambassador and did such a fantastic job; Suzanne Nossel, who I do not think slept for the last 2 months; Mary Ellen Glynn, our splendid press officer who you all know; Bob Orr who you have seen more of than anyone else because he is the head of our Washington office; my other deputy Melanie Atwooll who has done the charts that I am about to share with you; Debo- rah Isser who has worked on the charts and done such great work; and Derek Chollet who is based here in Washington and works on the text of what we do. In this group, you can stay standing for the rest of the session if you wish. I cannot tell you how honored I am to have had this team. And I look forward to their continuing to support your work. In our efforts, we built very much on the hard work of my prede- cessors, particularly Madeleine Albright, Bill Richardson and Tom Pickering and many others. President Clinton, Secretary Albright, Sandy Berger and others were heavily engaged in this effort. And so were all our ambassadors around the world who worked in cap- itals and I am grateful to them. In addition, Mr. Chairman, as you have already mentioned, we have here six ambassadors. We would have seven except that Sir Jeremy Greenstock, the British Ambassador to the United Nations called me from the FDR Drive and said that his Rolls Royce had VerDate 11-MAY-2000 15:37 May 30, 2001 Jkt 000000 PO 00000 Frm 00010 Fmt 6633 Sfmt 6602 71537 SFRELA1 PsN: SFRELA1