Rice, Churkin trade blows in Security Council
It’s not exactly the Cold War. But U.S.-Russia relations have been getting pretty chilly in the U.N. Security Council lately. On Tuesday, Susan Rice, the U.S. ambassador to the United Nations, and her Russian counterpart, Vitaly Churkin, traded verbal blows over a stalled U.S. initiative to endorse a recent peace deal between Sudan and South ...
It's not exactly the Cold War.
It’s not exactly the Cold War.
But U.S.-Russia relations have been getting pretty chilly in the U.N. Security Council lately.
On Tuesday, Susan Rice, the U.S. ambassador to the United Nations, and her Russian counterpart, Vitaly Churkin, traded verbal blows over a stalled U.S. initiative to endorse a recent peace deal between Sudan and South Sudan.
The big power quarrel played out in a procedural skirmish over how the 15-nation council should be used to promote political reconciliation between the two Sudans, which have been locked in their own highly contentious squabbles over the nature of their relationship in the wake of South Sudan’s independence in 2011.
Rice accused Churkin of trying to thwart the council’s efforts to adopt a U.S.-drafted statement pressuring both Sudans to implement of set of obligations they have undertaken on everything from security arrangements to oil exports and trade, and condemning clashes between Sudanese and South Sudanese forces, including Khartoum’s aerial bombardment of towns in the south. Churkin fired back that Rice was "not reasonable" and her decision to divulge the contents of confidential negotiations was "rather bizarre."
The dispute reflected the deepening strains between the United States and Russia on a range of issues, including Syria, where the two powers have been stalemated, and Sudan, where Moscow has repeatedly stymied American efforts to press Khartoum. But it also highlighted the testy tenor of relations between Churkin and Rice, which some colleagues have likened to emotional exchanges between high-school kids.
For weeks, Rice had been struggling to secure agreement on a U.N. Security Council presidential statement that would recognize recent progress between the former civil war rivals in negotiations touching on everything from the demarcation of the border to control of Sudanese oil, which is mostly pumped in landlocked South Sudan, but transported, refined, and exported through Sudan.
Rice had crafted the draft in a way that could maximize pressure on Khartoum to withdraw its security forces from the disputed territory of Abyei, to provide access for U.N. humanitarian workers seeking to distribute humanitarian assistance in the conflict zones of South Kordofan and Blue Nile state. But it also deplored the presence of South Sudanese national police in Abyei, and urged both sides to refrain from hostilities.
Moscow had initially blocked the U.S. initiative on the grounds that it was too tough on Khartoum, but not tough enough on South Sudan. But on Friday of last week, Russia had reached agreement in principle with Rice to support the American measure.
The deal, however, was never concluded. Over the weekend, Sudan and South Sudan reached agreement on a deal setting the stage for the establishment of a demilitarized zone between the two countries and an oil pact that will allow for the resumption of oil exports for the first time since January 2012, when South Sudan halted production to protest what they believed were excessive transport fees charged by the Sudanese government.
Rice told reporters that she had intended to update the statement to reflect the latest agreement, but that Churkin abruptly introduced his own press statement welcoming the latest agreement and stripping out any language criticizing Khartoum’s shortcomings on other fronts. Rice suggested that Russia, which has more limited interests in the Sudans than the United States, is performing the role of diplomatic spoiler in the council.
"We were close to agreement on that, and we were ready to update it to take account of recent events," Rice told reporters. "Unfortunately, perhaps in the interest of derailing such a PRST [Presidential statement], the Russian federation, which does not typically utilize the pen on South Sudan or Sudan, tabled a draft press statement, which only discussed a very narrow aspect of the substance of the larger … statement and excluded language on the two areas, excluded mention of the cross border incidents, including aerial bombardment."
Churkin insisted that his intentions were pure, and that he was merely seeking to send a swift message of support to the Sudanese parties.
"Ambassador Rice chose to spill out to the media some confidential conversations we had today and actually did it in a rather bizarre way, from what I hear,’ he told reporters. "I think the reaction of the U.S. delegation was not reasonable. And as a result of that we were not able to have any agreed reaction from the council today."
"This was not a constructive way to deal with the work in the Security Council," he added. "Trying to find all sorts of ulterior motives and come up with various outlandish accusations is not the best way to deal with your partners in the Security Council. I know it’s not a good way to deal with the Russian delegation."
Some U.N. diplomats believe that Churkin is actually trying to provoke his American counterpart and that his tough line reflects an increasingly combative foreign policy approach being pursued by Russian President Vladimir Putin. "Russia is taking on an increasingly nationalistic foreign policy and Churkin’s instructions reflect that," said one council diplomat.
But others fault the Americans for refusing to compromise with Russia in order to maintain pressure on Sudan and South Sudan to comply with their commitments. They say Rice’s insistence on tough denunciations of Khartoum, while merited, have resulted in the council’s inability to weigh in on many key aspects of the crisis since May 2012, when the council last threatened sanctions against the two sides if they failed to live up to their commitments. The United States "has been using a bazooka when they should stick with a pistol," said one U.N. insider. "Everyone knows how bad [Sudanese President Omar] Bashir is, but does it need to be put in every statement?"
A U.S. official countered that the U.S. has been even handed. "The United States is focused on resolving critical issues that risk another war between Sudan and South Sudan and have a huge human cost," said Payton Knopf, a spokesman for Rice, noting that hundreds of thousands of displaced Sudanese civilians are "enduring a humanitarian crisis of immense proportions. We believe the Security Council should hold the parties accountable, as appropriate for fulfilling their obligations. When Khartoum or Juba is cuplable, we think the council needs to apply pressure, as needed."
Russia, meanwhile, has been nursing its own grievances toward the government in Juba since 2011, when the South Sudanese authorities detained a Russian helicopter crew. Moscow unsuccessfully sought U.S. support for a statement criticizing the South’s action. Then, to make matters worse, last year, South Sudanese army forces shot down a U.N. helicopter piloted by a 4-man Russian crew, who were all killed in the incident. In that instance, the U.S. supported a council statement deploring the shooting, and demanding that those responsible for the shooting be held accountable.
More recently, Russia accused the United States of blocking a Security Council statement condemning a terror bombing near the Russian embassy in Damascus.
"We believe these are double standards," Russia’s foreign minister Sergei Lavrov said last month. "And we see in it a very dangerous tendency by our American colleagues to depart from the fundamental principle of unconditional condemnation of any terrorist act, a principle which secures the unity of the international community in the fight against terrorism," he said.
A spokeswoman for Rice, Erin Pelton, countered that assessment, saying that the United States was willing to support the Russian initiative if it included a reference to President Bashar al-Assad’s government’s "brutal attacks against the Syrian people. If predictably, Russia rejected the U.S. suggested language as "totally unacceptable" and withdrew its draft statement."
Follow me on Twitter @columlynch
Colum Lynch was a staff writer at Foreign Policy between 2010 and 2022. Twitter: @columlynch
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