S/2004/180
I. Introduction
1. The present report is submitted pursuant to paragraph 12 of Security Council resolution 1320 (2000) of 15 September 2000, and provides an update on developments in the peace process since my report dated 19 December 2003 (S/2003/1186). The report also describes the deployment and activities of the United Nations Mission in Ethiopia and Eritrea (UNMEE), whose current mandate expires on 15 March 2004, and gives an account of the efforts of my Special Envoy for Ethiopia and Eritrea.
II. Special Envoy for Ethiopia and Eritrea
2. In my letter to the President of the Security Council (S/2004/102), I informed the Council of my decision to appoint Lloyd Axworthy, former Minister for Foreign Affairs of Canada, as my Special Envoy for Ethiopia and Eritrea to explore with the two Governments how best the current impasse in the implementation of the Algiers Agreement could be overcome. I emphasized that the offer of good offices was not intended to create a new or alternative mechanism. In my exchanges with the parties, I also emphasized that my initiative would focus on the implementation of the Algiers Agreement, the decision of the Eritrea-Ethiopia Boundary Commission, and the relevant resolutions and decisions of the Security Council, and help the parties to create a mutually advantageous situation, through dialogue and improved relations. The Security Council expressed full support for the mission of good offices (see S/2004/103).
3. In the second half of February, my Special Envoy carried out his initial mission to the region. In Addis Ababa, he consulted with the Ethiopian leadership and the Chairperson of the Commission of the African Union. He held further consultations in Sirte, Libyan Arab Jamahiriya, including consultations with the current Chairman of the African Union. My Special Envoy's intended visit to Asmara did not materialize because of the negative disposition of the Government of Eritrea towards his mission.
III. Status of the Temporary Security Zone and adjacent areas
4. During the period under review, the general situation in the Temporary Security Zone and the adjacent areas remained relatively stable, and there were no major incidents. UNMEE believes however that, in the absence of progress on the demarcation of the border, this stability must be considered as fragile. In order to maintain the integrity of the Temporary Security Zone, UNMEE carried out extensive and continuous patrolling in the Zone, monitored the redeployed positions of the parties' armed forces in the adjacent areas, and observed the activities of the Eritrean militia and police in and around the Zone. Regrettably, overall cooperation with the parties on the ground has shown signs of gradual deterioration over the last few months.
5. UNMEE continued to observe an increase in training activities, in particular by the Ethiopian Armed Forces, which have frequently been conducted in close proximity to the southern boundary of the Temporary Security Zone. UNMEE has requested the Ethiopian Ministry of Defence and the commanders of the Ethiopian divisions involved to move their training activities away from the Zone. Meanwhile, routine maintenance work on defence positions on both sides of the Zone continued.
6. The incursions by Ethiopian herdsmen and their livestock into the Temporary Security Zone in Sector Centre, mentioned in previous reports, decreased marginally, and incidents of armed Ethiopian militia accompanying them have all but ceased. Meanwhile, there was an increase in allegations by both parties of rustling of livestock in Sectors West and Centre. At the same time, several exchanges of livestock were successfully arranged with the assistance of UNMEE, both sides returning livestock that had either strayed or been stolen. On 19 January, an unarmed patrol of UNMEE military observers travelling at night was fired upon, after failing to stop at a temporary Ethiopian Armed Forces checkpoint in Sector West. Three rounds were fired, and a single bullet hit one of the vehicles, but no one was injured. The UNMEE investigation, which was carried out with the full cooperation of the Ethiopian Armed Forces, revealed that the patrol had failed to stop because it was night-time and it had not seen the temporary checkpoint, and that the soldier who had opened fire had been unable to identify the vehicles, which did not have illuminated flags. UNMEE lodged a formal protest about the shooting with the Ministry of Defence, which regretted its occurrence and promised that such incidents would not reoccur.
7. In a worrying incident, UNMEE Sector West headquarters in Barentu in Eritrea was targeted by a hand-delivered improvised explosive device on 20 January. Fortunately, it caused no casualties and only little damage. UNMEE was unable to determine the identity of the perpetrators, and is still awaiting the results of the Eritrean investigation. As a result of the incident, the Mission has requested the local Eritrean authorities to increase security in the vicinity of that facility.
8. During the period under review, a number of military personnel and civilians from both sides defected across the southern boundary of the Temporary Security Zone. While UNMEE is not mandated to halt such illegal crossings, all reported incidents were thoroughly investigated. On several occasions, the Mission facilitated the prompt repatriation of individuals who had accidentally crossed the boundary from either side and were detained by the respective authorities. UNMEE assets, in particular vehicles, are at risk of being commandeered or otherwise put to unauthorized use for the purpose of crossing the southern boundary of the Zone. An UNMEE vehicle was reported missing in Asmara on 6 January and was found abandoned in Addis Ababa on 13 January. As a result of that incident, the two parties cited serious national security concerns, the Government of Ethiopia demanding a forensic examination of the vehicle and photographic identification of the person or persons who had made unauthorized use of the vehicle, as well as a joint investigation with the Mission. UNMEE discussed the matter extensively with the Ethiopian authorities, and agreed to have the vehicle inspected by the Government in the presence of UNMEE personnel, but was not in a position to provide photographic identification of the driver and the passengers. An investigation of the incident is under way.
Freedom of movement
9. On 2 February, Ethiopia severely restricted the Mission's freedom of movement, as it closed all major roads and tracks leading into Ethiopia, with the exception of the Mereb River crossing in Sector Centre. The restrictions, which were imposed as a result of the incident described in the previous paragraph, were mostly lifted after 48 hours, following UNMEE protests to the Government of Ethiopia. The Ethiopian authorities continued to impose restrictions at Humera Bridge in Sector West until 19 February, when they were removed.
10. On the Eritrean side, UNMEE faced continuing restrictions on its movements in the areas adjacent to, and on a number of occasions within, the Temporary Security Zone. UNMEE has repeatedly protested about these restrictions to the Eritrean authorities, which maintain that the Mission's monitoring mandate is limited solely to the Zone and does not include the redeployment positions of its armed forces outside the Zone. As a result, the Mission's ability to monitor the redeployment positions of the Eritrean Defence Forces in the adjacent areas, in accordance with the Agreement on Cessation of Hostilities, is severely constrained.
11. Regrettably, there has been no improvement with regard to the difficulties experienced by UNMEE staff at the airports in Addis Ababa and Asmara when entering and leaving Ethiopia and Eritrea. The Government of Eritrea continues, furthermore, to insist on receiving prior notification for non-Mission passengers travelling on UNMEE carriers on both domestic and cross-border flights, a requirement which unnecessarily hampers humanitarian and political efforts in support of the peace process, as it affects the United Nations country team, representatives of the diplomatic community, troop-contributing countries and other stakeholders. It should be emphasized that UNMEE transport of non-Mission passengers does not circumvent in any way compliance with the relevant immigration procedures.
12. Despite repeated requests and efforts, UNMEE aircraft are still required, three and a half years after the Mission's inception, to travel via Djibouti when flying between Addis Ababa and Asmara. While Ethiopia has indicated that it may now be willing to allow direct flights, it has not followed through with a decision or action to this effect. In the meantime, the failure of the parties to overcome their differences on this issue continues to necessitate longer, more complicated and less secure flights. The indirect flights have also resulted in additional costs totalling over US$ 3.14 million since the Mission's establishment, as well as in countless wasted work hours for UNMEE personnel flying between the two capitals. I once again appeal to the parties to allow for the resolution of this matter. The introduction of direct flights would be a significant improvement for UNMEE staff working for peace in the two countries, and could also contribute to much-needed confidencebuilding. Military Coordination Commission
13. UNMEE continued to convene and chair the Military Coordination Commission, which held its 21st and 22nd meetings in Nairobi on 15 December 2003 and 2 February 2004, respectively. At those meetings it dealt in detail with the modalities for the conduct of sector-level military coordination commissions. At the latter meeting, the two parties endorsed a framework for sector military coordination commissions and set dates early in March for the first meetings in each sector, in time for them to report back to the Military Coordination Commission when it meets again on 15 March in Nairobi. The first meeting of the sector Military Coordination Commissions was held on the Mereb River Bridge in Sector Centre on 3 March, and the other two sectors are due to hold meetings later in the month. I very much welcome this development and hope that the establishment of the sector-level commissions will lead to enhanced cooperation between military commanders and help to build more trust between the parties and address security issues at the local level. Regrettably, there has been no progress with regard to holding future meetings of the Military Coordination Commission alternately in the capitals of Ethiopia and Eritrea.
Status of the Mission and related issues
14. As at 26 February 2004, the total strength of the UNMEE military component stood at 4,016, comprising 3,690 troops, 112 headquarters staff officers, and 214 military observers (see annex II).
15. I appeal once again to the Government of Eritrea to sign the status-of-forces agreement with the United Nations without further delay. The model status-of-forces agreement continues to be in effect in the interim. The Eritrean authorities continue to impose national service obligations on UNMEE local staff members, in contravention of the model status-of-forces agreement and the 1946 Convention on the Privileges and Immunities of the United Nations. My Special Representative, Legwaila Joseph Legwaila, continues to pursue and protest about the matter, including the detention by the Government of some local staff on the basis of national service obligations. It is to be recalled that Ethiopia signed the status-offorces agreement with the United Nations in March 2001.
16. In accordance with the Secretary-General's bulletin on special measures for protection from sexual exploitation and sexual abuse (ST/SGB/2003/13), UNMEE identified a focal point to receive complaints on sexual exploitation and harassment. In addition, in an effort to promote gender awareness, UNMEE has incorporated a module on gender awareness into the ongoing training programmes for both its civilian and its military personnel. The awareness campaign to promote gender sensitivity within the Mission is ongoing.
17. Owing to the recently announced plans of the Government of Eritrea to upgrade a nearby airstrip, UNMEE has been requested to relocate its established military and other facilities in Barentu to a new site eight kilometres from the town. This relocation, which is expected to be done at considerable cost to the Organization and which involves both administrative offices and military camps, commenced on 19 January and is expected to be completed by the end of March. On a separate issue, UNMEE and the Secretariat are currently reviewing the overall security of the Mission's facilities.
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