Peacemaking Is a Risky Business - PRIO

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184 ‘Peacemaking Is a Risky Business’In late January 1994, the Johan Jørgen Holst Peace Fund was established within theWorld Bank to provide support with regard to start-up and recurrent costs for the Palestinianadministration in the Occupied Territories, including the establishment ofPECDAR. In short, the Holst fund was to provide the PA with ongoing budgetary support.Between 1994 and 1998, the Holst fund provided $213 million for budgetary supportand $39 million for emergency employment, and the fund represented a large shareof the 1994–95 disbursements. 154 In addition, the establishment of the fund made transactionsfrom donors to the World Bank and from there to the PA much quicker, in factcutting the transaction period down to a couple of weeks. Thus, while characterizing donorefforts as a ‘failure’ in 1994, Terje Rød Larsen noted in October 1995 that the donors were‘moving speedily’. 155 However, when it came to the police force, neither the United Statesnor the World Bank would permit the Holst Fund to be used to cover such costs. 156By late March 1994, there were definite signs that the Palestinians and the Israeliswere about to reach an agreement in Taba on withdrawal from Gaza and Jericho. Thismade the police question all the more urgent. With 48 hours’ notice, Norway’s newforeign minister, Bjørn Tore Godal, invited the parties to an emergency meeting inCairo on 24 March. 157On 14 January 1994, Johan Jørgen Holst had died following a series of strokes. Thenew foreign minister, 49-year-old Bjørn Tore Godal, had been a member of the LabourParty since the 1960s, and had been leader of the Labour Party’s Youth Movement(AUF) in 1971–73. The 1970s were characterized by a general radicalization ofmany youth organizations in Western states, and under Godal’s leadership the AUFhad adopted a resolution promoting the creation of a single democratic state in the entirearea known as Palestine under the British Mandate. Godal had also been a memberof the anti-EEC campaign prior to the Norwegian referendum in 1972, and hadworked for the Labour Party for several years. In 1986, he became a member of theNorwegian parliament. In 1991, he was appointed minister of commerce, and he becamea key person prior to the second Norwegian referendum on whether to join theEuropean Community, which was held in the autumn of 1994. This time, however,Bjørn Tore Godal was a key figure for the ‘yes’ campaign. 158Pledges concerning training and technical assistance to the Palestinian police werenow progressing more smoothly. However, there remained a large gap between estimatedcosts and pledges for financial assistance. Donor money was generally arriving154 Donor Investment in Palestinian Development 1994–1998. A Jointly-Prepared Report by theWorld Bank and UNSCO, p. 14; available at http://www-wds.worldbank.org/servlet/WDSContentServer/WDSP/IB/2001/09/21/000094946_01091104013980/Rendered/PDF/multi0page.pdf (1 February 2004)155 Quoted after Brynen 2000, p. 114; see also UD 308.82, 4, London to Foreign Ministry, 22 November1994; Financial Times, 22 November 1994; Aftenposten, 26 November 1994; Dagbladet,26 November 1994.156 UD 25.11/19t, 4, Paris to Foreign Ministry, 28 January 1994; 25.11/19y, 1, Press release, 28 January1994, Foreign Ministry; Brynen 2000, pp. 95, 155, 179.157 UD 25.11/19z, 1, Godal to donor countries 22 March 1994.158 Tamnes 1997, p. 240; Tveit 1996, pp. 451–452; Olsen 1998, pp. 111–112.
Implementing Peace185slowly. The security sector was the most complicated. Special Ambassador Terje RødLarsen, who chaired the meeting in Cairo, complained that ‘potential donors have notfollowed up’, and as a consequence ‘the supply of assistance from the internationalcommunity does not meet the urgent needs of the Palestinians’. 159 Rød Larsen proposedthat a joint Norwegian–Palestinian delegation should travel to different capitalsin order to discuss the situation. 160 In addition, he suggested that an ad hoc committeeto coordinate international assistance to the police force be established. Such a committeewould solve many of the political restrictions related to police assistance. TheCoordinating Committee for the International Assistance to the Palestinian PoliceForce (COPP), set up at the Cairo meeting, wasted no time and held its first meetingthe next day. To nobody’s surprise, Norway became chair. Cairo was the venue for themeeting, and the Norwegian embassy provided secretariat functions. COPP consistedof representatives from the USA, Russia, the EU, Japan, Egypt, Norway, Israel and thePLO. Finally, a forum for dialogue with regard to the establishment of a Palestinianpolice force was in place. 161The first Palestinian police officers were on duty by the beginning of May 1994, andofficers continued to be appointed in growing numbers. But pledges were still few,and there was still no coordinating mechanism for the transfer of assistance. The PAwas forced to use emergency money from other sources in order to meet the immediateneeds of the first security forces. By June 1994, the Norwegian embassy in Cairo,serving as COPP secretariat, was once more emphasizing the urgent need for donations.Approximately $10 million was disbursed by donors. Norway had granted $2million, the US $5 million and the EU $3.45 million. These contributions were givenbilaterally and as emergency aid. The United States, extremely reluctant to finance thepolice, had ‘worked out a mechanism with the PLO and Israel’ that provided full accountability.162159 Quoted after Brynen 2000, p. 172; see also UD 25.11/19z, Cairo to Foreign Ministry 6 April1994: ‘Siden Oslo-møtet har det vært liten aktivitet fra giverlandenes side. Den internasjonale bistandenmøter ikke behovene i forbindelse med opprettelsen av PPF.’160 The Palestinian–Norwegian Joint High Level Mission consisted of two delegations, which travelledto different donors, begging for urgent financial assistance. One delegation consisted ofTerje Rød Larsen and Yasser Abed Rabbo, and the other of Hans J. Biørn Lian and Faisal Husseini.The result was ‘fairly successful’, but many questions were left hanging in the air. In fact,not much concrete came of the process. In Washington, no financial pledges were made. For theAmericans, it was out of the question to contribute to recurrent costs in connection with the policeforce, Dennis Ross pointed out. However, the Americans agreed to put pressure on the EUand the Gulf states. UD 25.11/19z, 1, memorandum of 21 April 1994, Ræder; see also Paris toForeign Ministry 15 April 1994; London to Foreign Ministry 15 April 1994; EU delegation toForeign Ministry 19 April 1994; Washington to Foreign Ministry 20 April 1994; UN delegation(Lian) to Foreign Ministry 24 April 1993.161 UD 25.11/19z, 1, Godal to donor countries, 22 March 1994; Press release, 24 March 1994; Cairoto Foreign Ministry, 25 March 1994; Cairo to Foreign Ministry, 6 April 1994, minutes from theCairo meeting, 24 March 1994.162 UD 308.87, 1, Christopher to Godal, 3 June 1994; see also Cairo to Foreign Ministry, 19 June1994; Brynen 2000, p. 113.
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Institutt for fredsforskningInterna
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PREFACEIN JANUARY 2001, it was agre
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2 ‘Peacemaking Is a Risky Busines
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Chapter 1THE ROAD TO OSLOIDEALLY, M
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The Road to Oslo15Palestinians real
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The Road to Oslo17new Israeli gover
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The Road to Oslo19than ever. The Re
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The Road to Oslo21acceptance of the
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The Road to Oslo23After 1945, the i
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The Road to Oslo25headway. The new
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The Road to Oslo27The Madrid Confer
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The Road to Oslo29cial framework of
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Chapter 3THE MODEST FACILITATOR‘T
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The Modest Facilitator53state. The
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The Modest Facilitator55overcome. F
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The Modest Facilitator57accident. I
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The Modest Facilitator59The Oslo op
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The Modest Facilitator61underground
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The Modest Facilitator63kinds of st
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The Modest Facilitator65and I will
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The Modest Facilitator67ister Rabin
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The Modest Facilitator69had been -
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The Modest Facilitator71Rød Larsen
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The Modest Facilitator7379 and in W
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The Modest Facilitator75such an app
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The Modest Facilitator77be accused
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The Modest Facilitator79former US s
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The Modest Facilitator81providing c
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The Modest Facilitator83the importa
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Chapter 4THE ACTIVE MEDIATORAFTER F
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The Active Mediator87retary in the
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The Active Mediator89of the session
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The Active Mediator91But Rabin was
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The Active Mediator93They agreed to
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The Active Mediator95come first. At
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The Active Mediator97Singer taking
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The Active Mediator99A frustrated A
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The Active Mediator101However, the
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The Active Mediator103the second ph
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The Active Mediator105areas. In fac
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The Active Mediator107ings and emot
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The Active Mediator109DoP. For the
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The Active Mediator111Peres had pre
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The Active Mediator113legitimacy fo
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The Active Mediator115In Israel, R
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The Active Mediator117Washington. 1
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The Active Mediator119the changed I
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The Active Mediator121an extra trip
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The Active Mediator123Palestinians
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The Active Mediator125The points of
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The Active Mediator127point of view
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The Active Mediator129Peres knew th
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The Active Mediator131all Israelis
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