Bush's U.N. Agenda Is Well Under Way

By STEVEN R. WEISMAN
Published: August 2, 2005
http://www.nytimes.com/2005/08/02/politics/02diplo.html?th&emc=th  (must register to view original article)

WASHINGTON, Aug. 1 - Now that he is finally going to the United Nations as ambassador, John R. Bolton is supposed to "provide clear American leadership for reform" there, President Bush said Monday. But American officials say much of their reform agenda at the United Nations has been accomplished during the months while Mr. Bolton's nomination languished.

Photo:
Doug Mills/The New York Times
John R. Bolton at the White House on Monday as President Bush announced his appointment to be ambassador to the United Nations.

"Most of the reforms sought by the United States are well on their way to completion," said a senior administration official, speaking anonymously to avoid undercutting the rationale for the Bolton appointment. Another said that because so much had been achieved, there was little concern that Mr. Bolton's combative personality would jeopardize the agenda.

Mr. Bolton arrives at a time when significant disputes, such as those involving the nuclear programs of Iran and North Korea, could well come before the Security Council for review and possible sanctions. Another key question is whether to allow one or more new nations permanent seats on the Council; Japan, Germany, India and Brazil are vying to join the United States, Russia, China, Britain and France.

While the United States supports a seat for Japan, Bush administration officials say they do not want to press for it until the other changes they have sought are put into place in September, when the General Assembly meets.

United Nations and American diplomats are predicting that the main challenge facing Mr. Bolton will be less to "reform" the United Nations than to convince his conservative admirers in Congress that recent changes are real, particularly those put in place after scandals in the oil-for-food program and in some peacekeeping operations.

Aides to Mr. Bush have outlined six major objectives for what is called reform, and the administration has won support for all of them from Secretary General Kofi Annan and from other countries.

The first, administrative streamlining in Mr. Annan's office, to avoid a repetition of the corruption and mismanagement in the oil-for-food program, is being overseen by a newly appointed under secretary general for management, Christopher B. Burnham, an American, who previously oversaw budget, administration and security at the State Department.

A second objective, elimination of the United Nations Human Rights Commission, where countries like Libya, Sudan and Cuba have sat and made judgments on other nations' records, is likely to be achieved in September, though the process of replacing it with another body could take a year, according to United Nations officials.

A third goal, setting up a United Nations Democracy Fund, has generated broad support.

Two other goals are in the offing, including adoption of a new treaty opposing terrorism within countries as well as between them, and establishing a "peace-building commission."

Finally, the United States is close to achieving a broad statement at the United Nations laying out policies toward alleviation of poverty in developing countries. In recent days, several United Nations officials and diplomats said they did not think the fact that Mr. Bolton would be getting a recess appointment, and therefore serving a short term, would by itself undercut his effectiveness.

"He will come here with the support of President Bush, and that's going to mean a lot," said one European diplomat, asking not to be quoted by name because the decision to speed the appointment was seen as an American matter. Another European diplomat said Mr. Bolton would most likely be careful, at least initially, to observe diplomatic niceties, given his reputation as an infighter, which opponents cited in trying to block him.

More important than Mr. Bolton's style, several diplomats said, was the clear indication in recent months, while Mr. Bolton's nomination was in suspension, that Secretary of State Condoleezza Rice had taken the lead in advocating changes at the United Nations.

Diplomats say they are aware that Mr. Bolton goes to the United Nations with as controversial a reputation inside the administration as outside it.

Though Mr. Bolton is a favorite of Vice President Dick Cheney, Congressional and administration officials say Ms. Rice declined to appoint him as deputy secretary of state, in part because Senator Richard G. Lugar, the Indiana Republican who is chairman of the Foreign Relations Committee, told her he did not think he could be confirmed.

Ms. Rice now says sending Mr. Bolton to the United Nations was her idea, not anyone else's. But administration officials say one advantage for her was that Mr. Bolton will be executing policy at the United Nations, not necessarily formulating it.

Congress will continue to watch Mr. Bolton for several reasons, administration officials say. For one thing, legislation affecting the United Nations remains before the Congress. In addition, Congress and the administration will both want to be sure that reforms that have been agreed to are actually carried out.

The administration, for example, opposes a move in Congress to impose a cutoff of paying United Nations dues that has already passed the House of Representatives. Ms. Rice and her aides have been working with senators to block the measure.

In this effort, the administration has won over one of the United Nations' toughest critics, Senator Norm Coleman, the Minnesota Republican who has led the investigation into the oil-for-food program and called for Mr. Annan's resignation.

In an interview, Mr. Coleman said he was "thrilled that the administration is committed to U.N. reform" and that "it has achieved so much" on its major objectives. But he said other steps need to be taken, including eliminating what he said was a bias against Israel on the part of United Nations commissions and agencies.

If the Security Council is expanded, the Senate will have to approve the changes, because they are part of the United Nations Treaty.

Administration officials say it will be impossible to make any changes in the treaty until conservatives are satisfied with the progress on the other "reform" agenda items. Mr. Bolton, they say, is likely to play a role, not simply in conveying administration wishes on these matters to the United Nations, but also to Congress.