IRAQ: OPERATION NORTHERN WATCH AND CIVILIAN

C O N F I D E N T I A L SECTION 01 OF 02 ANKARA 009135 SIPDIS DEPT FOR NEA/NGA AND EUR/SE LONDON FOR GOLDRICH PARIS FOR O'FRIEL E.O. 12958: DECL: 12/25/2012 TAGS: MARR MOPS PREL IZ TU SUBJECT: IRAQ: OPERATION NORTHERN WATCH AND CIVILIAN OVERFLIGHTS OF THE ROZ -- GOT REFUSES TO RE-ROUTE REF: A. (A) ANKARA 4444 ¶B. (B) ANKARA 2904 (U) Classified by DCM Robert Deutsch, reasons 1.5, b/d. ¶1. (C) MFA DG/Americas Banguoglu called in the DCM (accompanied by the Office of Defense Cooperation (ODC) Chief and Pol-Mil Counselor) 12/24 to respond to our 11/29 dipnote urging the MFA to end the practice of routing civilian passenger flights over the ONW Resticted Operating Zone (ROZ) in southeast Turkey during operations. Our note had stressed that any solution that failed to keep the ROZ free of civilian flights during ONW missions placed civilian passenger planes at an unacceptable level of risk. We also had warned that if the practice were not changed, the embassy would have to consider advising American travelers to avoid airlines using that corridor (VG-8). Our note followed a near-collision in March 2002, several ODC/Embassy meetings the Turkish General Staff (TGS) and Turkish Air Force (TUAF), the Ambassador's June meeting with the former Transportation Minister specifically to address this problem, and several subsequent meetings with the TGS and Turkish Air Force. In July, TGS wrote ODC that an alternate air route was being developed, and in October, the Turkish ONW Chief of Staff wrote the US COS indicating that the new route, which skirted the ROZ to the north, would be implemented by 10/15. However, just prior to that date, the Turkish COS notified the US COS that implementation was on hold. Since the ONW US Co-Commander still felt that the reduced altitude block allocated to ONW was not large enough to perform the mission safely, especially during winter weather, we sent the 11/29 dipnote. ¶2. (C) Banguoglu reviewed the MFA's dipnote reply before handing it over (text in para 6). Sitting in was the MFA's advisor for aviation affairs, a retired TUAF colonel, who also spoke at some length. Banguoglu's main point was that the GOT, including TGS and MFA, considered the US claims of danger "exaggerated" ("There is no tremendous danger," he said). The ROZ was not an "active combat zone," but rather only a NOTAM'd restricted zone. If evasive maneuvers by ONW aircraft necessitated their flying above 28 thousand feet, they could simply notify the relevant air traffic controllers (ATC). The GOT felt five thousand feet of separation below the 33 thousand-foot civilian floor was more than sufficient. That was more than Turkey allowed for NATO exercises. Banguoglu also said the GOT regarded as "most unnessary" our warning that we would recommend US travelers avoid airlines using the ROZ corridor. ¶3. (C) The DCM and ODC Chief pushed back. If MiG-25's come out of northern Iraq, that is not an exercise. The ROZ is an integral part of a real-world combat operation. Pol-Mil Counselor stressed that warning ATC of evasive maneuvers at high speeds could well be insufficient to avoid a catastrophe. ODC Chief also noted that civilian airliners had flown below 33 thousand feet and promised to follow up with documentation. ¶4. (C) The DCM concluded to Banguoglu that Turkey and the US have differing perceptions of what constitutes acceptable risk. We would continue to pursue this issue, probably in the military consultations on Iraq, once they resumed. ¶5. (C) Comment: Indeed, once the mil-mil talks resume, we will hit the Turks again with this issue. ¶6. (U) Begin text of Turkish 12/24 dipnote: The Ministry of Foreign Affairs of the Replublic of Turkey presents its compliments to the Embassy of the United States of America and with reference to the Latter's Note numbered 1338, dated November 29, 2002, has the honour to inform the Embassy that the issue of safety of civilian passenger flights in the airspace over the Operation Northern Watch's (ONW) Restricted Operating Zone (ROZ) has been re-examined with the participation of all relevant Turkish aurthorities. There appears to be certain conceptual differences in the views of the Turkish and USA authorities. The considered opinion of the Turkish side is the following: Based on mutual agreement between the Turkish and the US military, ROZ is not an "active combat zone", but is a NOTAMed "Restricted Airspace" within the sovereign airspace of Turkey. The upper limit of ROZ is 28,000 feet. Upon a request made by the relevant US authorities, as an exceptional practice, an additional 5,000 feet zone above the 29,000 feet is not allocated to civilian air traffic. As a result of this, at the VG-8 air corridor which passes east-west over ROZ, civilian aircrafts are permitted to fly only over 33,000 feet. VG-8 has been operational not since March 2002, but since after the Gulf War under the conditions explained herebefore. As long as the ONW operations are conducted within the NOTAMed limits of the ROZ area which they are required to in line with the international norms and practices, as well as Turkish national regulations, there will not be any risk left for the safety of the civilian aircrafts over flying the ROZ. Turkish military authorities are of the opinion that a ROZ level of 28,000 feet is enough to meet the current needs of the ONW flights. In exceptional cases when a technical or emergency requirement necessitates an ONW operated aircraft to fly above the NOTAMed area (which is up to 28,000 feet),in line with the international norms, it is the sole responsibility of that aircraft to inform immediately the relevant ATC or controlling military units, in order to ensure that necessary flight safety precautions are taken. As far as the requirements of the civilian air traffic is concerned, there is a continued need for the services of the VG-8 air corridor, in addition to the services of the newly opened UT-36 to the north of VG-8. Within this context and in the light of the close cooperation between Turkey and the United States, the phrase "....recommend advising all American travelers that they avoid airlines using VG-8" is considered to be unnecessary. The Ministry of Foreign Affairs of the Republic of Turkey avails itself of this opportunity to renew the Embassy of the United States of America the assurances of its highest consideration. Ankara, December 24, 2002. End text. PEARSON