EU COMMITTED TO SENDING A POSITIVE MESSAGE TO KIEV

C O N F I D E N T I A L SECTION 01 OF 02 BRUSSELS 005302 SIPDIS NOFORN DEPT FOR EUR/ERA, EUR/UMB E.O. 12958: DECL: 12/15/2014 TAGS: PREL PGOV UP RS PL EUN USEU BRUSSELS SUBJECT: EU COMMITTED TO SENDING A POSITIVE MESSAGE TO KIEV REF: A. BRUSSELS 5258 ¶B. WARSAW 5290 ¶C. KIEV 4927 ¶D. MOSCOW 15312 Classified By: USEU POLOFF EMAZUR FOR REASONS 1.4 (B,D) SUMMARY -------------- ¶1. (C) The December 13 GAERC endorsed a European Neighborhood Policy "Action Plan" (AP) for EU-Ukraine cooperation, billing it as part of an effort to send a positive signal to Kiev. In fact, the AP's provisions remain unchanged from the draft which existed prior to the recent events, and offer little to Ukraine, especially on the big question of possible EU accession. Member States, we are told, remain split along geographic lines regarding Ukrainian membership. Those who support the idea are moving slowly to get opponents &accustomed to the thought8 of Ukraine in Europe. The EU is pleased its recent efforts demonstrated EU willingness to act, even in the face of Russian opposition. End Summary. Going the extra mile for Ukraine? -------------- ¶2. (C) The December 13 General Affairs and External Relations Council (GAERC) session endorsed the EU's Action Plan (AP) for Ukraine (along with several others) under the European Neighborhood Policy (ENP). Council official Carl Hartzell told us that the GAERC understood the importance of sending a positive signal to Ukraine to reinforce the country,s democratic changes. Hartzell said the GAERC also tasked the High Representative Javier Solana and External Relations Commissioner Benita Ferrero-Waldner with preparing a proposal that would commit the EU to be more &forthcoming in setting an ambitious agenda.8 According to Hartzell, Solana and Ferrero-Waldner will probably present their ideas as soon as the next GAERC on January 31, 2005. He suggested the February GAERC may decide on its adoption. Hartzell noted that the EU,s &philosophy8 toward Ukraine remains unchanged: Ukraine must deliver on common values, such as commitment to democracy, human rights, and media freedom. What is different, he said, was that with a new Ukrainian president in office, the EU would be willing to set the AP provisions in motion. Heads of State and Government at the European Council meeting on December 16-17 will issue brief Conclusions on Ukraine reflecting the GAERC discussions. No support for membership, for now -------------- ¶3. (C) The EU,s attitude regarding Ukraine,s EU accession likewise remains unmoved. The Commission's Head of Unit for Political Affairs for Russia, Ukraine, Moldova, and Belarus Hilde Hardeman (protect) shared with us that on December 8 the Permanent Representatives Committee (COREPER) President assessed Ukraine,s EU accession chances as having &no shadow of support.8 Hardeman and Hartzell separately dismissed Ferrero-Waldner,s statement that the EU is ¬ closing any doors8 as the RELEX Commissioner's personal opinion -- one that would not affect the EU,s final decision. Hartzell added he would be "extremely surprised8 if the European Council raised the issue in the next few months. Similarly, Polish First Secretary Cezary Bardzinski (protect) told us it would &take a miracle8 for the EU to offer Ukraine membership even in a long-term perspective. At most, he said, in 2006 the EU might revise the Partnership and Cooperation Agreement (PCA) to include a &vague vision of potential membership.8 ¶4. (C) Explaining the EU stance, Hartzell argued that free and fair elections were an insufficient criterion for EU membership, pointing to Moldova,s free and fair elections that failed to qualify the country as a candidate. Hartzell, however, acknowledged that free and fair elections in Ukraine would constitute a new circumstance that would require the EU to respond with a positive signal, which he was certain would be limited to a more generous assistance package. The EU satisfied with its approach -------------- ¶5. (C) The EU appears pleased with its recent efforts on behalf of Ukraine, such as the adoption of the Action Plan and Solana,s mediation. Council Secretariat,s Carl Hallergard told us that the timing of the AP's endorsement was chosen to send a decisive signal of the EU,s support for the democratic process in Ukraine. The endorsement demonstrated the EU,s willingness to push despite Russia,s refusal to engage on the EU neighborhood policy. Hartzell acknowledged that the Council was satisfied with Solana,s role in &setting the rules of the game8 and &felt much better8 after the Rada approved what the EU viewed as the crucial issues -- the electoral law reform and the dismissal of the Central Electoral Commission (note: the Rada also passed constitutional amendments). ¶6. (C) Nevertheless, EU officials and diplomats agree that the ball is in Ukraine,s court, which must demonstrate its long-term commitment to democracy and human rights. For its part, the EU is now focused on providing approximately 3 million euros funding and observers for the December 26 third election round. There is political will to have as many observers as possible, according to Hallergard. At the same time, Hartzell and Council Secretariat,s Annika Weidemann shared with us that the OSCE officials had told them that they might be unable to handle more than 1,000 observers for logistical reasons. Getting to a yes: a long-term perspective -------------- ¶7. (C) The EU,s approach toward Ukraine will remain &neither yes nor no8 regarding the country,s candidacy, according to Bardzinski, partly because Member States are almost equally split along geographic lines in their attitude toward potential Ukrainian accession. Bardzinski said Poland's views face &significant resistance8 from Germany, France, the Benelux, and the countries of the Mediterranean. He said that Poland would work on changing the opponents, current &allergic reaction8 to Ukrainian EU membership by getting them &accustomed to the thought8 that Ukraine belongs in Europe over the next several years. Bardzinski told us that opponents feared Russia's reaction, and also worried about language creep in which a reference to potential long-term Ukrainian accession evolves into a surprise membership offer. Nevertheless, Member States such as the Nordics, the Baltic states, and the Visegrad four insist the EU must act immediately to intensify cooperation with Ukraine beyond the Action Plan and refocus the EU's attention more eastward than it has done thus far. ¶8. (C) European Commission,s Russia Desk Officer Michael Miller (protect) told us that Russian aggressive Cold War rhetoric on Ukraine would be difficult for Russia to reverse. He noted that the Russian Ministry of Foreign Affairs (MFA) was &extremely emotional and irrational8 about US assistance to Georgia, and linked the democratic developments in Tbilisi to the events in Ukraine as both US-funded and US-instigated. Miller shared with us that the Russian MFA warned the EU that a potential split in Ukraine would be the West,s fault. Miller noted that the Ukrainian election provided an opportunity for the US and the EU to work together on the shared goal of promoting democracy and human rights. COMMENT -------------- ¶9. (C) Recent events in Ukraine have not altered the current EU policy toward Ukraine in any fundamental way. The EU has offered to include the country in its &ring of friends8 -- and no more. Mention of a distant accession appears to prompt an allergic reaction in some major Member States. They insist on keeping Ukraine in the ENP category -- effectively excluding it from eventual membership -- despite the push by some veteran and new members to move beyond the ENP,s Action Plan. The possible election of opposition candidate Victor Yushchenko may force the EU to redefine its relationship and could increase pressure on the EU to consider the possibility of eventual EU membership. EU advocates of Ukrainian accession have little leverage over the opponents, who already consider the EU overwhelmed by the last round of EU enlargement, and are struggling with their crucial decision on Turkey. MCKINLEY