Identifier
Created
Classification
Origin
06TOKYO6635
2006-11-20 10:43:00
CONFIDENTIAL
Embassy Tokyo
Cable title:  

U/S BURNS MEETING WITH DFM NISHIDA ON IRAN,

Tags:  PREL JA 
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C O N F I D E N T I A L TOKYO 006635 

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E.O. 12958: DECL: 11/20/2011
TAGS: PREL JA
SUBJECT: U/S BURNS MEETING WITH DFM NISHIDA ON IRAN,
AFGHANISTAN, INDIA, BURMA AND UN ISSUES


Classified By: Ambassador J. Thomas Schieffer, reasons 1.4
(b, d).

C O N F I D E N T I A L TOKYO 006635

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E.O. 12958: DECL: 11/20/2011
TAGS: PREL JA
SUBJECT: U/S BURNS MEETING WITH DFM NISHIDA ON IRAN,
AFGHANISTAN, INDIA, BURMA AND UN ISSUES


Classified By: Ambassador J. Thomas Schieffer, reasons 1.4
(b, d).


1. (C) SUMMARY: Japan shares U.S. concerns about Russia's
obstructionist role in Iran discussions and would like to
play a part in pressuring Iran to abandon nuclear enrichment,
Deputy Foreign Minister Nishida told U/S Burns on November 6.
U/S Burns underscored U.S. concern about Iran's involvement
in Iraq and its support for terrorist groups. On
Afghanistan, U.S. Burns thanked Japan for its contributions
and urged increased engagement on the narcotics issue, which
the U.S. sees as a greater threat than the Taliban. DFM
Nishida, acknowledging Chinese sensitivities, asked for U.S.
support in building a "flexible, noncommittal" process for
U.S.-Japan-Australia-India cooperation. U/S Burns asked for
Japanese support for U.S. initiatives in Sudan. He and
Nishida agreed that the Sudan issue should be brought up in
the UN Security Council while Japan is still a member. DFM
Nishida reported that Japan is "not opposed" to a
non-punitive resolution on Burma. Securing a permanent seat
on the UN Security Council remains Japan's biggest UN reform
goal, he stated. U/S Burns observed that pushing UN reform
would be the major focus of his upcoming meeting in Seoul
with incoming UN Secretary General Ban Ki-Moon. END SUMMARY.


2. (C) Under Secretary of State for Political Affairs
Nicholas Burns met with Deputy Minister for Foreign Affairs
Tsuneo Nishida at the Ministry of Foreign Affairs on November

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6 to review a range of issues, subsequent to a discussion
earlier in the day focused on North Korea, implementation of
UNSCR 1718, and the Six-Party Talks.

Pushing for a Resolution on Iran
--------------


3. (C) U/S Burns stressed the importance of international
unity on Iran, saying that the United States has been
frustrated with the lack of consensus in the P-5 1 process.
Hailing the July UN Security Council resolution on Iran as a
clear mandate for action under Article 41, Burns said the
United States intended to push for passage of a targeted
resolution in December that would limit investment and trade
in Iran's missiles industry as well as travel by officials
working in those fields. The United Kingdom and France

strongly support sanctions, Germany is more or less on board,
but China and especially Russia are being obstructionist,
said U/S Burns. China seems to follow Russia's lead on Iran,
a reversal of the roles the two countries play towards North
Korea. The United States has warned Russia that its actions
over the next few weeks stand to significantly affect its
credibility, a message U/S Burns said he will repeat to
Moscow during this trip.


4. (C) Diplomacy alone has failed, U/S Burns told Nishida.
Iran's nuclear negotiator Ali Larijani never showed up for
his appointments in New York, possibly due to having lost
influence relative to President Mahmoud Ahmadinejad. The
United States is still open to a diplomatic solution once
sanctions have been passed, and would support Russia's
proposal that the P5 1 re-offer the June 1 package of
incentives. Any diplomatic approach will be made much
stronger by the backing of a new Security Council Resolution,
U/S Burns stated. Japan's role will be important, and the
United States intends to appeal to other countries as well,
including Italy and Canada. Washington does not expect a new
resolution to "fix" the problem with Iran, but rather to
provide a stronger position for negotiators working toward a
diplomatic solution. U/S Burns told Nishida that Secretary
Rice remains willing to return to negotiations. Broad
support for a new resolution could be enough to force Iran to
reassess its uranium enrichment program in Natanz.


5. (C) Financial measures are another important tool the
United States will use to pressure Iran, the Under Secretary
stated. Credit Lyonnais recently decided to stop lending to
Iran, joining international banks HSBC and UBS. The United
States will continue these financial measures no matter what
happens in the Security Council. U/S Burns thanked DFM
Nishida for Japan's sacrifice in dramatically reducing its
investment in the Azadegan oil field, emphasizing the
importance the our newly renewed Iran sanctions legislation
places on preventing foreign investment in Iran's energy
sector.


6. (C) Asked by DFM Nishida whether a new resolution would
exclude the Bushehr project, U/S Burns replied that it would
depend on Russia's cooperation with the other countries in
the P5 1 process. The United States is willing to support
the Russian Consortium, which includes providing nuclear fuel
to Iran and the removal of nuclear waste. Because the
project provides these services, the United States would back
a clause to exclude Bushehr from sanctions, provided Russia
is otherwise cooperative.


7. (C) The United States is very concerned about the role
Iran plays in Iraq, U/S Burns told DFM Nishida. There is
evidence of Iranians on the ground in Iraq, funding and
directing Shia insurgent groups. The United States suspects
Iran of passing improvised explosive device technology to
these same groups. Aside from its activities in Iraq, Iran
is the primary sponsor of at least four of the world's
largest terrorist groups. The United States is working
closely with Gulf and Levantine States to oppose Iran's
growing influence.


8. (C) Russia's credibility is definitely at stake in Iran,
agreed Nishida, saying that even on the most basic of
agreed-upon roadmaps, Moscow raises "ridiculous" objections.
Japan shares all of the concerns that Burns raised,
especially about Iran's growing regional influence and the
spread of extremism. Nishida was grateful that the United
States could see the significance of Japan's "difficult and
delicate" decision to "pass" on Azadegan, citing it as a sign
that Japan is not willing to subordinate its principles to
its commercial interests. Noting that Japan has very little
influence over Iran, Nishida hoped that the December election
there would not make the country even more extremist.


9. (C) Because the P5 1 process is New York-centered, Japan's
Permanent Representative to the United Nations Ambassador
Kenzo Oshima is best positioned to engage with the United
States on Iran, DFM Nishida suggested. Nishida requested
that Ambassador Bolton maintain close communication with
Ambassador Oshima on the timing and content of P5 1
deliberations. When Japan loses its seat on the Security
Council in December, this bilateral communication will be
more important than ever, said Nishida.

U.S.-Japan-Australia Trilateral Strategic Dialogue
-------------- --------------


10. (C) Nishida thanked Burns for the U.S. initiative in
offering to host a U.S.-Japan-Australia Trilateral Strategic
Dialogue ministerial in the western United States. However,
he said it would be very difficult for FM Aso to travel
outside Japan while the Diet is in session. Burns said he
would also be returning to the area, perhaps in the Spring,
and looked forward to meeting Nishida and DFAT Secretary
L'Estrange for a political directors TSD.

Looking Ahead in Afghanistan
--------------


11. (C) Japan's commitment to Afghanistan is steadfast, said
DFM Nishida. Ambassador Oshima will visit Afghanistan the
week of November 12-16, one of Japan's many initiatives to
the country within the UN framework. In support of the
Afghanistan Compact, Japan provides both financial and
personnel assistance, and plays a central role in the
Disarmament, Demobilization, and Reintegration (DDR) program.
Nishida said Japan is also eager to finish the Ring Road,
thanking Burns for U.S. assistance in identifying a
contractor.


12. (C) There is no overstating the importance of
international support to Afghanistan, U/S Burns replied. The
United States is optimistic about the country's future. The
multinational coalition is making great headway in beating
down the Taliban, even in the face of great sacrifices, like
Canada's 42 casualties. The quick development of
infrastructure in Afghanistan is critical to the delivery of
aid. This is especially important because of the current
explosion in opium poppy cultivation. U/S Burns said that
Afghanistan President Hamid Karzai is not responding as well
as we would like, and faces a future of increasing corruption
and crime as a result. He thanked Nishida for the Diet's
efforts to enable Japanese contributions to Afghanistan and
asked for increased engagement from Japan on the narcotics
issue, which the United States sees as a greater threat to
the country's stability than the Taliban. One possible model
for assistance is the U.S. effort to support the import of
products from Afghanistan's border areas, dubbed
"Reconstruction Opportunity Zones."


13. (C) When Nishida asked about the role of Pakistan in
Afghanistan's instability, Burns replied that Pakistan is a
good partner in the region. The United States has sympathy
for the challenges that Pakistani President Pervez Musharraf
faces in trying to control his country's border with
Afghanistan -- provinces of Pakistan that are effectively in
open revolt against the government. In spite of instability
in Pakistan and the loss several hundred soldiers in
counter-terrorism operations, Musharraf has continued to
press ahead in cracking down on lawlessness in the border
region. Burns pointed to Musharraf and Karzai's attendance
at a White House dinner party as a symbol of the two
countries' attempt to develop better cooperation.

Engage India without Alienating China
--------------


14. (C) India Prime Minster Manmohan Singh's December visit
to Japan will be a historic event that shows Japan and
India's deepening bilateral relationship, DFM Nishida told
the Under Secretary. Japanese Prime Minister Shinzo Abe has
a strong personal interest in India, and when Singh was an
economist he focused on Japanese economics. Motivated by
these experiences and the obvious strategic benefit of
cooperation, the two leaders are expected to continue moving
their countries closer together. In addition, Abe is now
considering proposing a forum for Japan, the United States,
Australia, and India to meet quadrilaterally. This would not
replace the TSD framework, and could encompass non-security
issues, such as energy and trade. Japan is aware of the
sensitivity of this idea for China, and presenting it as a
Japan- and India-led initiative might be "strategically
clever," said Nishida. Nishida asked U/S Burns for U.S.
support in building a flexible, non-committal process for the
four countries to collaborate.


15. (C) President Bush and Prime Minister Abe both recognize
the strategic importance of India. The U.S. Senate will
consider the legislation for the U.S.-India Civil Nuclear
initiative soon, said Burns, and the United States hopes for
Japan's support in changing Nuclear Supplier Group
guidelines. The United States is interested in quadrilateral
discussions, but India may be hesitant and we have concerns
about China's reaction. Burns said he would talk to
Secretary Rice about the proposal so she could be prepared to

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discuss it further at the Hanoi ministerial.

International Action Critical in Darfur
--------------


16. (C) The United States is very concerned about the
situation in Darfur, U/S Burns commented. This is an
important issue for President Bush. U.S. Special Envoy
Natsios' recent visit to the Sudan confirmed that the
situation is getting worse and could expand into a regional
crisis. The United States is determined to get an
international force into the Sudan, and is proposing a hybrid
United Nations/African Union force. Burns asked Nishida to
back this proposal, continue food and medical assistance, and
support the Southern Peace Process.


17. (C) Although its influence in the Sudan is limited, Japan
will continue to voice its concerns, DFM Nishida replied.
The visit of Japan's own special envoy to Sudan was not a 100
percent success, but the Japanese believe that the Sudanese
government understands their position. Sudan Foreign
Minister Mustafa Osman Ismail was in the Japanese Ministry of
Foreign Affairs during the Burns-Nishida meeting, Nishida
observed, and FM Aso would use the opportunity to keep the
pressure on Sudan.


18. (C) The Sudan issue should be brought up in the UN
Security Council while Japan is still a member, agreed U/S
Burns and DFM Nishida. Noting the influence China enjoys in
Sudan because of its oil investments, U/S Burns said he would
raise the issue in Beijing later during his trip. This could
be a chance for China to use its influence for something
other than commercial purposes. U/S Burns suggested that
Japan might take advantage of its "new-found friendship" with
China to do the same.

A Non-Punitive Resolution on Burma
--------------


19. (C) The United States will present a non-punitive
resolution on Burma to the UN Security Council this December,
U/S Burns observed. First Lady Laura Bush takes an active
interest in Burma, and Security Council action would strike a
powerful blow for human rights, he said. The United States
appreciates Japan's help in getting Burma on the UNSC agenda,
and hopes that the two countries will work together on this
next step. The United States is worried that UN
Undersecretary-General Ibrahim Gambari, who Burns met the
last week of October, will be manipulated by the regime
during his November trip to Burma. Gambari said he has the
junta's assurances that he will see Aung San Suu Kyi. If
Gambari's trip is unsuccessful, there will be more reason
than ever to push for a UNSC resolution. Ambassadors Bolton
and Oshima must work together, said the Under Secretary.
Without Japan's support, the U.S. strategy would be very
difficult.


20. (C) Japan is not opposed to a non-punitive resolution,
said DFM Nishida. The continuing deterioration of the
situation in Burma has forced Japan to re-examine its policy.
Japan will wait for Gambari's report, and if it is not
positive, then it is time to "go a step forward," Nishida
explained. Japan is increasingly frustrated with China and
India's growing presence in Burma, and would like to work
more closely with the United States. Nishida requested that
Japan be provided a copy of the proposed resolution as soon
as possible.

UN Reform and a Permanent Seat
--------------


21. (C) U/S Burns explained that the primary purpose of his
upcoming meeting in Seoul with incoming UN Secretary General
Ban Ki-Moon is to push for UN reform. The United Nations is
riddled with problems, including the "spectacular failure" of
the Human Rights Council. Burns said he would address
Japan's bid for a permanent seat on the Security Council
along with these other issues during his meeting with Ban.
Japan is the only country that the United States supports
permanently adding to the Security Council, he emphasized.
Japan expects Ban Ki-Moon to make his "utmost efforts" to
reform the United Nations, including the Security Council,
said DFM Nishida. Prime Minister Abe has made it clear that
a permanent seat on the Security Council is one of Japan's
most important foreign policy goals. Abe will bring this
issue up in Hanoi during the APEC ministerial.

The WHO Short List
--------------


22. (C) Japan's candidate for Director General of the World
Health Organization, Dr. Shigeru Omi, is one of the United
States' top five candidates, U/S Burns told Nishida. DFM
Nishida replied that Dr. Omi is one of his close friends and
argued that he is the best candidate. Japan would fight hard
to see Dr. Omi elected, said Nishida.

Iraq
--------------


23. (C) The United Nations must pass a resolution by December
31 on Iraq to extend legitimization of the presence of
coalition troops, U.S. Burns noted. He asked for Japan's
support for such a resolution. He thanked Nishida for
Japan's strong contribution of the C-130 airlift. DFM
Nishida said that Japan and the United States had the same
interests in Iraq: a successful exit and enduring stability.
Although Japan's role is bound by legal limitations, Nishida
hoped that the United States and Japan would continue their
close collaboration in Iraq.


24. (U) Participants

United States
--------------

R. Nicholas Burns, Under Secretary for Political Affairs

J. Thomas Schieffer, Ambassador, U.S. Embassy
Mike Meserve, Political Minister Counselor, U.S. Embassy
Dr. Victor Cha, NSC Director for NE Asia
Sung Kim, Director, EAP/K
Steve Fagin, Special Assistant to U/S Burns
Scott Hansen, Embassy Notetaker

Japan
--------------
Tsuneo Nishida, Deputy Foreign Minister

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Chikao Kawai, Director General, North American Affairs
Bureau, MOFA
Hideki Ito, Deputy Director General, Middle Eastern Affairs
Bureau, MOFA
Takehiro Funakoshi, Senior Foreign Policy Coordinator,
Foreign Affairs Bureau, MOFA
Shigeki Takizaki, Director, UN Policy Division, Foreign
Policy Bureau, MOFA
Takeo Mori, Director, 1st North American Division
Kiyoshi Serizawa, Director, Arms Control and Disarmament
Division (Acting Director of Non-Proliferation, Science and
Nuclear Energy Division)
Tomofumi Nishinaga, Principal Deputy Director, Economic
Cooperation Bureau Grant Aid and Technical Cooperation
Division
Takatoshi Mori, Deputy Director, 1st North American Division
(notetaker)


25. (U) This message has been cleared by U/S Burns.
SCHIEFFER