A/S SILVERBERG'S MEETINGS WITH FM LI, IO DG WU AND

C O N F I D E N T I A L SECTION 01 OF 07 BEIJING 000619 SIPDIS SIPDIS E.O. 12958: DECL: 01/26/2017 TAGS: PREL UNSC CH IR KS KN SU SUBJECT: A/S SILVERBERG'S MEETINGS WITH FM LI, IO DG WU AND POLICY PLANNING DG MA Classified By: Political Minister Counselor Daniel Shields. Reasons 1. 4 (b/d). Summary -------------- ¶1. (C) Foreign Minister Li Zhaoxing told A/S Silverberg Beijing hopes U.S.-China cooperation on international organizations issues will continue in 2007, with the United States and China addressing problems arising in various hotspots based on a constructive, cooperative, win-win approach. FM Li emphasized that Taiwan is the most important issue between the United States and China. A/S Silverberg said that, as the President has made clear, the United States remains committed to its one China policy. In a meeting with MFA IO DG Wu Hailong, whom A/S Silverberg invited to visit Washington for IO consultations, A/S Silverberg underscored the need for China to support the renewal of the UN StabilizationMission in Haiti (MINUSTAH) mandate. On Iran, Wu said Tehran is still interested in the eleven-point proposal agreed to between Iranian nuclear negotiator Larijani and European Union foreign policy chief Solana. Regarding the DPRK, A/S Silverberg urged that China support faster movement by the UNSCR 1718 Sanctions Committee. A/S Silverberg urged China to support Ugandan Alex Coutinho's election to be the head of the Global Fund. Wu said the MFA will ask the Ministry of Public Health to give the matter favorable consideration. A/S Silverberg sought China's support for a UNGA resolution condemning the denial of the Holocaust. Wu said China will support the resolution. MFA IO Director Yang Tao told A/S Silverberg that China's PermRep in Geneva Ambassador Sha Zukang is likely to become a UN Under Secretary General in New York. End Summary. ¶2. (C) A/S Silverberg discussed international organizations-related issues in separate meetings on January 23 with Foreign Minister Li Zhaoxing, MFA International Organizations Director General Wu Hailong and MFA Policy and Planning Director General Ma Zhaoxu. Septel reports on A/S Silverberg's January 22 meeting with Assistant Foreign Minister Cui Tiankai. U.S.-China Cooperation -------------- ¶3. (C) In the meeting with FM Li, A/S Silverberg praised U.S.-China cooperation on the selection of Secretary General Ban Ki-moon and World Health Organization Director General Dr. Margaret Chan, resolutions on the North Korean nuclear issue and productive work on Darfur. FM Li noted that the cooperation extends to the Middle East and Afghanistan. Cooperation serves mutual interests and helps implement the consensus reached by President Bush and President Hu, who met at least three times in 2006 and spoke by phone five times. FM Li said he met Secretary Rice 17 times in 2006. The United States and China, as permanent members of the UN Security Council, shoulder great responsibilities. Beijing hopes U.S.-China cooperation on international organizations issues will continue in 2007, with the United States and China addressing problems arising in various hotspots based on a constructive, cooperative, win-win approach, FM Li said. Taiwan -------------- ¶4. (C) FM Li emphasized that Taiwan is the most important issue between the United States and China. Beijing appreciates President Bush's commitment to one China and the Three Joint Communiques and opposition to Taiwan independence. Beijing hopes that for the sake of U.S.-China relations the two countries can work together to counter Chen Shui-bian's separatist activities. The United States should end weapons sales to Taiwan and official contacts with Taiwan, FM Li added. A/S Silverberg said that, as the President has made clear, the United States remains committed to its one China policy based on the three joint communiques and the Taiwan Relations Act. ¶5. (C) In a separate meeting, MFA International BEIJING 00000619 002 OF 007 Organizations Director General Wu Hailong said Taiwan is a core interest for China. The Taiwan authorities seek to leverage Taiwan's participation in international organizations to pursue an independence agenda. The PRC strongly opposes the Taiwan authorities' aims and wants the United States to stay vigilant and ensure that one China is upheld. The PRC expects Taiwan's supporters to seek to include Taiwan on the United Nations General Assembly's agenda and also to press the issue during the World Health Assembly. Taiwan's stated goal of meaningful or substantial participation in WHO activities is simply cover for the Taiwan authorities' aim to create "two Chinas" or "one China, one Taiwan," DG Wu asserted. Polmincouns, accompanying A/S Silverberg, reaffirmed the U.S. one China policy based on the three joint communiques and the Taiwan Relations Act. ¶6. (C) DG Wu said the international community should not support the Taiwan authorities' attempts to politicize the WHO. The PRC recognizes the legitimate public health concerns of the people on Taiwan and the PRC Ministry of Public Health explicitly agreed in its 2005 Memorandum of Understanding with the WHO that Taiwan doctors and technical experts can participate in certain WHO technical activities. Taiwan doctors participated in five such events last year. The Central Government is making unified arrangements for Hong Kong, Macau and Taiwan with regard to the international health regulations to be discussed in May. The United States and China cooperate on public health matters and China appreciates the United States support for Dr. Margaret Chan's successful candidacy for WHO Director General. Haiti -------------- ¶7. (C) A/S Silverberg underscored the need for China to support the renewal of the UN Stabilization Mission in Haiti (MINUSTAH) mandate, noting the ongoing lawlessness and danger in Haiti. DG Wu responded that MINUSTAH's mandate should be extended by at most six months, stating this should be the last extension and the scope of MINUSTAH's mandate should be reduced. The PRC position is based on three considerations. First, Haiti has held successful presidential and parliamentary elections. Second, the peacekeeping operation is becoming a peacebuilding operation. Third, MINUSTAH has never been fully staffed and the mandate should reflect more accurately the correlation between the budget and available human resources, DG Wu said. ¶8. (C) DG Wu said that President Preval agreed last year not to do anything to hurt the feelings of the Chinese people. China supported MINUSTAH and even contributed 180 police. The Haitians then went back on their word and were the first to speak on behalf of Taiwan at the UNGA. This hurt China's interests and ran counter to applicable UNSC resolutions. The PRC requires the Haitian government to apologize for the matter, promise in writing never again to hurt the feelings of the Chinese people and stop supporting Taiwan. Regrettably, the Haitian government has refused to meet the PRC requirements, making it difficult for the PRC to show flexibility. The United States should ask the Haitian government to meet the PRC requirements, DG Wu said. ¶9. (C) In response, A/S Silverberg said MINUSTAH will have to be on the ground for some time, given Haiti's instability. To pull the plug on MINUSTAH now would not only endanger current progress, but would also be an affront to Brazil and other Latin American countries that have provided support, and even sacrificed lives, for the operation. The particular dynamics of peacekeeping in Haiti require long-term planning that would not be met by a six-month mandate. The United States understands President Preval has written to clarify his views and hopes that the PRC will accept the assurances the Haitians are offering. China should join the United States in supporting the renewal of MINUSTAH's mandate, A/S Silverberg underscored. Iran -------------- BEIJING 00000619 003 OF 007 ¶10. (C) DG Wu said that with UNSCR 1737, the Iran nuclear issue entered a new phase. The United States and China have common interests and goals, including strengthening the nuclear nonproliferation regime, ensuring that Iran does not get nuclear weapons and resolving the issue through diplomacy. New turbulence in the Middle East must be avoided. The PRC is disappointed by Iran's behavior. China has many times asked Iran to suspend its enrichment activities but has been rebuffed. The PRC believes the way forward is to restore the EU-3 negotiations with Iran. DG Wu noted that he participated in the meetings between Iranian Special Envoy Larijani and President Hu Jintao and State Councillor Tang Jiaxuan. He came away with the impression that Iran is still interested in the eleven-point proposal agreed to between Iranian nuclear negotiator Larijani and European Union foreign policy chief Solana. ¶11. (C) A/S Silverberg said the United States has seen no indication that Iran is willing to address the international community's concerns over the nuclear issue. The best way to address Iran's provocations is to increase the pressure on the regime to cooperate with the international community. Negotiations over the 11 points would not be constructive. The PRC and other UN members should consider their contracts with Iran, including weapons sales and investments, even beyond the scope of the UNSCR 1737 sanctions. After sixty days, it may be time to consider additional measures that were not included in UNSCR 1737, A/S Silverberg said. DG Wu said sanctions are a means, not an end. The PRC has instructed all ministries and provincial governments to seriously implement the provisions of UNSCR 1737 in order to exert enough pressure to get Iran back to the negotiating table and reach a negotiated settlement. The PRC worries, however, that too much pressure will cause Iran to leave the Nuclear Nonproliferation Treaty and close the door to IAEA cooperation. A/S Silverberg said sanctions help block Iranian access to resources that would support illicit nuclear-related activities and are needed to persuade the regime to change its policies. The Europeans agree that Iran must comply with UNSCR 1737 and show that it wants to reach a settlement. The international community cannot allow the Iranian nuclear program to proceed unchecked, A/S Silverberg added. UNSC Reform -------------- ¶12. (C) DG Wu said the PRC hopes to continue cooperation and coordination on UNSC reform as PRC and United States' interests are closely linked. DG Wu passed A/S Silverberg what he described as a "dangerous" UNSC reform proposal (septel) that he said India will attempt to win support for at the upcoming African Union (AU) Summit. A/S Silverberg said that the United States will not support the Indian proposal because it calls for expansion of the UNSC by eleven members. An unwieldy or deeply divided Security Council cannot meet current global challenges. The United States supports Japan's candidacy for permanent membership but strongly opposes the G-4 proposal. A gap in expectations exists within the UNGA on the reform process, A/S Silverberg added. ¶13. (C) DG Wu said the G-4 seeks a breakthrough on UNSC reform in the UNGA. UNGA President Al Khalifa also wants to resume the UNSC reform working group. The working group should not have a fixed time frame. UNSC reform is not on the agenda at the African Union Summit and the PRC will actively lobby in Addis Ababa to ensure it does not arise. China is also very worried about Japan's new proposal for UNSC reform as described in the media, which indicates that any country can join the Security Council so long as it meets a certain threshold for support. China believes that the goal of UNSC reform should be to maintain the UNSC's authority and efficiency. Reform should proceed step-by-step based on broad consensus with no deadlines, DG Wu added. A/S Silverberg underscored that the United States believes Japan has much to add to the council because of its commitment to the UN and to play a constructive role in the international community. The United States supports modest expansion of BEIJING 00000619 004 OF 007 the Security Council to include Japan. DPRK -------------- ¶14. (C) The adoption of UNSCR 1718 reflected the concerted efforts of the United States and China, DG Wu said. China is seriously implementing the resolution and will not allow individuals or entities to transfer weapons of mass destruction to the DPRK. The MFA has informed all ministries and provincial governments, including the Hong Kong and Macau authorities, of their obligations under UNSCR 1718. Implementation is going well. Recent United States-DPRK consultations in Berlin within the Six-Party Talks framework have created favorable conditions for another round of the Six-Party Talks. The UNSCR 1718 Sanctions Committee still must finalize its list of individuals subject to the travel ban and asset freeze. If a list is adopted, China will immediately direct its financial institutions to freeze the relevant assets, DG Wu said. ¶15. (C) Designation of individuals for the travel ban or asset freeze must be based on solid evidence, DG Wu said. Subjecting DPRK government, party or military officials to the travel ban will result in a strong DPRK response and will affect the Six-Party Talks, DG Wu noted. A/S Silverberg agreed progress had been made in Berlin but said the United States is disappointed the Sanctions Committee has failed to move more quickly. Action must proceed on two tracks: 6-party talks combined with firm implementation of 1718. China should support faster movement by the UNSCR 1718 Sanctions Committee. It is time to move past procedural matters and make decisions expeditiously, A/S Silverberg emphasized. Lebanon/Syria -------------- ¶16. (C) The Lebanon/Syria issue is complicated by the regional context, DG Wu said. In general, progress has been made toward the implementation of UNSCR 1559. For example, Syria's military and intelligence apparatus has withdrawn from Lebanon and Lebanese parliamentary elections have been held. Lebanese government troops have deployed to certain areas. The international community should seize the opportunity to find a solution to the crisis and avoid turbulence. The international community should also put pressure on Lebanon and Syria to respect UNSC resolutions. Lebanon's independence, national sovereignty and territorial integrity must be respected. Arab countries' views must be considered or it will not be possible to fully implement UNSCR 1559, DG Wu noted. ¶17. (C) Some Arab countries are not satisfied with UNSCR 1559 and believe it interferes with Lebanon's sovereignty and that Israel is the "root cause," according to DG Wu. A/S Silverberg said the international community must strongly support Lebanon's democratically elected government, which supports implementation of UNSCR 1559. Lebanon faces a number of challenges in spite of the progress made under UNSCR 1559. While the Lebanese government prepares for peace, Syria, Iran and Hezbollah are preparing for war. The international community should react strongly to Syria's continued meddling and help the Lebanese government deter assassinations and violence, A/S Silverberg stressed. DG Wu said the international community must be very cautious in pressing for Hezbollah's disarmament because the organization is in parliament but also, for historical reasons, has a military wing. Lebanon also wants United Nations trusteeship for the Sheb'a Farms, DG Wu added. A/S Silverberg pointed out that while disarming Hezbollah may be difficult, the PRC would not allow such an armed group to operate in China. There is no justification for Hezbollah to operate with one foot in terrorism and the other in politics, A/S Silverberg underscored. A/S Silverberg also raised the importance of UNSC support for the investigation and tribunal related to the Hariri assassination. Sudan/Darfur BEIJING 00000619 005 OF 007 -------------- ¶18. (C) Sudan's Government of National Unity (GNU) continues to differ with the international community on the issue of "mixed troops" for Darfur, DG Wu said. The GNU insists that command and control stay with the African peacekeepers and that the United Nations provided only technical personnel. President Bashir believes a UN PKO will interfere with Sudan's sovereignty by changing Sudan's judicial system. Nonetheless, progress has been made on Darfur. The international community should persuade the GNU to accept the third part of the three-part plan, involving mixed troops from the AU and the UN. China disagrees when the GNU talks about "mixed action" as opposed to "mixed troops." The UNSC should adopt a resolution soon to provide financial assistance for the AU peacekeepers, whose mandate will extend to June 2007. Humanitarian assistance should also be guaranteed, DG Wu added. ¶19. (C) The PRC has done much to persuade the GNU to work with the international community, DG Wu said, citing AFM Zhai Jun's recent trip to Sudan. Chinese authorities also conveyed to the GNU the messages they took from their meetings with Special Envoy Natsios. China will continue to work on the GNU in China's own way to ask the GNU to show flexibility and accept the United Nations' proposals as soon as possible, DG Wu added, noting that President Hu Jintao will soon visit Sudan. A/S Silverberg said the United States has given the GNU assurances that it is interested in helping to ease the humanitarian crisis in Darfur, not in regime change. A/S Silverberg reiterated Special Envoy Natsios, point that in the event of Sudanese obstruction of the peacekeeping mission, it would be necessary to move to &Plan B.8 Kosovo -------------- ¶20. (C) DG Wu told A/S Silverberg that China sincerely expects the future status of Kosovo to be resolved smoothly and successfully, butis concerned that Serbia or Kosovo may rejectSpecial Envoy Ahtisaari's comprehensive proposal. Without Serbia and Kosovo's agreement, Wu said, "there could be problems." He noted the importance of addressing Russia's concerns as a neighbor. A/S Silverberg stressed the importance of considering the views of other Europeans -- the United Kingdom and France. The United States and EU nations believe the present situation in Kosovo is untenable. It is unlikely that Serbia will agree to Ahtisaari's proposal, she stated, and the UNSC must be prepared to deal with this possibility. The Global Fund -------------- ¶21. (C) A/S Silverberg urged China to support Ugandan Alex Coutinho's election to be the head of the Global Fund to Fight AIDS, Tuberculosis and Malaria. Noting the need to heal the divide between developed and developing countries following the last round of elections, she described Coutinho's experience effectively administering one of the largest AIDS programs in Africa. He is the only developing country candidate, she noted. Wu said the MFA will ask the Ministry of Public Health to give the matter favorable consideration. UN Resolution on Holocaust Denial -------------- ¶22. (C) A/S Silverberg sought China's support for a UNSC resolution condemning the denial of the Holocaust. She explained that the resolution would not condemn any particular country by name, but would call on Member States to withdraw any official denials of the Holocaust's occurrence. DG Wu said that the MFA has instructed China's Mission to the UN to support the resolution. Burma -------------- BEIJING 00000619 006 OF 007 ¶23. (C) On Burma, A/S Silverberg stressed the importance of preventing Rangoon from drawing the wrong conclusion from the UNSC debate. The UNSC disagreed about the Council's jurisdiction, not about the problems in Burma. The United States continues to be concerned about instability in Burma and believes we must collectively encourage Rangoon to change course. Wu said that China recognizes that Burma's handling of human rights, minorities, AIDS and narcotics are serious problems, but these are internal Burmese affairs. As Burma's neighbor, China is very concerned with these problems, which affect China. China has been encouraging Burma to address these concerns, to begin ethnic and political reconciliation and to receive a delegation of ASEAN Foreign Ministers. Polmincouns noted reports that Burma has turned down the visit by ASEAN Foreign Ministers. Wu said he believes there still could be such a visit. A/S Silverberg said whatever may happen with regard to process in terms of diplomatic outreach by ASEAN or the UN, there need to be results that improve the conditions of the Burmese people. ¶24. (C) In a separate meeting, Policy and Planning DG Ma Zhaoxu stressed that China has the same fundamental position as the United States and European nations on seeking stability and development in Burma. China believes, however, that it is necessary to be patient with Burma and that the organization that is most likely to have a positive impact on Burma in the long term is ASEAN. Washington appreciates Beijing's efforts to promote peace and stability in Burma, but does not see that these efforts have made progress, A/S Silverberg said. Nepal, Afghanistan and Somalia -------------- ¶25. (C) In the DG Wu meeting, Wu referred to Nepal's adoption of a provisional constitution and said he believes the situation in Nepal has greatly improved. Regarding Afghanistan, however, China remains deeply concerned. Terrorist insurgents grew stronger and more threatening last year. Afghanistan should step up its cooperation with Pakistan, Wu said. A/S Silverberg said Pakistan should also make efforts to improve its cooperation with Afghanistan. Wu, when asked about China's views on the future of Somalia, said African Union and UN peacekeepers must play an active role there. A/S Silverberg agreed, but noted Uganda's concerns about acting in Somalia without an exit plan and stressed the urgency of encouraging other countries to deploy peacekeepers. IO Consultations -------------- ¶26. (C) A/S Silverberg invited DG Wu to visit Washington for IO consultations. She noted that there are plans for P-5 IO DG consultations in Paris and suggested that peacekeeping operations be discussed. Wu agreed that the subject should be discussed. He said he is particularly concerned with the spiraling cost of peacekeeping operations, noting that China spent approximately USD 150 million last year. The P-5 needs to discuss improving the efficiency and effectiveness of UN peacekeepers, he said. A/S Silverberg agreed that the UN's DPKO is over-stretched and that action needs to be taken to improve the efficiency and effectiveness of UN peacekeepers and to address ethics and procurement problems and sexual exploitation by peacekeepers. Peacebuilding Commission -------------- ¶27. (C) DG Wu said that member states should give the Peacebuilding Commission strong support and assist it in carrying out its work effectively. The Commission is off to a smooth start, he claimed. A/S Silverberg said the United States sees the Commission as a focal point for coordination. It should not become another competitor for member state resources. Human Rights Council BEIJING 00000619 007 OF 007 -------------- ¶28. (C) When asked for his views on the Human Rights Council, DG Wu said that political confrontation between Western and developing countries remains a serious concern and has prevented the Council from concentrating on improving human rights. This year is critical for the Council, he believes, because the Council will need to finalize its rules of procedure. The United States is considering whether to join the Council, A/S Silverberg said, but is concerned that the Council has focused only on Israel. Personnel Rumors -------------- ¶29. (C) DG Wu shared with A/S Silverberg possible personnel changes involving Chinese diplomats. According to Wu, China's Ambassador to Australia Fu Ying is likely to become China's next Ambassador to the United Kingdom. He said China's Ambassadors to the UK, France, Germany and Russia will all return to Beijing by the end of the year, having reached retirement age. Wu was uncertain when Chinese UN Perm Rep Ambassador Wang Guangya will leave his post in New York, saying "maybe this is a secret." (Note: Ambassador Wang has been at the UN since 2003. End Note.) MFA International Organizations Department Director Yang Tao told A/S Silverberg separately that China's PermRep in Geneva Ambassador Sha Zukang is likely to become a UN Under Secretary General in New York. SIPDIS UN Board of Auditors -------------- ¶30. (C) The PRC will nominate Auditor General Li Jinhua for the United Nations Board of Auditors and would like United States' support for Li's candidacy, FM Li and DG Wu separately said. A/S Silverberg said the United States will consider the request. DG Wu passed to A/S Silverberg Li's curriculum vitae (septel) and noted that Li has been an auditor for more than thirty years. In response to A/S Silverberg's question, DG Wu said Li's platform will be to mobilize financial and human resources for the very challenging job of UN auditing. New Models for Global Challenges -------------- ¶31. (C) Asked by DG Ma whether new international institutions were needed, A/S Silverberg said the Proliferation Security Initiative (PSI) exemplies Washington's vision of how to address the need for new international arrangements. While the United Nations and other formal institutions are appropriate for handling certain issues, nations should be open to considering more flexible options in addressing other issues. Ma agreed that the international community should be willing to look for creative solutions, but also stressed the need for patience and for different countries to work together and learn from one another's experiences. A/S Silverberg expressed concern that some UNSC members seem unwilling to pass resolutions that are unambiguously under Chapter VII. This limits the UNSC's capabilities. Ma stressed the need for compromise and maintained that in some situations pure Chapter VII resolutions may not be realistic. DG Ma to Visit Washington -------------- ¶32. (C) DG Ma told A/S Silverberg that he is looking forward to visiting Washington in late January for Policy Planning talks with S/P Krasner. ¶33. (U) A/S Silverberg cleared this message. SEDNEY