RUSSIAN REACTION TO OSCE MADRID MINISTERIAL

C O N F I D E N T I A L SECTION 01 OF 02 MOSCOW 005751

SIPDIS

SIPDIS

E.O. 12958: DECL: 12/06/2017
TAGS: PREL OSCE RS
SUBJECT: RUSSIAN REACTION TO OSCE MADRID MINISTERIAL

Classified By: Political M/C Alice G. Wells for reasons 1.4 (b/d).


1. (C) Summary. The GOR viewed the November 29-30 OSCE
Madrid Ministerial as "controversial." On a positive note,
the MFA expressed satisfaction with the strengthened role of
the security basket, noting that the OSCE had a unique and
positive role to play in Afghan border security. On
environmental issues, the GOR was pleased with the specific
niche the text carves out for the OSCE, and it was hopeful
Slovakia's upcoming chairmanship of the Council of Europe
would support Russian positions on statelessness in Europe.
The MFA characterized the debate on CFE as positive, and that
although there were still differences, it appreciated the
frank dialogue and wanted to continue negotiations after
December 12. The GOR accepted the upcoming lineup for the
OSCE Chairmanship, but blamed U.S. interference for
Kazakhstan's pullout from the GOR-sponsored ODIHR reform. On
a negative note, Russian officials lashed out against U.S.
statements and perceived unilateralism regarding the defeat
of the OSCE reform measure and the future of ODIHR. The GOR
was not prepared to talk about the final outcome of the
Kosovo field mission. End Summary.


2. (C) In a briefing to the diplomatic corps, MFA Director
for European Cooperation Sergei Ryabkov characterized the
November 29-30 OSCE Ministerial in Madrid as "controversial"
with a mixed impression of plusses and minuses and, as in
recent years, "no one left completely happy." In his address
to the ministerial, FM Lavrov noted the meeting took place
"at a turning point" for Europe, and Ryabkov said that the
GOR continued to doubt the ability of the OSCE -- in its
current state -- to remain relevant in a changing world.

The Glass Half Full
--------------


3. (C) The GOR was pleased by the strengthened role of the
OSCE's security basket, Ryabkov said, although he noted that
the "reinvigorated" Forum for Security and Cooperation and
the more intense pace of events still had not reached their
full potential. The decision to establish an OSCE presence
in Afghanistan was an area Russia and the U.S. both strongly
supported, and Ryabkov said that the border monitoring
mission was well suited to the OSCE's strengths and would not
duplicate efforts already in place. He also noted that the
GOR's program for the training of Afghan anti-narcotics
forces was a useful contribution. He reiterated FM Lavrov's
caution, however, that out of area tasks should be "concrete,
targeted" and focused on problems that threatened OSCE member
states.


4. (C) Ryabkov said the final declaration on the environment
was a "good and sound" text that corrected for earlier, more
ambitious texts. The declaration spelled out the OSCE's
niche on these efforts, he noted, reducing duplication of
efforts better performed by other organizations and focusing
on the expert capabilities of the OSCE. The GOR also felt
that it successfully delivered its message against
statelessness and the rights of Russian speaking minorities,
which Ryabkov said the GOR hoped Slovakia would emphasize
during its Council of Europe chairmanship.


5. (C) Ryabkov characterized the debate on CFE as positive,
noting that the GOR was not overdramatizing the situation and
would continue negotiations after its suspension of the
treaty went into effect on December 12. He cautioned that
while the GOR appreciated the United States' frank approach
to talks, significant differences in approaches remained.
Regarding the timing of Putin's signing the CFE moratorium
during the OSCE ministerial itself, he noted that NATO had
begun a moratorium of the A/CFE as early as 2001.

Satisfied on Kazakh Chairmanship, But...
--------------


6. (C) While the GOR viewed the decision for the
Chairmanship to be held by Greece in 2009, Kazakhstan in
2010, and Lithuania in 2011 as reasonable, Ryabkov said that
it was disappointed by U.S. efforts to undermine the
principal of equality among states. He stated that the proof
of U.S. influence was in how the U.S. "pushed Kazakhstan to
withdraw" from Russia's proposal to reform ODIHR, and warned
that Kazakhstan's chairmanship must not be connected to any
demands or conditions.

The Glass Half Empty
--------------


7. (C) Ryabkov criticized the U.S. over continued
differences within the OSCE, noting that "unilateralism and
attempts to avoid the spirit of compromise-seeking were
visible" in Madrid. He characterized Under Secretary Burns'
statement as "rhetoric at its worst." In his speech at the

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ministerial, Lavrov said that the OSCE's lack of relevance
stemmed from "unilateral, group interests" being placed above
the greater good.


8. (C) The confrontational tone of the Ministerial went from
bad to worse in the discussion of OSCE reform, Ryabkov said.
None of the GOR's proposals on a charter, election
monitoring, or NGO participation was accepted by the EU and
U.S. Ryabkov noted that Russia would continue its efforts to
make reform of the human dimension elements a priority in

2008. Ryabkov said that the "crisis" in the OSCE was
worsening, and that the preservation of its future was
uncertain. While Lavrov had stopped short of saying that
Russia may withdraw from the OSCE, he noted in a press
conference that the organization needs to be transformed into
a "normal, functioning intergovernmental entity," and Ryabkov
noted that the OSCE must find areas of general progress and
"not stick to standards and slogans."


9. (C) Regarding election monitoring, Ryabkov attacked the
U.S. for "trying to diminish" the standards of the CIS
election monitors (compared to those of ODIHR) as
"unproductive." Lavrov noted the organization was at a
"point of no return" in agreeing on the rules of election
monitoring, or jeopardizing the prospect of ODIHR as part of
the OSCE. Lavrov reiterated the GOR's view that ODIHR
currently holds itself autonomous from member states and
continues to view member states as first- and second- class
countries.


10. (C) Ryabkov said the GOR believed there had been no
possibility to agree on a statement on Kosovo during the
Ministerial because of "huge" differences in position. The
GOR's insistence that any statement on Kosovo include
language on abiding by international law had not been
acceptable to "some Western partners" -- whom Lavrov accused
in his speech of destabilizing the Balkans and areas of OSCE
space, as well as undermining the Helsinki Final Act.
Ryabkov said that further discussions would continue in
Vienna, the UNSC and within the contact group. At this
point, the GOR was not yet in a position to talk about the
final outcome of the Kosovo field mission.


11. (C) Comment: Ryabkov's briefing was sharply critical of
U.S. positions at the Ministerial, particularly of U.S.
efforts to defeat Russia's reform proposals, and showed the
growing gulf between Russia and its CIS partners and the rest
of the OSCE.
BURNS