KOSOVO TROIKA UPDATES NATO-RUSSIA COUNCIL AND

C O N F I D E N T I A L SECTION 01 OF 03 USNATO 000566

SIPDIS

NOFORN
SIPDIS

E.O. 12958: DECL: 10/15/2017
TAGS: NATO PGOV PREL KV
SUBJECT: KOSOVO TROIKA UPDATES NATO-RUSSIA COUNCIL AND
OUTLINES WAY FORWARD

REF: A: USNATO 529 B: SECSTATE 143811

Classified By: Ambassador Victoria Nuland, for reasons 1.4 (b) and (d)


1. SUMMARY: The representatives of the Kosovo Troika (U.S.
representative Frank Wisner, EU representative Wolfgang
Ischinger, and Russian representative Alexander
Botsan-Kharchenko) briefed a special meeting of the
NATO-Russia Council (NRC) on Monday, October 15, providing a
general update on where things stand and the way forward
following the most recent Troika negotiations on Sunday,
October 14. Of particular note, Russian Troika Representative
Botsan-Kharchenko praised Belgrade's "flexibility" in
improving its offer of autonomy for Kosovo, but added that
this would not be enough to achieve a final settlement. All
NATO Permanent Representatives (PermReps) who spoke expressed
their full support for the Troika-led process and welcomed
the pro-active role that the Troika was playing in
facilitating the face-to-face talks, but remained largely
silent on what might happen if there is no agreement by a
December 10 deadline. Russian Ambassador Totskiy said Moscow
is convinced a negotiated settlement is possible and warned
that unilateral independence for Kosovo would set a precedent
for other areas of the world; the Dutch PermRep refuted the
Russian arguments on precedents, saying Kosovo was a unique
case. END SUMMARY.

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TROIKA UPDATES THE NRC
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2. (SBU) NATO Secretary General Jaap de Hoop Scheffer opened
an October 15 meeting of the NATO-Russia Council by
expressing NATO,s full support for the Troika-led process,
saying that KFOR has a lot at stake regarding the potential
security repercussions in the region if there is further
delay in resolving Kosovo,s status. EU Troika
Representative Ambassador Ischinger began by updating the NRC
on the progress to date including the recent October 14
face-to-face meetings between the parties in Brussels and the
commitments that the Troika obtained from both parties to
avoid provacative acts or statements during the negotiations.
He described the negotiations as difficult and complex given
the wide gap that currently exists between Belgrade and
Pristina. He noted that support from the international
community is crucial and that, through the Contact Group, the
Troika has found a way to work with the parties. He also
said that both parties have accepted the Troika process and
that they continue to engage at the highest level.


3. (SBU) Ambassador Wisner reiterated that the Troika,s
mandate would last for 120 days, through the December 10
deadline by which the U.N. Secretary General has requested a
report from the Contact Group on these efforts. He informed
the NRC that based on the Contact Group Ministerial guidance
received in New York, the Troika is now making a strong
effort not only to facilitate the face-to-face discussions,
but also be proactive about presenting ideas and measures
drawn from the respective proposals. Although he was careful
to emphasize that the Troika,s mandate was not to impose
solutions, Ambassador Wisner asserted that the Troika process
should make every attempt to find common ground between the
two sides and to leave "no stone unturned" by the time of
their December 10 report. Wisner noted that in the
discussions on October 14 both parties had exchanged views on
their proposals and that the Troika had put on the table a
paper of principal conclusions that were drawn from the
parties' positions to help find common ground. Russian
representative Botsan-Kharchenko in a mild presentation
re-confirmed Russia,s continued support for the Troika
process and that there still remains a "slim chance" that
they can arrive at a mutually acceptable solution. However,
he stated that there should be no prejudging of the final
outcome and that the Troika is obligated to respect current
international documents, mentioning UNSCR 1244, Contact Group
Guiding Principles, and Ministerial statements. While
praising Serbia's engagement in the process, he acknowledged
Belgrade's autonomy offers to date would not be enough to
bridge the gap; more movement was required. All three of the
representatives acknowledged that the Troika, as of the
October 14 Brussels talks, has entered into a new stage of
the negotiations which will feature intensified face-to-face
talks over the coming weeks. The next meeting is scheduled
to take place in Vienna on October 22. Wisner praised
NATO,s ongoing role in providing peace and stability in the
region and that KFOR remains essential to ensuring a
favorable security environment to support the Troika-led
political process.


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ALLIED INQUIRIES
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4. (C) All Allies who spoke (QUINT PermReps did not take the
floor given their follow-on lunch with Ambassadors Wisner and
Ischinger) conveyed their support of the Troika process, with
regional Allies, Greece, Romania, Bulgaria, Hungary,
Slovakia, and Slovenia highlighted the importance of a
successful negotiation process to regional security. While
Allies largely avoided a political discussion on
post-December 10 actions should the parties fail to reach
agreement, Greece, Hungary, and Slovakia noted their
preference for a new UN Security Council resolution, while
Canada stated that a unilateral declaration of independence
"is less than ideal". (Note: Afterwards Canada confirmed it
would support the Allied line on UNSCR 1244 and support
maintaining KFOR in Kosovo. End Note.) The Slovenian PermRep
noted that the Troika negotiations could not go on without
limits, and that the moment of decision on Kosovo is coming.
Spain reiterated its call for unity in the international
community. Allies largely welcomed the more pro-active
process led by the Troika that would present common
principles to the parties based on areas of overlap from
their respective proposals. The Troika, in response to
several Allied PermRep inquiries elaborated on the areas of
overlap noting that: 1) both sides acknowledge there will be
no return to Kosovo's pre-1999 status; 2) Belgrade and
Pristina are ready to cooperate on areas of mutual concern
such as minority protection, cultural sites, and energy; 3)
the parties could establish joint bodies responsible for
implementing cooperative actions. Responding to the Dutch
and Spanish PermReps, the Troika noted that both sides have
indicated their desire for the international community,s
continuing role in Kosovo, including security.

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RUSSIAN REACTION
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5. (SBU) Russian Ambassador to NATO Totskiy acknowledged the
Troika,s tough mission, noting that Moscow is convinced that
a negotiated settlement is achievable based on international
law and praised Belgrade,s pro-active approach. Totskiy
denigrated Pristina,s efforts saying the Kosovo Albanians
hopes for independence are being fed by high level promises
of independence from the international community and that the
threat of violence in Kosovo after December 10 is blackmail.
He reiterated Russia,s argument that granting independence
to Kosovo would set a precendent for other regions throughout
Europe and the world. In response, the Dutch PermRep,
speaking broadly for all Allies, strongly pushed back on the
precedent argument, saying that the political and historical
facts surrounding Yugoslavia,s break-up speak for
themselves. In particular, he noted the heavy involvement
that the U.N. Security Council and international community
has made Kosovo is a unique situation that would not set a
precedent for other conflicts around the world.

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TROIKA RESPONDS
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6. (SBU) Pressed by Allies whether they envisioned a
"Dayton" or Rambouillet-style endgame, Ischinger said some
intense final days might be possible but, unlike popular
impressions of Dayton, the Troika would neither impose a
solution nor countenance any "Respublikas" with Kosovo.
Ischinger expressed his personal view that if the Troika
cannot achieve an agreed solution in the 120-day negotiating
period than it would not happen even with "another 1,200
days". He further stated that the European Union,s
perspective plays an important role in shaping Belgrade,s
attitude, suggesting that one area which could have a
significant impact on how the Serbs view the EU is visa
liberalization. Ambassador Wisner reiterated the Troika,s
role facilitating the search for common ground given the
considerable domestic political constraints in Belgrade and
Pristina. Responding to questions about minority rights,
Ambassador Wisner highlighted that no party had spoken about
diminishing minority protections in Kosovo as envisioned in
the Ahtisaari proposal, which were among the highest-level of
minority protection found anywhere in Europe.

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QUINT FOLLOW-ON MEETING
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7. (C) In the follow-on QUINT lunch meeting with Ambassadors

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Wisner and Ischinger, the conversation focused primarily on
strategy and tactics vis--vis Russia, Trans-Atlantic unity,
and creating incentives for the parties to negotiate
seriously in the end game.
NULAND