DAS BRYZA TALKS CYPRUS, MONTREUX CONVENTION,

C O N F I D E N T I A L SECTION 01 OF 03 ANKARA 001696 SIPDIS DEPT. FOR EUR/SE E.O. 12958: DECL: 09/22/2018 TAGS: PREL MOPS TU CY SUBJECT: DAS BRYZA TALKS CYPRUS, MONTREUX CONVENTION, CAUCASUS STABILITY PACT, WITH GOT Classified By: POL Counselor Daniel O'Grady for reasons 1.4(b,d) ¶1. (C) SUMMARY: During a September 15 meeting in Ankara with EUR DAS Matt Bryza, MFA DU/S Berk said the GOT is pleased Cyprus negotiations have begun, but remains circumspect until it becomes more clear the Greek Cypriots are committed to negotiating a comprehensive settlement and not just going through the motions. Berk reiterated long-standing Turkish positions regarding a Cyprus settlement (i.e.; bizonal, bicommunal federation; virgin birth of a new Cypriot state comprised of two constituent states, inviolability of Turkey's role as a guarantor state) and expressed support for the eventual naming of a "balanced, fair, professional" special envoy by the U.S. to support and monitor negotiations. On Turkish stewardship of the Bosporus and Dardanelles Straits and adherence to the Montreux Convention, Berk noted the GOT's priority has always been to maintain peace and stability in the region. He said Turkey had resisted Russian complaints about the transit of U.S. vessels and claims they exceeded tonnage limits under Montreux. Moscow has also attempted to claim the total tonnage of its Black Sea fleet is lower than previously indicated -- only 56,000 tons -- and, as a result, the cumulative tonnage allowed under the Treaty for another nation's ships to transit the straits and be present in the Black Sea at any one time should be reduced from 45,000 tons to 30,000 tons. Berk said the GOT had rejected the Russians' argument, noting that Russia has claimed the same tonnage for its fleet for decades and attempting to suddenly claim a lower cumulative amount was a clear attempt to counter U.S. efforts to continue transiting vessels as it has in recent weeks. Bryza expressed concern Ankara did not consult Washington before launching its Caucasus Stability and Cooperation Platform, but welcomed any efforts by Turkey to normalize relations with Armenia. END SUMMARY CYPRUS: Optimistic, but Circumspect -------------- ¶2. (C) MFA Deputy Under Secretary for the Americas and Northeast Mediterranean Haydar Berk told visiting EUR DAS Matt Bryza September 15 the Turks are pleased direct talks have begun between the Greek and Turkish Cypriot sides and remain hopeful substantial progress toward a comprehensive settlement can be made. That being said, Berk noted there remain important differences between the two sides and Ankara is waiting for a few more sessions between the two leaders on the island to make a more informed assessment regarding the level of commitment of President Christofias to achieving a lasting settlement. Berk reiterated long-standing Turkish positions, including Ankara's support for a "virgin birth" of a reunified federation, comprised of two constituent states, and the continuation of Turkey's status as a guarantor state. Berk emphasized the importance for Turkish Cypriots that reunification not simply be the Republic of Cyprus subsuming the Turkish entity and starting over as though from 1964. Rather, the Turkish Cypriots would expect a new Cypriot federation to be a loose body in which the Turkish community has equal political rights with its Greek counterpart. Eventually, once it became clear that the two communities could once again live peacefully and with full respect for each other's rights, the constituent halves could choose to cede back to the central government certain powers as it wishes. He cited Australian and American experiences in which certain powers ebb and flow between the states and the federal government based on consensus and need. There remains much suspicion among Turkish Cypriots that the G/C side will attempt to exert dominance over the North eventually, post-settlement. The bottom line for Turkish Cypriots, according to Berk, is that they not fall under control again of the Greek Cypriots. ¶3. (C) Berk indicated the GOT would welcome the naming of a special envoy by the U.S., depending of course on the person named. He noted it might be difficult for the USG to name a "political-level" individual now, at the end of an administration. However, Ankara would look forward to working with a "balanced, fair, professional" person who could help the U.S. follow the negotiations more closely as well as help to "massage the process" as necessary. In the meantime, the GOT will continue to be supportive of the talks, recognizing it might be some time before it becomes clear the degree to which Christofias and the Greek Cypriots ANKARA 00001696 002 OF 003 are serious about reaching a comprehensive settlement. Berk said he thought we might all have a better idea in this regard once Talat and Christofias have met with one another "four or five times." ¶4. (C) Bryza encouraged Turkey to ensure sufficient maneuver room for Turkish Cypriot leader Talat in settlement talks. Berk assured Byrza Turkey would indeed do so. MONTREUX/CAUCASUS: -------------- ¶5. (C) DAS Bryza thanked DU/S Berk for Turkey's cooperation in facilitating transit of U.S. naval vessels through the Dardanelles and Bosporus in support of the U.S. humanitarian relief efforts in Georgia. Bryza reiterated USG support for the Montreux Convention, noting it is not the USG's intent to seek any changes to it. Berk said Turkey's primary goal in the immediate aftermath of Russia's invasion of Georgia had been to reduce tensions and the prospects for any escalation of hostilities -- without giving the impression that it found Russian behavior acceptable in any way. For that reason, the GOT had sought to continue its decades-long adherence to Montreux, while remaining as flexible as possible to facilitate transit of U.S. ships, and dusted off its proposals for a Caucasus Stability and Cooperation Platform (CSCP). Half-jokingly, Berk suggested the U.S might have considered a way to transfer administration of one of its large hospital ships from the Navy to a civilian organization so as to avoid the application of tonnage limits to naval vessels under Montreux. ¶6. (C) Berk referred to the Black Sea region as a "narrow geography" in which a misunderstanding could have grave consequences. With Russian bombers running missions close to the Turkish coastline in the first days of Moscow's invasion of Georgia, the GOT feared what might happen should U.S. ships be involved in an incident. Once consultations occurred between Ankara and Washington (which was why U/S Apakan reached out to speak with U/S Burns by phone),the GOT better understood U.S. goals. ¶7. (C) Berk noted the Russians have not been happy with U.S. ships transiting into the Black Sea and have in recent weeks sent diplomatic notes seeking to notify the Turks that their Black Sea Fleet has a cumulative tonnage of only 56,000. This is substantially lower than what they have claimed for many decades. The Russian effort is an attempt to trigger a provision of the Montreux Convention that would require the Turks to limit cumulative tonnage of another navy's vessels allowed into the Black Sea to 30,000. Berk said the GOT had rejected the Russian claim as it clearly does not reflect reality. Berk said Turkey has consistently sought to uphold the spirit of Montreux, while seeking ways to implement it in a progressive way, reflecting reality and the constant modernization of naval vessels. ¶8. (C) DAS Bryza said the U.S. believes Russia's response to Georgia's attacks on Tskinvali was entirely unjustified, especially since it was Russian instigation through its leadership of South Ossetian security forces that had initiated the uptick of violence in the region. And Russia's attack on Abkhazia was entirely unacceptable given the total separation between the situations there and in South Ossetia. He expressed understanding and support for Turkey's efforts to involve Russia in a peaceful effort to bring stability to the Caucasus via the CSCP, especially with the possibility such a forum might also lead to normalization of Turkey's ties with Armenia and a breakthrough in negotiations between Armenia and Azerbaijan over Nagorno-Karabakh. But he also expressed concern Ankara did not consult with Washington before launching the Platform. Berk seemed somewhat contrite, explaining that the crisis in Georgia had erupted so suddenly, at a time when so many in Ankara and throughout Europe were on leave, that Turkey felt compelled to pull the plan off the shelf as a means to lessen tensions in the region. Visit Ankara's Classified Web Site at http://www.intelink.sgov.gov/wiki/Portal:Turk ey ANKARA 00001696 003 OF 003 WILSON