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
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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

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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.



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WILSON