BOSNIA AND OPERATION ALTHEA: OHR LAJCAK ADDRESSES

UNCLAS SECTION 01 OF 04 BRUSSELS 001793 SENSITIVE SIPDIS E.O. 12958: N/A TAGS: PREL MARR MOPS EUN BK AF SUBJECT: BOSNIA AND OPERATION ALTHEA: OHR LAJCAK ADDRESSES NAC-PSC REF: A. A) USNATO 0403 ¶B. B) BRUSSELS 1781 This is a joint USEU-USNATO report. ¶1. (SBU) SUMMARY: At the November 24 joint meeting of NATO,s North Atlantic Council and the EU,s Political and Security Committee, HR Javier Solana said he thought 5-plus-2 could be met by mid-2009. Acknowledging the positive momentum engendered by the Solana-Rehn paper on Bosnia and the November 8 Prud Agreement, High Representative Miroslav Lajcak nonetheless said more progress was needed before an OHR-EUSR transition can take place. Lajcak welcomed continued NATO engagement. The NATO SecGen asked for continued close coordination between NATO and EUFOR, particularly as the latter transitions. Fourteen delegations responded in an unusually lively exchange for a NAC-PSC meeting. All seemed to support the continued strong involvement of the international community, the 5 2 formula, the eventual move to a strengthened EUSR once the situation warrants, the transition of EUFOR when political conditions allow, a continued NATO presence, the Berlin Plus agreements as a basis for NATO-EU cooperation, the important message that neither the EU nor NATO are disengaging, and that continued close cooperation will be an essential element for future success. Delegates did not take the opportunity provided by the United States to discuss support for the Afghan National Security Forces. END SUMMARY -------------- Looking toward a transition -------------- 2.. (SBU) EU High Representative Javier Solana, flanked by French PSC Ambassador Christine Roger, chaired the meeting. In his opening remarks he said that although not much had changed since last month,s NAC-PSC meeting (ref A),it was important to keep the issue on the EU-NATO agenda, because Bosnia risks regressing, despite broad public support for continuing its Euro-Atlantic integration. Solana mentioned positive developments, including his joint report with EU Enlargement Commissioner Olli Rehn (EU,s Policy in Bosnia and Herzegovina: The Way Ahead, dated 31 Oct 08) and the 8 November Prud Agreement among the three main Bosnia parties (ref B). Turning to the transition of the OHR to a strengthened EUSR, Solana said it would be based on BiH,s fulfillment of the 5 objectives and 2 conditions (5 2 formula) of the Peace Implementation Council, which he said could take place in mid-2009, with the help of the international community. Regarding Operation ALTHEA, Solana acknowledged its success, saying he expects it will transition to a non-executive training operation, depending on the next PIC meeting in March 2009. Nonetheless, preparations for the transition are currently underway and those include consultations within the EU,s Committee of Contributors. -------------- Deteriorating political situation -------------- ¶3. (SBU) Solana gave the floor to High Representative Miroslav Lajcak, who described the political situation as difficult, despite progress on Euro-Atlantic integration. Lajcak observed that negative political rhetoric is undermining inter-ethnic trust, and slowing the pace of 5 2 reform and progress on BiH,s European partnership priorities. Lajcak noted some positive signs including the 8 November Prud Agreement dealing with constitutional reform, the population census, and the OHR work plan which reassigns state and defense property ownership. He suggested that implementation of this agreement might have the potential to break the deadlock In this respect, he stressed the need for continued international community pressure and political engagement to sustain the process. -------------- But positive movement possible -------------- ¶4. (SBU) Ambassador Lajcak said completing the OHR work plan is a priority. The Peace Implementation Council (PIC) in Brussels on November 19 noted some progress on key issues, including Brcko and state and defense property, but more is required*especially on Brcko*before a decision can be taken on the OHR-EUSR transition. He noted the GAERC,s positive support on November 10 in Brussels identifying the Solana-Rehn paper as the basis of a new EU strategy and noting that the Solana-Rehn effort in conjunction with strong BRUSSELS 00001793 002 OF 004 European Commission and international support led to the 8 November agreement. Lajcak said expectations are now high. Lajcak welcomed strong and continued NATO engagement. He said that the prospect of NATO membership provides positive leverage. He considers the flexible approach of NATO Headquarters in Sarajevo to be well suited to the nature of the BiH government structure. He lauded the UNSC,s extension of the EUFOR mandate for another year as proof of necessary engagement by the international community. -------------- Close cooperation essential -------------- ¶5. (SBU) NATO Secretary General Jaap de Hoop Scheffer spoke next. He confirmed that NATO remains pre-occupied with the Balkans, and assesses the current political situation as damaging to the country,s prospects. He noted the Deputy NATO Secretary General,s recent visit to BiH and his message that the parties to turn their words into actions. The SecGen noted that BiH will have its first Individual Partnership Action Plan (IPAP) evaluation by NATO in February 2009 regarding progress toward membership. On defense reform de Hoop Scheffer said that BiH sees the transition to centralized state structures as the end of the process, but that NATO sees it as the first step. NATO will look for measurable progress in key areas. Regarding the 8 November Prud Agreement, the SecGen warned that despite justifiable optimism, we should remain cautious. He noted the good cooperation between NHQ Sarajevo and EUFOR and the excellent relations between the respective commanders. While stressing respect for the autonomy of both organizations, he noted that the EUFOR transition may affect NATO,s presence in BiH; therefore, he asked that we have close cooperation during the transition in all venues including in the Committee of Contributors. -------------- -------------- A lively and animated exchange of the same view -------------- -------------- ¶6. (SBU) During the discussion period on Bosnia, the following 14 delegations took the floor: the Czech Republic, the United States, Sweden, Norway, Belgium, Hungary, Slovenia, Germany, Italy, the Netherlands, Greece, Estonia, Bulgaria, and Turkey. All the interventions seemed to support the continued strong involvement of the international community, the 5 2 formula, the eventual move to a strengthened EUSR once the situation warrants, the transition of EUFOR when political conditions allow, a continued NATO presence, the Berlin Plus agreements as a basis for NATO-EU cooperation, and that continued close cooperation will be an essential element for future success. ¶7. (SBU) In addition to these main points, national delegations made the following points: The incoming EU presidency, the Czech Republic, expressed full support for the work of OHR and noted that the 8 November agreement was a direct result of international pressure. He promised the Czech EU presidency would continue in this way. EUFOR, he said, should remain intact until the change from the OHR to a strengthened EUSR was successfully completed, at which time NATO and the EU should discuss the transition together. He expressed support for maintaining Berlin Plus. He asked that the NAC-PSC continue to be kept up to date. The way ahead, he said, should be a well coordinated and even integrated approach. ¶8. (SBU) Speaking for the United States, Ambassador Silverberg stressed the importance of full implementation of the 5 2 formula &with integrity8 as a precondition to replacing OHR with a EUSR. She also advocated a constitutional amendment with respect to Brcko,s status. To these points she added U.S. support for and willingness to participate in the new office of the EUSR, the need for carrots and sticks at the disposal of the strengthened EUSR, and the need to reinforce the message to all concerned that the EU and NATO are not disengaging from Bosnia. ¶9. (SBU) Sweden emphasized the need to ensure local willingness and responsibility and said the &push-pull8 factor of EU and NATO needs to be strengthened. The Swedish representative cautioned against letting BiH be a drag on regional progress. With respect to EUFOR, he said Sweden supports Option 3 (reconfiguring EUFOR) when political conditions permit. Norway noted that by acting in unison we have caught the players attention and we should keep up the pressure which is directly attached to the prospects for BRUSSELS 00001793 003 OF 004 Euro-Atlantic integration. We should use this leverage wisely, he said, and with increased circumspection. We must tell the parties to deliver on reforms, the Norwegian representative said, if they want to move Euro-Atlantic integration forward. He said that BiH must build the administrative capacity to do the job, both in Sarajevo and Brussels. ¶10. (SBU) The Belgian NATO ambassador, after noting the more lively atmosphere of this meeting, put forward two questions: First, he asked what affect the proposed international community changes will have on the actors in BiH? Secondly, what are the pluses and minuses of Serbia,s role, if they can play a role? Hungary took the floor next supporting the other ambassadors, interventions and stressing the need to use our NATO-EU instruments &in hand8 while emphasizing the regional perspective as well. He said his country favors Option 3 for EUFOR and will keep its military in BiH for as long as it takes. Hungary hopes to play a role in the new configuration, he said. Slovenia, supporting the other speakers as well, focused on training of the BiH military as an important aspect of continued close NATO-EU cooperation with Bosnians. The German ambassador said he fully shared Ambassador Lajcak,s views and the transition based on the 5 2 formula; however, until then, an adequate EUFOR presence should be guaranteed. He urged that capacity building and training be the focus for continued close cooperation with NATO and other non-EU troop contributors. He hoped this would be done within the context of a new EUSR mandate, &which should be a robust one.8 Italy then spoke supporting continuation of EUFOR to support the OHR, supporting a new mission based on Berlin Plus, and applauding that the preparations for the new mission are already underway. He announced that Italy will take command of EUFOR from 1 December. The Netherlands said there were glimpses of hope but that political refusal to cooperate still remained, asking Ambassador Lajcak &What can we do?8 The Dutch representative also asked about cooperation with the ICTY and for Ambassador Lajcak,s recommendations on where and how to improve? ¶11. (SBU) Greece identified Euro-Atlantic integration as a shared, even the exclusive, tool of NATO and the EU. He hoped for a careful study of Operation ALTHEA in March 09 saying that all the options should remain open and that a decision should be based on the situation at that time. Estonia urged that we prepare and manage the reconfiguration with thorough NATO-EU discussions and that we should have real results from our talks. He urged that we should coordinate and then take joint political steps toward the actors and the public in BiH in order to speak with one voice and to reinvigorate the process. Bulgaria then noted the very useful discussion while supporting the incoming Czech presidency,s announcement of their continued commitment to this process. The Bulgarian ambassador stressed that &acting together with determination is our ultimate executive power.8 Bulgaria,s commitment to EUFOR is steadfast and the Bulgarian military will stay as long as it is needed. -------------- -------------- Turkey: &This is the type of meeting we,d like to see8 -------------- -------------- ¶12. (SBU) The Turkish ambassador to NATO was the last to intervene. After thanking all the speakers and the French EU presidency for a successful meeting, he said that he hoped there would be more frequent meetings, &which is our expectation.8 He said we should remain cautious and we should listen to those who did not participate in the 8 November agreement, in particular the PDP, which prefers, in effect, the status quo. Stability is not yet irreversible; therefore, we must keep the security situation under close scrutiny and keep the assets available to react if necessary. Turkey is committed to BiH,s Euro-Atlantic aspirations and to its territorial integrity. The stakes are high, he said, because of everything the international community has already invested. On the future of EUFOR Operation ALTHEA, he hoped for more intensified and substantial coordination in NATO-EU relations and in the Committee of Contributors in full conformity with the philosophy of the comprehensive approach and the &contractual obligations8 in the agreed framework. Finally, he noted the day,s excellent NAC-PSC meeting saying, &This is the type of meeting we,d like to see.8 -------------- Inclusivity, Dialogue and Compromise -------------- BRUSSELS 00001793 004 OF 004 ¶13. (SBU) Ambassador Lajcak then responded to the questions put to him by the ambassadors. He said he,s working to narrow the scope for maneuver of the factions so as to minimize opportunities for disagreement. He noted that there are currently enough votes in the parliament to support action on state and defense property and on the population census. &Inclusivity, dialogue, and compromise8 at the local political level is to be encouraged, he said. The PIC plan is clear. &It is our priority,8 he said. The international community has been discussing the transition for three years so the Bosnians know sooner or later it will happen. He said we now have a work plan based on qualitative progress and not on an end date. Serbia, he said, supports Bosnia,s territorial integrity, and has worked to decrease the impact of political maneuvering by the Republika Srpska. He said the ICTY encountered no Bosnian obstacles to its activities and would so report to the UNSC in two weeks. He concluded his remarks by offering to return any time for further discussions and noted the PIC Steering Board in March 09 as an important milestone. The NATO Secretary General told Ambassador Lajcak that he has NATO,s full support. -------------- Any interest in Any Other Business? -------------- ¶14. (SBU) Under Any Other Business, Ambassador Volker took the floor to express his appreciation for the discussion and to update those present on key priorities in Afghanistan. First, he noted the JCMB,s September call for increased support to the Afghan National Security Forces, and in particular for an increase in financial support and in the number of trainers for the Afghan National Army. He said we need to have the Afghans in the lead to be successful. Ambassador Volker said that the Afghan National Police are critical to our long-term success in securing the path forward, and, while noting the contributions in this regard from the EU, he said the increased support in this area is urgently needed. Finally, on civilian reconstruction and development, he said that it needs to be well integrated with military efforts in order to provide a sustainable path forward. No one else took the floor on this or any other business. SILVERBERG .