BOSNIA - PIC REITERATES COMMITMENT TO 5-PLUS-2,

C O N F I D E N T I A L SECTION 01 OF 03 SARAJEVO 001832 SIPDIS DEPARTMENT FOR EUR(JONES),EUR/SCE(FOOKS/STINCHCOMB); NSC FOR BEIN; NSC FOR HELGERSON/WILSON E.O. 12958: DECL: 01/01/2018 TAGS: PGOV PINR PHUM KCRM KDEM EU BK SUBJECT: BOSNIA - PIC REITERATES COMMITMENT TO 5-PLUS-2, BUT EYES CLOSURE DECISION IN MARCH 2009 Classified By: Ambassador Charles English. Reasons 1.4(b) and (d). ¶1. (C) Summary: At the November 19-20 PIC, HiRep Lajcak and PIC members underscored their commitment to seeing the 5-plus-2 benchmarks and conditions met in full prior to OHR closure and transition to EUSR, but stressed a desire be in a position to make a decision on transition at the next PIC meeting in March 2009. Several PIC members, notably France, Italy and Germany, suggested that they might support transition to EUSR even if the 5-plus-2 agenda is not met. No one supported maintaining the Bonn Powers beyond OHR's life span. Bosnian political party leaders largely echoed positions expressed at previous PIC meetings - the Bosniaks and Croats urged OHR to remain open until constitutional reform had been completed; the Serbs argued OHR was no longer necessary and that Bosnian leaders must assume full responsibility for their country's future. Though PIC members welcomed the Prud/Odzak Agreement, they stressed that the vague political agreement must be translated into tangible outcomes and expressed concern about the escalating nationalist rhetoric and the general lack of progress implementing much-needed reforms. Republika Srpska (RS) PM Milorad Dodik accused the State Prosecutor's Office and "certain Embassies" of orchestrating political attacks on him and the RS via an ongoing investigation into corruption within his government, though he also pledged to cooperate with that investigation. Bosniak member of the Tri-Presidency Haris Silajdzic criticized the Prud/Odzak Agreement and rejected the accusation that he had engaged in nationalist rhetoric, adding that his comments bout genocide in the RS was based on "the facts." End Summary. Bosnians Split on OHR's Future (and Everything Else) -------------- -------------- ¶2. (SBU) At the opening session, HiRep Lajcak and PIC members stressed to Bosnian political party leaders and State and entity PMs that nationalist rhetoric must cease and they must return to the reform agenda, particularly the 5-plus-2 OHR benchmarks and conditions. Several PIC members expressed concern over RS efforts to rollback previous reforms, including those necessary for BiH to realize its Euro-Atlantic aspirations, and warned that BiH was in danger of falling behind the rest of the region if its performance did not improve. Bosniak (SDA President Tihic and SBiH President Silajdzic) and Croat (HDZ-BiH Covic and HDZ-1990 Ljubic) party leaders acknowledged the political deadlock, but blamed it on the Dayton constitutional structures and argued OHR must remain in BiH to "unblock" the governing system until a new constitution is adopted, which would ensure a more functional and efficient government. Serb leaders (SNSD Dodik and PDP Ivanic) argued that OHR has outlived its utility and now presents an obstacle to BiH's progress towards the EU; local ownership is needed. BiH Prime Minister Spiric and Federation Prime Minister Brankovic sought to defend their governments' performances by offering lengthy lists of technical "achievements" over the past two years, but acknowledged the need for additional progress. PIC Welcomes Prud/Odzak, Urges Implementation; Silajdzic Defiant -------------- -------------- ¶3. (SBU) HiRep Lajcak and PIC members welcomed the November 8 Tihic-Dodik-Covic agreement (aka Prud/Odzak agreement) as representative of the type of pragmatic approach Bosnia's leaders needed to take to unblock stalled reforms. However, the PIC also emphasized the need to translate the largely vague language in the Prud/Odzak agreement into concrete action, including legislation, and called on the agreement's signatories to work with the other party leaders to gain their support for the agreement and its implementation. Germany expressed concern about the parties proposed a "constitutional law" solution on Brcko (as opposed to the constitutional amendments proposed by the Supervisor),noting that such a category of law did not exist in Bosnia. France sought details on how the Prud/Odzak Agreement on State property would be translated into action. The Russian delegation voiced concern over anti-Dayton rhetoric, citing President Silajdzic's September speech at UNGA where he called for the RS to be abolished. Silajdzic defiantly responded that he will use every platform at his disposal to prevent the realization of "Milosevic's project" and SARAJEVO 00001832 002 OF 003 categorically rejected the possibility of supporting Prud/Odzak, as it is "harmful to BiH." Dodik: Separatism not an Aim, but a Right -------------- ¶4. (SBU) Responding to a U.S. question on RS compliance with the State Prosecutor's request for documentation, Dodik asserted that the State Prosecutor's request was a politically motivated "injustice" directed by unnamed "foreign embassies" and aimed at "punishing" him and the RS. Dodik also asserted that the State Prosecutor's Office was acting outside its jurisdiction. Nevertheless, Dodik claimed the RS was trying to cooperate, but the BiH Prosecutor had refused on three occasions to meet with the RS lawyers -- a U.S. law firm retained by the RS. Dodik committed that the RS would comply with a BiH court order for the documents, but would not accept the use of force to implement a subpoena on the RS government building. (Note: The BiH State Court issued an order for the documents on November 19; the RS handed over documents on November 26. The State Prosecutor's Office is in the process of reviewing the material provided and determining whether the RS has cooperated fully and completely with the court order. End Note) Dodik also dismissed allegations that separatism is on the RS's agenda, but pointedly asserted that an independence referendum nevertheless remains its right. European Commission: Reform Progress Stalled -------------- ¶5. (SBU) During the closed session on November 20, the European Commission delegation briefed that little progress has been made since the SAA signing in June. The anti-corruption strategy has not been properly implemented, public administration reform is stalled and there has been limited progress on human rights and no concrete progress on minority rights. The Commission also noted that the RS had objected to implementation of 25 elements of the European Partnership Agreement. On the economic front, there is still no single economic space, no movement on privatization in the Federation and the current account deficit has increased. The one positive note was that the Justice Sector strategy was adopted, but the Commission was quick to add that the final document had been stripped of much of its original substance to satisfy the RS and that there remained much more to be done broadly in that area. EU Plans for Transition -------------- ¶6. (C) EU Council Secretariat Political Director Robert Cooper briefed on the joint Solana/Rehn paper endorsed by the November 10 GAERC, which will serve as the basis for planning for a transition from OHR to an EUSR. Cooper bemoaned that the Bosnians still don't recognize that "the closer they get to the EU the harder it gets" and that "the EU won't take in new members that don't function." Constitutional reform is imperative and must be done by the Bosnians themselves, although the EU will be prepared to provide resources and expertise, he said. Cooper made clear that the EU strategy relies on its "attractive power" to promote reform in BiH, but the EU recognizes the need to employ coercive power tactically. Cooper noted that the EUSR would not be "ordinary" - it would get into nitty-gritty issues as OHR did, and would seek a UNSCR to provide authority for residual Dayton oversight issues. However, the EU would not seek to retain the Bonn Powers, as BiH should be fully sovereign in the post-SAA phase of the accession process. Cooper said that, without prejudice to an eventual PIC decision, the EU would begin to flesh out the EUSR's "tool kit" in the coming weeks. He noted the EU was looking at the possibility of non-EU participation in the EUSR mission, akin to the current ESDP mission in Kosovo. PIC Members: Lip Service to 5-plus-2; Some Looking for an Exit -------------- -------------- ¶7. (C) Looking ahead to the next PIC meeting, Lajcak sounded out delegations on a possible transition decision in March ¶2009. He noted that in addition to 5-plus-2 progress, there are practical issues to take into account, as OHR's budget SARAJEVO 00001832 003 OF 003 and contracts only run through end of June 2009. A key question also would be whether the Bonn Powers should be retained in some form. The U.S. stressed that 5-plus-2 must be implemented in full, and that a solution on Brcko, in particular, would need to be found for the U.S. to support closure in March. Budgetary issues should be factored in but could not drive the decision, the U.S. stressed. The UK and Turkey echoed the importance of implementing 5-plus-2, and stressed the need for the EU to demonstrate that it is ready to take over from OHR. Turkey also stressed its desire to participate in a post-OHR IC coordination body. Germany stressed the need for progress on 5-plus-2, but noted that the PIC couldn't be held hostage to Bosnian obstructionism; if OHR is no longer credible then transition should be considered even absent progress on 5-plus-2; however, the EUSR must be ready to take over. France and Italy reaffirmed their support for 5-plus-2, but argued the PIC should be flexible in determining how they are met. France suggested that the police reform compromise might provide a model for concluding the 5-plus-2 agenda. Canada and Japan welcomed the EU transition plan and voiced support for transition as soon as conditions permit. Russia acknowledged that a decision on closure was not possible at this meeting due to negative trends, but stressed they would seek a decision on transition next spring. No member supported retaining the Bonn Powers post transition. ¶8. (U) DAS Jones has cleared this telegram. ENGLISH