Identifier
Created
Classification
Origin
08STATE116103
2008-10-30 23:00:00
UNCLASSIFIED
Secretary of State
Cable title:  

INSTRUCTIONS: TURKMENISTAN'S UNGA RESOLUTION ON

Tags:  UNGA ENRG ZK EPET PREL 
pdf how-to read a cable
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PP RUEHWEB

DE RUEHC #6103 3042310
ZNR UUUUU ZZH
P 302300Z OCT 08
FM SECSTATE WASHDC
TO USMISSION USUN NEW YORK PRIORITY 0000
UNCLAS STATE 116103 

SIPDIS

E.O. 12958: N/A
TAGS: UNGA ENRG ZK EPET PREL
SUBJECT: INSTRUCTIONS: TURKMENISTAN'S UNGA RESOLUTION ON
PIPELINE SECURITY

REF: A. USUN NY 865

B. ASHGABAT 1243

UNCLAS STATE 116103

SIPDIS

E.O. 12958: N/A
TAGS: UNGA ENRG ZK EPET PREL
SUBJECT: INSTRUCTIONS: TURKMENISTAN'S UNGA RESOLUTION ON
PIPELINE SECURITY

REF: A. USUN NY 865

B. ASHGABAT 1243


1. This is an Action Request (see paragraphs 3 and 4)
containing instructions for USUN (reftel A) during
discussion of the Turkmen's proposed UN General
Assembly (GA) Resolution entitled "Reliable and stable
transit of energy and its role in ensuring stable
economic development and international cooperation."


2. Background:
Turkmenistan has approached the U.S. via Diplomatic
Note and in direct meetings to seek support for its
resolution on pipeline security entitled "Reliable
Transit of energy and its role ensuring stable
economic development and international cooperation"
(text in paragraph 7). Some UN sources have indicated
that Turkmenistan intends to use this resolution to lay
the groundwork for a UN convention on energy transit
security, although that remains unconfirmed. The current
draft resolution presents the subject of pipeline
security as mainly a regional (Central Asian) issue and
"welcomes" a Turkmen-sponsored conference of energy-
producing and energy-transporting countries to be held
this fall. We understand that Russia has already agreed
to participate and deliver remarks at this conference.
One informal negotiation on this resolution will be held
on October 31, during which other delegations may
introduce additional language.


3. USG Position:
Energy and pipeline security are important issues for the
international community and the U.S. wants to show support
for this issue and for vulnerable energy transit states.
We would also like to support Turkmenistan in assuming a
more visible, proactive role at the United Nations. The
U.S. welcomes the Turkmen-sponsored conference on secure
transportation of energy to international markets,
provided that no assessed UN budget resources are used.
At the same time, we have some concerns (paragraph 4
below) about the degree to which we offer support within
the UN resolution process. The USG appreciates the
Turkmen's efforts, and would like to facilitate a
consensus resolution. However, we cannot become
co-sponsors of the resolution at this time.


4. USG Concerns:
Although a UN General Assembly resolution will generate
dialogue on the subject of energy security, it is unlikely
that it would produce practical global solutions. In its

current form, the proposed resolution is fairly innocuous;
however, the language on "extensive international
cooperation" could be interpreted to refer to a broad
number of initiatives, including a global treaty or
convention on pipeline security, to which the U.S. is
opposed. The resolution's call for cooperation on
reliable pipeline transport is presumably against
destructive military or terrorist action, but also could
have some sensitive regional political and economic
undertones, including a subtle dig at Russian control of
pipelines. Additionally, informal negotiations could
alter the current content making the resolution
unpalatable to the U.S. Opening a regionally-focused
topic to international negotiation in the UNGA makes it
even more vulnerable to attempts to water down the
language or otherwise alter it to the point that it loses
any link to its original intent. Further, early USG
co-sponsorship for such a resolution could be detrimental
or polarizing by deterring other potential supporters who
are less friendly with the U.S. or inviting controversial
language amendments from U.S. detractors. Also, we do not
regard this as the beginning of a process that would
permanently add this issue to the UNGA agenda, generate UN
Secretariat reports, or lead to a more detailed and
potentially binding agreement.


5. USUN should not/not co-sponsor the Turkmen's resolution
at this time. USUN is instructed to join consensus on
this resolution if the text is not amended during
negotiations. USUN is instructed to engage positively
in negotiations on the resolution content to help ensure
an acceptable outcome as close to the original text as
possible and reflecting the positions in paragraphs 3
and 4. USUN should fight against language seeking to
create an annual agenda item on the topic, generate
UN reports, or lead to a more detailed or potentially
binding agreement. Further, USUN should ensure that
no assessed UN budget resources are called for in this
resolution. USUN should express opposition to any UN
treaty on transportation and pipeline security if it
is discussed.


6. USUN may wish to draw from the following points:

-- The U.S. applauds Turkmenistan's efforts to engage more
actively in the UN and generally supports Turkmenistan's
initiative on pipeline security, an important issue for
the international community to address in the context of
global energy security.

-- We look forward to engaging productively in
negotiations on the draft resolution. We support
the resolution's intent and will continue to consider
co-sponsorship. We will work with Turkmenistan and
other member states to achieve a successful consensus
outcome.

-- At the same time, given the narrow regional focus of
this issue and the draft resolution, we would also
encourage Turkmenistan to bring this to the appropriate
UN Regional Economic Commissions, either the Economic
Commission for Europe (ECE) or the Economic and Social
Commission for Asia and the Pacific (ESCAP) for study
and debate.

-- We would also counsel Turkmenistan to discuss its
strategies with the Azerbaijanis, who had difficulty this
year building consensus around a seemingly
non-controversial and well-intentioned resolution on the
Extractive Industry Transparency Initiative (EITI). We
hope that this negotiation will be less controversial,
allowing consensus on the resolution in as close to its
current form as possible.

-- (IF RAISED) We do not believe that U.S. co-sponsorship
of this resolution at this time would help you achieve
your objective. Open and active U.S. support in this case
could well attract negative attention and motivate others
to take the resolution in the wrong direction.


7. Resolution Text:
Reliable and stable transit of energy and its role in
ensuring sustainable development and international
cooperation

The General Assembly,

Bearing in mind the growing role of the transit of energy
in global processes,

Recognizing the importance of Central Asia and all other
transportation and communication hubs and their vital role
in production of energy and its transportation to
international markets,

Noting that stable, efficient and reliable energy
transportation, as a key factor of sustainable
development, is in the interest of the entire
international community.

Reiterating the principles of the Rio Declaration on
Environment and Development and of Agenda 21 and recalling
the recommendations and conclusions contained in the Plan
of Implementation of the World Summit on Sustainable
Development concerning energy for sustainable development,

Welcoming initiatives that aim to improve access to
reliable, affordable, economically viable, socially
acceptable and environmentally sound energy services
for sustainable development in order to contribute to
the achievement of the internationally agreed goals,
including the Millennium Development Goals,


1. Welcomes international cooperation in developing
transportation systems and pipelines;


2. Recognizes the need for extensive international
cooperation in determining ways of ensuring the reliable
transportation of energy to internationsl markets through
pipelines and other transportation systems;


3. Welcomes the initiative of Turkmenistan to
convene in 2009 a high-level international conference
to discuss the issue of ensuring the reliable and
stable transportation of energy to international
markets.

End resolution text.
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