THE DECEMBER 3, 2008 NORTH ATLANTIC COUNCIL

C O N F I D E N T I A L SECTION 01 OF 06 USNATO 000471

NOFORN
SIPDIS

E.O. 12958: DECL: 12/10/2018
TAGS: PREL NATO PGOV MOPS KV AF
SUBJECT: THE DECEMBER 3, 2008 NORTH ATLANTIC COUNCIL
FOREIGN MINISTERS MEETING ON NATO OPERATIONS.

Classified By: Ambassador Kurt Volker for reasons 1.4 (b) and (d).


1. (U) Participants:

U.S.
Ambassador Kurt Volker
EUR A/S Dan Fried
EUR PDAS Ries
Damon Wilson, NSC

NATO
Secretary General Jaap de Hoop Scheffer

NATO COUNTRIES
Albania: FM Lulzim Basha
Belgium: FM Karel De Gucht
Bulgaria: FM Ivailo Kalfin
Canada: AMB Robert McRae
Croatia: FM Gordan Jandrokovic
Czech Republic: FM Karel Schwarzenberg
Denmark: FM Per Stig Moller
Estonia: FM Urmas Paet
France: FM Bernard Kouchner
Germany: FM Frank-Walter Steinmeier
Greece: FM Dora Bakoyannis
Hungary: FM Kinga Goncz
Iceland: Ambassador Thorsteinn Ingolfsson
Italy: AMB Stefano Stefanini
Latvia: FM Maris Riekstins
Lithuania: Under Secretary Zygimantas Pavilionis
Luxembourg: D/FM Jean Asselborn
Netherlands: FM Maxime Verhagen
Norway: AMB Kim Traavik
Poland: FM Radoslaw Sikorski
Portugal: FM Luis Amado
Romania: FM Lazar Comanescu
Slovakia: FM Jan Kubis
Slovenia: FM Samuel Zbogar
Spain: AMB Carlos Miranda
Turkey: FM Ali Babacan
United Kingdom: FM David Miliband

EU
High Representative for the Common Foreign and Security
Policy Javier Solana


2. (C) SUMMARY: On the second day of the December 2-3 NATO
Foreign Ministers meeting in Brussels, the North Atlantic
Council convened to discuss NATO operations. NATO Secretary
General (SYG) Jaap de Hoop Scheffer and foreign ministers
pointed to the Comprehensive Strategic Political Military
Plan (CSPMP),agreed at the Bucharest NATO Summit in 2008, as
the legitimate guiding document for the Alliance in
Afghanistan. The SYG was visibly frustrated that the agreed
strategy had no mechanisms to force Allies to deliver
resources for the ISAF mission or for Afghan National
Security Force development. However, his admonishment that
the Alliance continues to publicly reiterate its commitment
to the Afghanistan mission, but take little action to fulfill
shortages, came at the end of the meeting. The U.S. and
other Allies stressed the need for NATO to remain engaged in
the Western Balkans and particularly in Kosovo and BiH.
Slovenia cautioned against a premature KFOR drawdown, EU High
Rep Solana reported that the EU Rule of Law Mission in Kosovo
(EULEX) was moving into place, and Albania, Bulgaria, the
Czech Republic, and Slovenia expressed support for KFOR's new
tasks of demobilizing the Kosovo Protection Corps (KPC) and
standing up the Kosovo Security Force (KSF). The U.S. and
Canada expressed support for NATO's counter-piracy mission
and the need to work with the EU and UN, while High Rep
Solana said the EU would launch its mission the following
week, and Turkey cautioned on the need for NATO-EU
cooperation to take place in accordance with agreed
frameworks. The SYG asked the Allies for support on NATO HQ
reform. END SUMMARY.

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AFGHANISTAN: FRUSTRATION APPARENT
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3. (C) Secretary General (SYG) Jaap de Hoop Scheffer and
foreign ministers emphasized that the Comprehensive Strategic
Political Military Plan (CSPMP),agreed at the Bucharest
Summit in 2008, remains the over-arching guidance for NATO in

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Afghanistan. The SYG's frustration was apparent when he
commented that the Alliance continues to reaffirm Afghan
National Army (ANA) training as the most urgent short-term
priority for improving security, but then fails to create
means to pay for the an expanded ANA force and its
sustainment. He said NATO is in a poor position to
successfully generate an Elections Support Force in time for
Afghan electoral processes, let alone fulfill the Combined
Joint Statement of Requirements (CJSOR).


4. (C) The SYG was particularly concerned about deficits in
numbers of police and army trainers and mentors. He added
that the Alliance has taken no concrete steps toward
increasing its role in Afghan National Police (ANP)
development. He warned that failure to implement the agreed
strategic plan could leave the Alliance "stuck in analysis,"
leading it to face an equally dire or worse situation in
Afghanistan when foreign ministers reconvene the NAC next
year. (Comment: Unfortunately, the SYG's strong words came at
the end of the meeting and failed to elicit idea sharing on
how Allies might creatively approach persistent shortfalls in
the coming year. End comment.)


5. (C) The SYG called on nations to satisfy ISAF partners'
and some Allies' requests for an ISAF-format meeting to
update the CSPMP and evaluate its implementation prior to the
Strasbourg/Kehl Summit in April. Acknowledging that the
hosts are struggling logistically to arrange this meeting, he
suggested the NATO Defense Ministerial in Krakow in February
as an appropriate forum.

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SYG CONCERNED ABOUT KARZAI CRITICISM
--------------


6. (C) The SYG characterized the situation on the ground in
Afghanistan as a "mixed picture," and presented three areas
of concern. He was shocked that on his recent trip to Kabul,
President Karzai told him, "You are bringing your war to my
sovereign nation." As Karzai postures for 2009 elections, he
is making increasingly critical public remarks against the
international community, the SYG continued. Such comments
are unhelpful and may damage Allies' ability to retain
popular support and governmental commitment to the
Afghanistan mission. Second, the Afghan government must
decide the timing of 2009 elections and use precedent to
resolve any constitutional issues, the SYG said. Kai Eide,
Special Representative of the UN Secretary General for
Afghanistan, and the SYG want to give Karzai a joint message
that the international community can best support security
for the elections in the fall. Finally, the SYG noted that
there are still legal hurdles to clear among several nations
before NATO can make the Budapest Defense Ministers' decision
on counter-narcotics operational.

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SECURITY OVERVIEW
--------------


7. (C) Supreme Allied Commander Europe (SACEUR) General
Craddock gave a brief overview of security across
Afghanistan. He called the current fighting season a
stalemate, and said although violent incidents began
declining in RC-East in November, there was an overall 40
percent increase in attacks in the east and south in 2008.
He said the insurgency in northern and western provinces
remained isolated in Pashtun-inhabited pockets. SACEUR noted
that the insurgency in eastern provinces was more fragmented
than in southern provinces, but the safe havens in the
Federally Administered Tribal Areas of Pakistan permit
eastern insurgents to operate like syndicates. He was
optimistic that the forthcoming Afghan Social Outreach
Program conducted by the Afghan Independent Directorate of
Local Governance could have positive security effects at the
community level.

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ALLIES BACK STRATEGY, FAULT IMPLEMENTATION
--------------


8. (C) Allies expressed near universal agreement that NATO's
strategy was good, but needed to be implemented better.
Foreign ministers said presidential elections would be the
critical landmark for 2009, and security failure during the

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elections would have catastrophic consequences for
Afghanistan's democratic process. They reiterated Bucharest
decisions that building the capacity of the ANA and ANP was
critical to success in Afghanistan, and that NATO needed an
integrated security approach that included more training of
indigenous police and military forces. Several ministers
urged NATO to improve its cooperation with the European Union
on police training.


9. (C) Nearly all Allies said the Comprehensive Approach
needed to be implemented better in order to improve
coordination of the international community's activities,
including the efforts of non-governmental organizations.
Norway called on Allies to permit themselves to be
coordinated by UNAMA. Ministers said they would ask United
Nations headquarters to provide more personnel and resources
to UNSRSG Kai Eide. Improving strategic communications with
European publics was a common theme, but ministers identified
communicating with the Afghan people about NATO's activities
on security and infrastructure development as a higher
priority. Several interventions included references to
helping Afghanistan form a more effective national
reconciliation program. Ministers generally agreed that a
political solution must accompany military action. Romania
pointed out that Central Asian states worry that their region
could become "narcotized" if instability reigns in
Afghanistan.

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AGREEABLE NEW APPROACHES
--------------


10. (C) UK FM Milliband proposed a three-pronged approach
for NATO in 2009 for "Afghanization, Localization, and
Civilianization." Afghanization referred to increasingly
giving Afghan army and police units the lead in joint
operations with international forces. Localization called
for a district approach to concentrate on helping the lowest
levels of Afghan government provide security and essential
services. Civilianization would require nations to "double
surge" military efforts with increased civilian presence at
Provincial Reconstruction Teams and district coordination
offices. Milliband and other ministers echoed that
additional civilians must be mobile, not base-bound. Spain
expressed concern that it would be much more difficult to
secure civilians in a decentralized, district-level effort.


11. (C) The Czechs said they were hesitant to give soldiers
a role in police development, and asked the Alliance to
maintain clear lines between military and civilian duties as
NATO considers a larger role with ANP. Poland,s Foreign
Minister characterized the situation in Afghanistan as a
classic counter-insurgency, although NATO has not agreed to
use this term.

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NATO ENGAGEMENT WITH PAKISTAN
--------------


12. (C) There was general consensus that Afghanistan and
Pakistan should be considered one theatre. The SYG asked the
Alliance to improve its links with Pakistan in the military
sphere and open political dialogue with Pakistan. The
Polish, UK, and Danish Foreign Ministers said NATO should
take advantage of having a cooperative Pakistani President in
office, and support Zardari as he attempts to fight on
several fronts (Taliban, al Qaeda, other insurgent groups) at
once. Ministers agreed that Pakistan had a similar need as
Afghanistan to extend security, governance, and development
to its tribal areas.

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ANA TRUST FUND
--------------


13. (C) Only the U.S. and The Netherlands encouraged the
rapid expansion of the ANA Trust Fund to pay for sustainment
costs of an enlarged ANA force. Ambassador Volker said the
Alliance must clearly enunciate its unshakable long term
commitment to Afghanistan and rise to the effort of
supporting ANA expansion despite costs and challenges. He
underlined the importance of NATO's strategy, but challenged
Allies to resource, implement, review, and adjust it more
effectively. Ambassador Volker explained the short term need

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to add military resources to Afghanistan to secure the
population. Public safety, he said, will set the atmosphere
for a successful long term approach in governance and
infrastructure development. In order to eventually replace
international soldiers, the Alliance must prioritize the
development of ANA and ANP by paying for their training and
sustainment. Volker continued that the existing ANA Trust
Fund is the best mechanism to cover recurring costs. Since
Allies agreed this week that expansion of the fund is
technically feasible, Volker urged an immediate formal
decision followed by staff action to enable sustainment
contributions.


14. (C) The Netherlands announced that it contributed 10
million Euros to the existing ANA Trust Fund to be used for
sustainment costs, if possible once the scope of the fund
expands. The Dutch asked all nations to consider generous
contributions to ANA recurring costs.

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ANNOUNCED CONTRIBUTIONS
--------------


15. (C) Foreign ministers announced the following new
contributions to the effort in Afghanistan during their
interventions:

-- Denmark's Parliament meets on December 5 and will likely
decide to increase forces.
-- Germany has increased forces from 3,500 to 4,000.
-- Germany will increase its 2009 civil reconstruction budget
by 70 percent.
-- Poland took over Ghazni province and added 400 troops for
total 1600. They are prepared to do more including adding
police trainers at the provincial and possibly district level.
-- Slovenia will strengthen its participation in an
Operational Mentoring and Liaison Team (OMLT) in 2009.
-- Romania has one OMLT and will contribute one more in 2009.
-- Lithuania will try to increase its involvement in the
south, paired with British forces.
-- Canada has increased its committed enablers in Kandahar,
including helicopters.
-- Netherlands will increase its efforts in police training,
and contributed 10 million Euros to the existing
ANA Trust Fund.
-- Albania will double its current troop strength during the
first quarter of 2009.

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WESTERN BALKANS: NOT THE TIME TO DISENGAGE
--------------


16. (C) Czech Foreign Minister Schwarzenberg, Slovene Foreign
Minister Zbogar, Ambassador Volker, and the Norwegian PermRep
emphasized the need to remain engaged in the Western Balkans
due to the continuing potential for dangerous instability and
particularly called attention to the situation in Bosnia.
The Czech FM said NATO should customize the tools it uses for
each country to keep them on the path to Euro-Atlantic
integration and should maximize NATO-EU cooperation.
Slovenia said it was prepared to assist Montenegro to prepare
for a Membership Action Plan (MAP). Hungarian Foreign
Minister Goncz advocated coordinated NATO-EU messages to BiH
and, supported by Ambassador Volker, called for EUFOR to
remain in place.


17. (C) Portuguese Foreign Minister Amado expressed concern
about the EU's ability to meet Belgrade's expectations on
EU accession and said that now is the time for a "new
impulse" to ensure Belgrade continues on a pro-EU path. The
Bulgarian, Czech, and French foreign ministers and the
Norwegian PermRep all stressed the need for the Alliance to
continue engaging Serbia. The Czech and Slovene foreign
ministers expressed hope that there would soon be a
resolution to the name issue so that Macedonia could join the
Alliance.

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KOSOVO: MOVING FORWARD ON EULEX AND KFOR'S NEW TASKS
-------------- --------------


18. (C) French FM Kouchner and Ambassador Volker cautioned
that Kosovo is on the right path but that much remains to
be done and now is not the time to disengage. Slovenia added

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that it was not yet time to begin thinking about drawing down
KFOR. Albanian Foreign Minister Basha said that NATO and the
EU must not let up but rather should continue to push in
Kosovo and throughout the Western Balkans. Ambassador Volker
and the Norwegian PermRep stressed that NATO must continue to
do its part in Kosovo.


19. (C) Hungarian FM Goncz applauded the restraint of Kosovo
authorities in recent months and said Allies must monitor
Kosovo's development, particularly with regard to the
protection of minorities. Portuguese FM Amado stressed the
need to continue working on the political and security
processes simultaneously and the necessity of having
Belgrade,s support in Kosovo.


20. (C) EU High Representative for the Common Foreign and
Security Policy Solana said that the EU Rule of Law Mission
in Kosovo (EULEX) was already moving into place as of
December 2 and that positive Serbian public statements toward
EULEX had been very important. FM Kouchner stressed the
French EU Presidency's satisfaction with EULEX's deployment
but said EULEX must be very cautious, particularly in
northern Kosovo. Ambassador Volker expressed U.S.
appreciation for the EULEX mission, and Canada indicated the
necessity for EULEX to deploy throughout Kosovo.


21. (C) Bulgarian Foreign Minister Kalfin stressed the
importance of NATO's new tasks of demobilizing the Kosovo
Protection Corps (KPC) and standing up the Kosovo Security
Force (KSF),saying Bulgaria would contribute funding to
these tasks. He also said Allies should press the Kosovo
authorities to implement proper standards and press Belgrade
not to isolate Kosovo. Slovenia said it would also
contribute to the KSF stand-up trust fund, and Albania
indicated it now planned to donate 250,000 euros. Czech FM
Schwarzenberg said the Alliance must work to turn the KSF
into a politically independent and reliable instrument to
help ensure Kosovo,s survival.


22. (C) Romanian Foreign Minister Comanescu said for the
record that Romania's agreement to communique language on
Kosovo -- which includes references to "Kosovo authorities"
and the "Kosovo Security Force" -- did not imply a change
of policy toward Kosovo in terms of recognition.

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PIRACY: NATO-EU-UN COOPERATION IS KEY
--------------


23. (C) Ambassador Volker said the U.S. was pleased with the
NATO counter-piracy mission and intended to take up the
piracy issue further in the UN. The U.S. supports the
upcoming EU mission and looks forward to strong NATO-EU
cooperation. Canada saluted NATO's counter-piracy efforts
and said it favors NATO studying options for future NATO
missions, in coordination with the UN and EU. Italy
indicated that NATO had done its share for the time being but
that the Alliance needed to remain alert and keep an open
mind about what can be done. Danish Foreign Minister Moller
stressed the need to find a way to deal with the detention
and prosecution of suspected pirates.


24. (C) EU High Representative Solana indicated that the EU
would launch its anti-piracy operation the following week
with a mandate to "deter, escort, and protect" and would have
robust rules of engagement. He seconded the Danish FM's view
that there could be no resolution except on land in Somalia
and EU would cooperate with NATO "to the fullest." Turkish
Foreign Minister Babacan said the principle of
complementarity does not mean NATO will automatically support
other organizations, that NATO-EU cooperation on piracy
should be in accordance with agreed frameworks, and that the
UN should probably have the lead on the anti-piracy effort.

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NATO HQ REFORM: SYG ASKS FOR ALLIANCE SUPPORT
-------------- -


25. (C) The Bulgarian FM emphasized support for the SYG's
NATO headquarters reform effort. The SYG warned that the
current headquarters was still a "Cold War" HQ that would not
last another five years. He asked for all Allies' support as
he moved toward presenting a package on NATO HQ reform at the
Strasbourg-Kehl Summit in April 2009.

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VOLKER