OPEN SKIES TREATY: APRIL 14 PLENARY - U.S.

UNCLAS USOSCE 000104

SIPDIS

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, EUR/PRA, EUR/RPM, SCA/CEN
JCS FOR COL NORWOOD
OSD FOR ISA (PERENYI)
NSC FOR DOWLEY

E.O. 12958: N/A
TAGS: PARM PREL OSCE
SUBJECT: OPEN SKIES TREATY: APRIL 14 PLENARY - U.S.
CHAIRMANSHIP TAKES OFF

REF: STATE 6161


1. (SBU) Summary: On April 14, the U.S. began its
Chairmanship of the Open Skies Consultative Commission (OSCC)
calling upon States to complete work on the digital video
sensor decision. The U.S. also kicked off discussion on
potential commemoration activities for the 500th observation
flight expected to occur this summer. Romania announced it
is prepared to certify its aircraft during week 38 (15-21
September). Turkey, the U.S. and several others spoke
against a recent Russian notification seeking no mission
activity in the last week of April due to lack of hotel
space. Russia subsequently agreed to allow Turkey to come a
week later, thus hosting two missions simultaneously as a
result. Latvia protested Russian delays in issuing visas for
its team members that prevented them from participating in a
planned joint mission by Latvia and Germany during the week
of March 31. The UK informed delegations informally that it
will no longer be able to conduct active missions due to
budget cuts (see SEPTEL report). The IWGRP met after the
plenary to discuss new Russian food for thought and decision
papers concerning procedures for alternate airfields. The
next plenary and IWGRP will be on May 5. End Summary.

U.S. OSCC Chair Commences
--------------


2. (SBU) On April 14, U.S. Chief Arms Control Delegate Hugh
Neighbour opened the 46th session of the Open Skies
Consultative Commission with a statement recalling the 16th
anniversary since Treaty signature in March 1992. He also
called on States to complete work on the digital video sensor
decision (Revision One to Decision 14) in the next few
months. His statement reminded States of the upcoming 500th
observation flight, and a U.S. food for thought paper
prepared for discussions on ways the OSCC can commemorate the
occasion. (OSCC46.JOUR/142, Annex 1).


3. (SBU) Romainia (Neculaescu) announced that with Germanys
generous support, it is planning to certify its AN-30
aircraft from September 15-21. The aircraft is equipped with
optical framing cameras (Leica Wild RC20). (OSCC.DEL/5/08)

Russian holiday week
--------------


4. (SBU) Turkey (Begec) read a statement objecting to
Russia,s recent notification requesting states refrain from
conducting a mission from April 26-May 3 due to lack of hotel
space. He noted that the request is not compatible with the
letter or spirit of the Treaty. Turkey respects the practice
of observing host country holidays to the extent possible and
2008 was no exception. Practical solutions have been found
in the past to address these situations and Turkey is
prepared to work on a bilateral solution.


5. (SBU) The U.S.(Silberberg),also on behalf of Canada, the
Czech Republic, Germany, Latvia, and Poland, made a similar
statement objecting to the Russian request to refrain from
conducting an observation flight during this week. This
statement expressed concern about setting an unhelpful
precedent for the future, especially when the Treaty does not
recognize lack of hotel space as a legitimate reason to avoid
conducting a flight (OSCC.DEL/4/08). Finland, the UK, and
Sweden also expressed similar reservations in separate
national statements and urged the parties involved to find a
bilateral solution.


6. (SBU) Russia (Kozlov) acknowledged the concerns about
blocking off that particular week. He said the unusual late
timing of Orthodox Easter this year and it coinciding with
the labor holidays result in a combined popular holiday week.
Russia does not anticipate this happening on a regular
basis. Russia is also willing to work with Turkey to find a
bilateral solution.


7. (SBU) Comment: Turkey had been scheduled to use this

timeslot according to the second quarter deconfliction
process. Turkey informed us that Russia offered to host them
the following week, which means it would be hosting two
missions simultaneously. Under the Treaty, a state is not
obligated to host more than one mission at a time, but it
appears Russia is willing to make an exception in order to
accommodate this situation, something within their
prerogative. USDel believes it was important to raise the
issue at the plenary, and we thank Washington for the quick
response to the proposed statement. We believe this
situation has been adequately addressed, and a suitable
solution found. We see no need for further action. End
Comment.

Latvia ) Russia too slow with visas
--------------


8. (SBU) Latvia (Nilsons) made a statement expressing
concerns that Russian delays in issuing visas for its team
members prevented them from participating on its planned
observation flights with Germany the week of March 31.
(OSCC46/JOUR/142, Annex 4). Unfortunately, Germany proceeded
with the mission without its Latvian partners, and their
visas were only received on April 3, after the mission was
underway.


9. (SBU) Russia apologized for the delay in issuing the
visas, claiming an unfortunate technical hitch in the visa
processing due to turnover of personnel in its consular
section in Riga. He said the personnel were not aware that
the list of Latvian reps had already been approved in Moscow.
He offered that in future Latvia may want to issue
diplomatic visas to its team members since under an agreement
between Russia and the European Union, EU reps with
diplomatic passports do not require visas.

Sensor Group ) "best guess" on digital
--------------


10. (SBU) USDel (Silberberg) provided an update from the
Chair of the Informal Working Group on Sensors (IWGS)(U.S.
Scott Simmons) on preparation of a "best guess" version of
the digital video sensor decision (OSCC.SEN/5/08). In
response to a request received from the German delegation for
reaching a consensus decision prior to the summer recess, the
Chair provided a new version of the video decision produced
following the March IWGS meeting. The new version was
distributed as OSCC.SEN/4/08, with a request for electronic
coordination by the end of April with a goal of adoption at
the May plenary.


11. (SBU) On the margins, in a trilateral meeting with Russia
and Germany, Germany informed us it agrees with the "best
guess" version. Kozlov expressed doubts that the decision
could be adopted in May and declined to speculate how long
review in Moscow could take. He sent the new text to Moscow
for review, where it needs to be reviewed by eight agencies.
Kozlov said it may be necessary to have further technical
discussions and the text changes one of Russia,s
"principled" positions, e.g., on data collection increasing
from 9 to 12 data points. Germany wisely noted that the art
of compromise sometimes involves finding a new "principled"
position. USDel pointed out that 12 represented a reduced
number from what most states were looking for.


12. (SBU) Comment: USDel understands Germany and Russia have
a bilateral arrangement to conduct sensor testing in the
fall. The "best guess" version is intended to offer a viable
way forward for consensus that will allow all states
--including the U.S.-- to move forward on this subject.
Request the IWGS Chair provide an update on the status of
consultations on this version prior to the May 5 plenary.
End comment.

500th Commemoration brainstorming
--------------


13. (SBU) During the plenary, the USDel introduced a food for
thought paper on potential activities for OSCC commemoration
of the 500th observation flight (OSCC.DEL/3/08). On April
15, we held an informal discussion with twenty delegations
which generated broad support for a number of press-related
activities in July in Vienna. Delegations support the
concept of highlighting the Open Skies success story,
especially as a good news story in light of other European
security issues. Public diplomacy officers advised by AC
offices in USDel will work with OSCE Secretariat Press and
Public Information Services to further prepare materials for
this occasion.

IWGRP ) Russia keeps the group engaged
--------------


14. (SBU) Following the plenary, Russian Chair (Kozlov) of
the Informal Working Group on Rules and Procedures (IWGRP)
held a meeting to introduce three papers provided by Russia
prior to the recess. The first paper is a Russian
food-for-thought on how best to provide for alternate
airfields for flights to and from the point of entry/exit
(OSCC.RP/3/08). The food for thought is accompanied by two
draft decisions (OSCC.RP/1/08 and OSCC.RP/2/08). As a
starting point, the Chair began discussion on the draft
decision for designation of alternate airfields (RP/2).
Delegations which spoke provided preliminary reactions, and
most are awaiting further guidance from capitals.


15. (SBU) Canada supports the initiative, and suggests that
ideally designated alternate airfields have IFR capability
with instrument landing system (ILS). Also information on
non-Jeppeson alternative airfields needs to be provided in
advance. France sees the proposals as helpful in terms of
bolstering flight safety, but questioned the language in para
2 about providing data no late than 30 days before the
changes take effect ) why not sooner? Russia says the 30
day language is intended to reflect the average cycle for
preparations prior to a mission. Finland,s initial reaction
is positive, but wants to know if you land at an alternate en
route to the POE due to bad weather, can the mission proceed
from the alternate? Russia said this was not feasible due to
the distances between alternates and the POE ) escort teams
would not be able to begin the mission from an alternate.


16. (SBU) UK also has a positive first impression and will
study the feasibility of identifying such airfields in the
UK. Greece wants to ensure that designation of alternate
airfields does not interfere with the decision-making
authority of the pilot-in-command to choose an airfield
during emergencies. The Czech Republic expressed similar
concerns and had the most lengthy of all the remarks. It has
doubts about all the procedures in the food for thought and
believes most of this can be done within existing procedures.
Czechs recall that air traffic control and ICAO govern the
safety of flight with respect to emergency landings. Smaller
countries have a limited number of airfields that can service
all the Open Skies aircraft. It would not want to have to
undertake infrastructure and financial burdens to have an
airfield for all aircraft. It is unsure whether the
potential for emergency landings justify the potential work
involved with the decisions.


17. (SBU) USDel said the papers were comprehensive in nature
and well-prepared. It appears that some procedures are
similar to those of certain bilateral efforts, and we are
awaiting further comments from Washington. After the
meeting, USDel asked Russia how these papers fit with the
U.S.-Russian bilateral arrangement. Kozlov said the papers
are meant to be complementary and would not supersede our
bilateral understandings. He provided us with a preview copy
of the Russian version of the exchange of letters per our
August 2007 bilateral discussions (emailed to VCI/CCA on
April 16). Upon approval from Moscow, he will provide this
letter under a note verbale from the Russian delegation in
Vienna. He expects that the U.S. will make a mirror copy and
return a similar letter with a note verbal from the U.S.

delegation in Vienna.


18. (SBU) Comment: USDel believes that Russia has
essentially tried to capture the procedures agreed to
bilaterally with the U.S. on this subject. Having reviewed
both the RP papers and the bilateral exchange, Mission
believes the efforts indeed are complimentary. We welcome
further review and guidance from Washington on finalizing the
bilateral arrangement, as well as any specific comments on
the two draft decisions prior to May 5. End Comment.


19. (U) AOB:

--Russia, Turkey, Italy, Germany, and Sweden provided
information of observation flights that took place since the
March OSCC meeting;

--Slovakia drew attention to a recent notification providing
information on a change of airfield to Malachy effective as
of May 8;

--Russia provided a notification with aeronautical
information on Pushkin and Siversky airfields per
OS/RB/08/1028/F26/O as of April 2. See OSCC.NOT/1/08 for
details;

--the next OSCC plenary and IWGRP meetings will be on Monday,
May 5.




FINLEY