FSC MAY 7: RUSSIA AND GEORGIA RETURN TO UAV

UNCLAS SECTION 01 OF 07 USOSCE 000125 SENSITIVE SIPDIS STATE FOR VCI/CCA, VCI/NRRC, EUR/RPM, EUR/PRA, SCA/CEN, SCA/RA, PM/WRA, EUR/CARC JCS FOR J5 OSD FOR ISA (PERENYI) NSC FOR DOWLEY USUN FOR LEGAL, POL CENTCOM FOR CCJ5-C, POLAD UNVIE FOR AC GENEVA FOR CD E.O. 12958: N/A TAGS: PARM PREL OSCE KCFE GG RS XG SUBJECT: FSC MAY 7: RUSSIA AND GEORGIA RETURN TO UAV RECRIMINATIONS REF: STATE 47868 USOSCE 00000125 001.3 OF 007 ¶1. (SBU) Summary: Georgia and Russia at the May 7 Forum for Security Cooperation resumed trading accusations on the April 20 UAV incident, Georgia insisting that a Russian fighter shot down the Georgian "interior ministry" drone with a missile as it over-flew Abkhazia. Georgia responded to Russian questions from last week's FSC and repeated its call for participating States to send experts to investigate, noting that the three Baltics and the U.S. had already sent experts. Russia then charged that Georgia had failed to answer the questions it posed at the April 30 FSC, including a credible explanation for sending a reconnaissance aircraft over Abkhazian military formations. Russia also insisted that future discussion in the FSC include all UAV incidents and similar Georgian "provocations," not just the April 20 event. ¶2. (SBU) The U.S., in response, repeated its call for cooperation in the investigations and appealed for transparency and restraint. In a separate reply to Russia's intervention, the U.S. also asked Russia to explain why it was reportedly deploying airborne forces and heavy artillery into the region, seemingly at odds with Russia's role as a facilitator of a peace settlement. Russia angrily replied it was ready to discuss all aspects of the Georgia-Abkhazia situation in the FSC, not just the UAV incident. Georgia then invited Russia to join it in asking the FSC to investigate, but Russia rejoined that only UNOMIG should investigate. The Estonian chair promised to return to the topic when there was new information from the national investigators or UNOMIG. ¶3. (SBU) Sarah Parker, recently with the UN Institute of Disarmament Research, updated the Forum on the development of the Arms Trade Treaty. The decision on Small Arms and Light Weapons Points of Contact was approved. In the working groups, many delegations supported a U.S. rewrite of the Russian draft chair's statement on stricter enforcement of Vienna Document timelines for requesting inspections. Belarus still lacks instructions to join consensus on the MANPADS update decision. The German draft decision for an update of conventional arms reporting categories received wide support "in principle." France and Belgium promise a revision of their draft decision on illicit trafficking of small arms by air. There was some support for the Belarusian paper proposing an information exchange on end-user certificates. Germany's draft decision on publishing the Best Practice Guides on stockpiles of conventional ammunition has wide, unqualified support. The chair's draft letter on political-military topics for the Annual Security Review Conference will be considered in the Plenary on May 14. End summary. Security Dialogue: Georgia UAV Incident -------------- ¶4. (SBU) The chair (Estonia, Parts) reported that UNOMIG and several participating States (pS) had begun investigations of the April 20 UAV incident in Georgia. The chair said her intent was for the FSC to remain engaged and discuss the incident whenever there are new developments. She announced Georgia was ready to answer Russia's five questions from the April 30 FSC. USOSCE 00000125 002.3 OF 007 ¶5. (SBU) Georgia (Gaprindashvili) confirmed that Estonia, Latvia, Lithuania, and the U.S. were investigating. Georgia was consulting with other pS about additional experts investigating and invited all pS to contribute to the investigation. Georgia Repeats Earlier Position -------------- ¶6. (SBU) Gaprindashvili asserted the April 20 flight of its UAV Georgia did not violate the Moscow Agreement or UN Security council resolutions. The drone was unarmed and operated by the interior ministry and therefore not engaged in "military activity." It would be more appropriate to consider the "legality" of Russian military deployments and exercises near the security zone, he added. The UAV was flown to "verify" information about Russian military activities. How, he asked, does the presence of a jet fighter in the security zone comply with these international agreements? Even if the drone was destroyed by the Abkhazian air defense forces, the shoot-down would still violate these agreements. Georgia on Russian Saber Rattling -------------- ¶7. (SBU) Gaprindashvili asserted Russia's recent reinforcements to the area violate the requirement for complete transparency. He said Russia's belligerent statements only worsen the situation. According to Russia, it has deployed 400 fully armed paratroopers to provide conditions for unhindered peacekeeping operations. What is the role of the Russian airborne forces recently deployed to the region? ¶8. (SBU) Turning to other Russian questions, Gaprindashvili explained Georgia delayed in announcing the April 20 incident until it could verify the facts. Turning to Russia's claim that the attacking aircraft in the Internet video behaved erratically, Gaprindashvili explained that the preferred tactic for engagement is to approach the target from below to get a clear shot, as occurred in the video. In general, he added, it would be better to wait on the results of the experts' investigation for more detailed answers to the technical questions. ¶9. (SBU) On the Russian assertion that UNOMIG rejected earlier Georgian claims of Russian aggression, Gaprindashvili said the UN itself had subsequently abandoned the UNOMIG findings in those incidents. In any case, Georgia now welcomed the UNOMIG investigation of the April 20 incident. Finally, Gaprindashvili said Georgia had fully explained the August 2007 missile incident, but invited Russia to detail its remaining concerns. Latvia Sent Military Expert -------------- ¶10. (SBU) Slovenia, on behalf of the UN, announced it would make a statement on the incident at the May 8 Permanent Council meeting. Latvia stated that it was concerned about the situation and confirmed that it had sent an air force expert to Georgia. U.S. Calls for Cooperation in Investigation USOSCE 00000125 003.3 OF 007 -------------- ¶11. (SBU) The U.S. (Neighbour),per reftel guidance, reiterated support for the sovereignty and territorial integrity of Georgia, and called on all pS to send experts to investigate, noting that the U.S. had done so. Neighbour also called on the parties to the incident to cooperate with the investigations. Russia: Georgians Aren't Serious -------------- ¶12. (SBU) Russia (Ulyanov) expressed disappointment in the Georgian replies. Although the Georgian comments would be sent to Moscow for analysis, Ulyanov immediately dismissed as "not serious" the Georgian position that the UAV flight was not a "military activity." This was obviously military reconnaissance for targeting, he asserted. There have been 29 Georgian UAV flights over Abkhazia this year, he claimed. These reconnaissance flights cause considerable concern and lead to a sharpening of tensions. ¶13. (SBU) Ulyanov repeated his earlier claims that the Internet video was not filmed over the Abkhazian coastline, the location of the shoot-down, citing the absence of a beach and the presence of "roads that do not actually exist" in the video. He promised to return to the subject when the UN releases its findings. Georgia's remarks, he added, bear out Russia's position that the over-flights are a flagrant violation of the Moscow Agreement and UNSCR 1808. He announced that two more Georgian drones had been shot down by Abkhazian air defense forces on May 4. Russia Wants All UAV Incidents Discussed -------------- 14 (SBU) Turning to "procedural" issues, Ulyanov objected to the FSC agenda including only the April 20 UAV incident. He demanded all such incidents be the subject of future Security Dialogue discussions. He also objected to the April 30 chair's statement (FSC.DEL/89/08) that the national investigators were invited to present their findings at the FSC as unnecessary because any national expert can speak at any time as part of the national delegation. Ulyanov doubted, though, that it was appropriate for national experts to speak before the UN had reported. ¶15. (SBU) The chair repeated Georgia's request for pS to send qualified experts to investigate. ¶16. (SBU) Georgia denied that any of its UAVs were shot down on May 4. Georgia was prepared to discuss all UAV flights, as Russia demanded. U.S. Asks Russia about Recent Military Deployments -------------- -------------- ¶17. (SBU) The U.S., in response to Russia, called for restraint and transparency from all sides and noted that the OSCE was fulfilling its mandate when it highlighted tensions between pS and seeks ways to resolve the tensions and assists the sides in finding a road to peace. Neighbour repeated the list of events USDEL cited at the Permanent Council on April 30, including the closing of the Verkhiny Lars crossing, helicopter attacks on Georgian villages in the Kodori valley, USOSCE 00000125 004.3 OF 007 and the August 2007 missile incident. Neighbour noted the Russian announcement that two Georgian UAVs were shot down on May 4. The U.S. was still gathering information, he said, but if true, the shoot-downs could mark a significant violation of the Moscow Agreement. ¶18. (SBU) Neighbour called on Russia to repeal the recently announced official ties between Moscow and the separatist governments in Abkhazia and South Ossetia, to stop issuing Russian passports to residents of the two provinces, and to refrain from further improvements to the infrastructure connecting the region with Russia. ¶19. (SBU) Neighbour called on Russia to provide additional detail on its recent deployments of airborne forces and heavy artillery into the region. He asked if the forces had received peacekeeping training and how they would contribute to the relaxation of tensions and stabilization of the situation. He expressed concern that this could be at odds with Russia's role as a facilitator of a peace settlement. U.S. Slide Show -------------- ¶20. (SBU) In response to Russian and Georgian claims about the Internet video of the UAV shoot-down, Neighbour showed Internet photographs of L-39, MiG-29, and Sukhoi-27 aircraft, emphasizing that he was not accusing any pS of anything. He noted the L-39 was a single-tail aircraft while the aircraft in the video had twin-tails, like the MiG and Sukhoi. He also showed a photo of a MiG-29 firing an air-to-air missile that, contrary to Russian assertions that air-to-air missiles did not leave a smoke trail, clearly showed the missile's smoke trail, again similar to that seen on the UAV video. ¶21. (SBU) Neighbour called on Russia and Georgia to remain calm, exercise restraint, and seek reconciliation. He urged Georgia to develop its peace plan with Abkhazian authorities and hope Russia would not prevent that effort from going forward. Russia Takes Umbrage -------------- ¶22. (SBU) Russia objected to the "tone" of the U.S. remarks, finding them condescending. Ulyanov noted that the MiG-29 shown in one of the photographs belonged to Germany. In response to the U.S. list of incidents, he offered to discuss them all in the Forum, not just the April 20 shoot-down. He insisted that a Georgian UAV was shot down on March 18, despite Georgian denials. Neighbour replied that yes, the MiG-29 in the photo firing an air-to-air missile that smoked was German. He asked if Russia was contending that Germany's missiles smoke and Russia's do not. ¶23. (SBU) Georgia asked Russia to join it in requesting an OSCE investigation, but Ulyanov rejected the offer, insisting that only UNOMIG could conduct a legitimate, unbiased investigation. Georgia asked Russia to clarify who could be considered as unbiased. Ulyanov replied that only after the results of the investigation are presented could the bias of the investigator be judged. The chair closed the discussion, promising to return to the topic when the investigators had information to present. At the conclusion of the FSC, a number of delegations, including Sweden and Switzerland, told USOSCE 00000125 005.3 OF 007 the U.S. that its interventions on Georgia were just right and in accordance with what the OSCE should do. SALW POC Decision -------------- ¶24. (SBU) The Plenary adopted without comment the Danish-drafted decision on SALW Points of Contact (FSC.DEC/4/08). Vienna Document Inspection Timelines -------------- ¶25. (SBU) Delegations reacted favorably to U.S. edits (FSC.DEL/93/08) to the Russian proposed chair's statement on Vienna Document inspection timelines (FSC.DEL/75/08/Rev.1). Most agreed on the need for strict compliance with the timelines, but were reluctant to endorse the inflexible position found in the Russia draft, even with the diluted language--"pS will" becomes "pS are requested to"--found in the revision. Russia agreed to consider the U.S. version. The chair announced the Conflict Prevention Center had completed a preliminary study of "violations" of the timelines, found at paragraphs 85 and 112 on the Vienna Document (FSC.DEL/91/08). MANPADS Decision -------------- ¶26. (SBU) Belarus still lacks instruction on the draft decision to update the MANPADS principles (FSC.DD/5/08/Rev.1). CAT Update -------------- ¶27. (SBU) Several delegations expressed support in principle for the German draft decision on updating the conventional arms transfer reporting categories and promised to return soon with concrete comments from capitals. The UK, a co-sponsor, noted that the decision represented the "bottom line" for the OSCE, the minimum commitment for pS. Belarus noted it retained concerns about the provisions for voluntary reporting to the UN Register of Conventional Weapons. Illicit Air Trafficking of SALW -------------- ¶28. (SBU) The French-Belgian draft decision on illicit air trafficking of SALW, calling for an information exchange and a Best Practice Guide, received wide support. A revised edition of the decision will be distributed soon. The sponsors told USDEL their intention was not to alter the Wassenaar Arrangement document that would be used as the text of the OSCE Best Practice Guide. Their intent was to assure wider use of the guide by making it an OSCE document. End-User Certificates -------------- ¶29. (SBU) Germany, a ghost-writer of the Belarusian Food-for-Thought paper calling for an information exchange on national practices with conventional weapons end-user certificates, confirmed its support. Greece, Finland, and Sweden also support the paper, the latter noting an exchange USOSCE 00000125 006.3 OF 007 might be of interest to the Biennial Meeting of States at the UN in July. Brokering -------------- ¶30. (SBU) The chair announced she would ask the CPC to revise its analysis of the one-off exchange of national SALW brokering practice in light of the late submissions. Finland and Germany struggled over what the former meant when asking the CPC to "publicize" the study. Germany insists on more time to consider the request as it lacks instructions. BPG Publication Decision -------------- ¶31. (SBU) The German draft decision on the modalities of publishing the Best Practice Guides on stockpiles of conventional ammunition received wide, unqualified support and has been re-issued as the chair's (FSC.DD/6/08). Separately, Sweden informed that it will call for endorsement of its draft BPG on ammunition physical security soon, perhaps in conjunction with the Dutch BPG on ammunition destruction. Chair's Letter on Political-Military Topics for ASRC -------------- -------------- ¶32. (SBU) The transmittal letter and list of topics proposed by FSC delegations for discussion at the 2008 Annual Security Review Conference will be on the agenda of the May 14 FSC Plenary. Arms Transfer Treaty -------------- ¶33. (SBU) Sarah Parker, recently with the UN Institute of Disarmament Research, updated the Forum in the Security Dialogue on the development of the Arms Trade Treaty (ATT). Parker is now with the Small Arms Survey Project in Geneva, an NGO. Parker explained the antecedents and recent history of efforts to develop a "universal" treaty regulating arms transfers, culminating in the UN General Assembly resolution 61/89 of 2006, supported by most states. Slovenia, on behalf of the EU, Germany, the UK, and France expressed support for the ATT. Russia, Belarus, and Armenia expressed skepticism over the enforceability of a universal treaty and resisted using "irresponsible transfers" as an international standard. ¶34. (SBU) Parker noted that the U.S., the only state to vote against the UN resolution that calls for an exploration of the feasibility of the treaty by a Group of Government Experts, is nonetheless participating in that group. Parker also noted that U.S. export controls are among the strictest and most developed in the world and that U.S. opposition to the treaty was based on concern that it might undermine existing national and regional instruments and efforts and doubts about the possibility of universal participation. German Arms Control Seminars Continue -------------- ¶35. (SBU) Germany announced that, with co-host RACVIAC, it would host an arms control seminar on "The Role of Arms Control in Crisis Situations," July 9-11 in Zagreb. USOSCE 00000125 007.3 OF 007 Next Meeting -------------- ¶36. (U) The FSC will meet again on May 14. FINLEY