SCO CONFERENCE ON AFGHANISTAN

UNCLAS SECTION 01 OF 05 MOSCOW 000833 SENSITIVE SIPDIS E.O. 12958: N/A TAGS: PGOV PREL PTER SNAR UN AF RS ZK SUBJECT: SCO CONFERENCE ON AFGHANISTAN ¶1. (SBU) Summary: The Shanghai Cooperation Organization's (SCO) Special Conference on Afghanistan convened in Moscow March 27 to discuss the impact of terrorism and narcotics trafficking in Afghanistan on the country's neighbors, and intensifying international efforts to address these challenges. The event brought together SCO member states, plus Afghanistan, Pakistan, India, Iran, Turkey, the G-8 countries, and representatives of the UN, EU, NATO, and other international organizations, all of whom pledged various forms of support, both real and rhetorical, to Afghanistan. Participation by a U.S. delegation headed by SCA DAS Moon marked the first formal U.S. engagement with the SCO, undertaken to demonstrate U.S. support for international efforts to assist Afghanistan. The Russian organizers left no room in the formal proceedings for open discussion, and each delegation gave prepared remarks that did not stray far from the agenda. The event resulted in a statement by SCO members to support Afghanistan, a plan of action by the SCO and Afghanistan to combat terrorism, drug trafficking and organized crime, and a general declaration agreed by all attendees that acknowledged the key role of ISAF, among others, to assist Afghanistan. Final agreement was complicated by European objections to specifically recognize the SCO as a forum for dialogue on Afghanistan, and Iran's insistence on being singled out for its sacrifice in combating Afghan drug trafficking. The conference appeared to meet the Russian desire to convene an international event on Afghanistan, and was deemed a success simply for being held. End summary. ¶2. (SBU) The SCO Special Conference on Afghanistan, held in Moscow on March 27, provided a forum for representatives of SCO member states, Afghanistan, Pakistan, and observers such as India, Iran, Turkey, the G-8, and international organizations to present their views on stabilizing Afghanistan and addressing the threats of terrorism and narcotics trafficking to the country's neighbors. This was the first such event held by the SCO, and was attended by member states Russia, China, Kazakhstan, Kyrgyzstan, and Tajikistan, with Uzbekistan declining to attend. Heads of delegations gave statements that rarely strayed from the agenda, highlighted their contributions to Afghanistan, and avoided delving into controversial topics. SCO members and Afghanistan agreed upon a joint statement and a separate plan of action to combat terrorism and narcotics. All attendees agreed upon a final declaration that welcomed the SCO initiative, the efforts of the UN, NATO, and others to address the threats of terrorism and drug trafficking, and expressed the conviction of all to assist Afghanistan. (Note: All three documents are available in English on the Russian MFA website, http://www.mid.ru/brp 4.nsf/main eng.) ¶3. (SBU) The conference proceedings consisted of prepared remarks given by representatives of the 32 delegations present, including: -- Russia: FM Sergey Lavrov opened the conference in his role as Chairman, highlighting the need to take a comprehensive approach to Afghan stabilization that includes tackling extremists and drug trafficking. This requires strengthening coordination between ISAF and Afghan security forces in order to increase the latter's effectiveness. He called it "only natural" that the SCO, which incorporates nearly all of Afghanistan's neighbors, not remain aloof from collective security efforts. Through joint work with Kabul, and not the creation of "sanitary cordons," did the SCO and the Collective Security Treaty Organization (CSTO) suggest creating a security belt in the region. Russia supports Afghan national reconciliation so long as individuals renounce violence and "rupture ties" with Al-Qaeda. Lavrov cited the CSTO's counter-narcotics program Operation Channel, which Afghanistan joined and to which NATO and EU countries are observers. -- UN: SYG Ban Ki-moon painted a bleak picture of Afghans living in despair and farmers turning to opium to feed their families. Afghan terrorism and criminality transcended borders and went to where law enforcement was weakest. Ban saw positive signs that the international community was responding to drug trafficking through establishment of the Central Asian Regional Information and Coordination Center (CARICC) in Almaty, a joint Afghanistan-Pakistan-Iran counter drug operation, and the U.S. plan to send more troops to Afghanistan, which would mean additional security for the August Presidential election and more training for the Afghan army and police. -- Afghanistan: FM Rangin Spanta said the SCO could play a key role in projects of mutual benefit to Afghanistan and MOSCOW 00000833 002 OF 005 Central Asia, such as building roads, which would allow Afghanistan to serve as a route for increased regional trade. He called upon countries to reject the "zero sum game" in the region and avoid using Afghanistan as a "tool for conflicting policies." Stability in Afghanistan depended upon the long term commitment of Afghanistan's partners and the international community. -- Kazakhstan: DFM Nurtai Abykaev expressed concern that the global financial crisis would prevent donor countries from meeting their obligations to Afghanistan. Kazakhstan intended to double its financial commitment to Afghan reconstruction and development. He called for strengthening cooperation between the SCO and CSTO to combat narcotics trafficking, and for expanding the CSTO's Operation Channel. Kazakhstan would continue providing support to facilities in Dushanbe and Bishkek for training Afghan and Central Asian border guards and other officials. He welcomed ISAF's contribution to combating drug trafficking and called upon other international organizations to be involved in Afghan development. -- China: DFM Song Tao said Afghanistan was at a "crossroads," an expression used in numerous presentations during the conference. He stressed the need for the SCO and international community to: 1) Support the leading role of the UN in coordinating the reconstruction process; 2) Assist the Afghan government in holding general elections, the success of which would be a basis for stability; 3) Respect the leading role of the Afghan government in managing the nation's affairs, and step-up training for the Afghan military and police so they can play a larger role in maintaining security; 4) Give greater attention to development, agriculture, education, healthcare and infrastructure and increase the efficiency of the assistance given; and 5) Improve regional cooperation mechanisms, including the SCO. Tao said the SCO should tighten border controls, involve Afghanistan in regional law enforcement efforts, and strengthen real cooperation among member-states. Chinese assistance to Afghanistan included $180 million in economic aid, the cancellation of debts, technical training for Afghans working in various fields, and assistance to the Afghan army. China would convert to grants $75 million in concessional loans already given to Kabul this year. -- Kyrgyzstan: FM Kadyrbek Sarbaev cited the need to create a security belt around Afghanistan to halt the flow of narcotics. Kyrgyzstan had already seized 14 tons of narcotics coming from Afghanistan, including 200 kilos in the last two months. Bishkek supported new counter-narcotics efforts under the aegis of the UN, and believed Afghanistan needed to be invited more often to participate in regional processes. The Kyrgyz President proposed Bishkek as a site to establish an analytical center to discuss Afghanistan and find solutions for the country's stabilization and development. -- Tajikistan: FM Hamrokhon Zarifi pledged support for the Afghan people, who are not the source but the victim of terrorism and narcotics trafficking. Tajikistan welcomes the presence of Afghan entrepreneurs, seeks expanded trade, and wants to cooperate on hydroelectric and irrigation projects. He noted the particular importance of tightening border controls with Afghanistan to Tajikistan, the SCO member with the largest common border. Zarifi called for the creation of a SCO center in Dushanbe to combat drug trafficking, and the creation of a formal counter-terrorism structure within the SCO. -- Pakistan: FM Makhdoom Qureshi said that Pakistan had keenly observed the SCO expand into a platform to promote stability and economic cooperation in Central Asia, and cited Russia and China for their productive roles in this endeavor. Pakistan looks forward to full SCO membership, and until that time, wants to expand cooperation on energy development and investment promotion with SCO members. Pakistan also wants to take part in regional counter-narcotics coordination and expand cooperation of customs agencies. He cited the tremendous sacrifices Pakistan has made as Afghanistan's neighbor, including hosting the world's largest refugee population. Pakistan's security is indivisible from Afghanistan's, and Islamabad has reached a "new level of trust" with Kabul, agreeing to cooperate closely on counter-terrorism and narcotics efforts. Qureshi enumerated several steps the SCO could take to assist Afghan stability: 1) Accept norms of international conduct and respect territorial integrity; 2) Facilitate Afghan-led national reconciliation; 3) Conduct the battle for hearts and minds in a manner that respects local culture and traditions; 4) MOSCOW 00000833 003 OF 005 Support a massive reconstruction plan that includes enhancing the capacity of local security forces; and 5) Support infrastructure and energy development to allow Afghanistan to become a bridge for regional trade and development. -- Turkey: FM Ali Babacan said that while the ultimate solutions to Afghanistan's problems must come from the Afghan people, Turkey was ready to play a role in helping win Afghan hearts and minds by assisting the country's development. Turkey was living up to its assistance pledges, providing $200 million in aid for 550 development projects focusing on healthcare, education and agriculture, and establishing its own provisional reconstruction team. Turkey provided $100 million to train the Afghan army, funds for the police, and trained 100 Afghan government officials in Turkey. He highlighted Ankara's trilateral initiative that brought together government, military, and intelligence officials from Afghanistan, Pakistan, and Turkey to address regional issues. -- India: Special Envoy Satinder Lambah focused on helping Afghanistan become a regional hub for trade and transport through infrastructure development. India has already pledged $1.2 billion in various forms of assistance to Afghanistan. More must be done to help rural Afghans find alternative crops to opium and raise public awareness of the link between narcotics and extremists. -- Iran: DFM Mohammad Ahundzadeh said that any action aimed at strengthening stability in Afghanistan should be considered support for peace and stability in the region. He named several capitals, but did not mention Washington, saying that any decision made by them to stop drug trafficking and promote stability should be supported. The nexus of drugs and terrorism was detrimental to achieving security in the region. No country could accomplish this alone, although Iran has achieved some success, typically seizing three tons of opium daily and 1,000 tons annually. Success in battling heavy narcotics had moved the trade toward light narcotics. Terrorism does not differentiate between rich or poor, guilty or not guilty; it is indifferent to national borders. The international community must tackle the root causes of terrorism, with the UN maintaining the primary role through UNSCRs 1373 and 1390. After September 11th, Iran began extensive cooperation with its neighbors to prevent terrorism and drug trafficking. Human trafficking, trade in contraband, and poverty in the region contributed to the difficulty in eradicating terrorism and drug trafficking. Afghanistan, which has faced 20 years of hostility, suffers most from these blights. There exists huge trade and human potential in the region that must be harnessed. Security can only be achieved if accompanied by economic development. Iran, Afghanistan, Tajikistan, and Pakistan are particularly interested in cooperating to develop trade and the region's economic potential. -- CSTO: Secretary General Nikolay Bordyuzha cited the large number of international agencies active in Afghanistan and the need to prevent unnecessary duplication of efforts. He cited Russia and the U.S. for training customs and counter-narcotics officials in Afghanistan. Kyrgyz and Tajik drug enforcement agencies need technical assistance to strengthen their potential. Countries throughout the region need assistance to improve legislation to better fight narcotics trafficking. -- EU: Czech DFM Tomas Pojar cited EU donations to Afghanistan totaling $8 billion from 2001-2010. EU assistance is focused towards: 1) Training the Afghan army; 2) Promoting good governance and the rule of law, including expanding EUPOL to 400 people; 3) Providing assistance and possibly election monitors for the Afghan election; and 4) Enhancing regional cooperation to stabilize Afghanistan. -- UK: Special Representative for Afghanistan Sherard Cowper-Coles said he was genuinely optimistic about the future of Afghanistan when a gathering could be held that brought together Russia, Iran, and others to reach a common approach toward stabilizing the country. We all know what needs to be done, and we all know that there are military and non-military solutions. The UK is spending $4.7 billion annually in Afghanistan, while the U.S. is spending considerably more. Positive steps include the upcoming Hague conference, the U.S. Afghanistan-Pakistan policy review, and enhanced Afghan-Pakistan cooperation. He called upon all to contribute in cash and in kind to support the Afghan election, the credibility of which would help create a sense of common purpose among the Afghan people. He cited the toll of instability on people in the region, where three or four MOSCOW 00000833 004 OF 005 Afghan police officers are killed every day, 4,600 Pakistanis have died in terrorist attacks since 2001, and 3,000 Iranian border guards have died attempting to interdict narcotics. He closed by warning that if we don't hang together, then surely we will hang separately. -- U.S.: DAS Moon told the conference that the U.S. would announce the results of the Afghanistan-Pakistan Strategic Review later that day, and thanked U.S. allies, friends, and especially Afghanistan and Pakistan, for their contributions to this process. He highlighted the U.S. funding commitment for the Afghan elections and urged others to donate. The U.S. continues its support for the Afghan army and police, but understands that the solution is not entirely military, therefore, the international community must support building good governance and expand the delivery of development assistance. He urged support for two critical OSCE border security projects planned for northern Afghanistan, and ensuring that the UNSCR 1267 regime remained viable. The intentional community needs to assist the Afghans to better integrate counter-narcotics goals into security plans. The contribution of UNODC deserves special praise, including its initiative to advance counter-narcotics cooperation between Afghanistan, Pakistan, and Iran. The focus of the international community, as friends and partners of the Afghans, should be on building their capabilities to manage and sustain the efforts already underway. Russia Appreciates U.S. Participation -------------- ¶4. (SBU) Russian DFM for Asia Aleksey Borodavkin closed the conference by highlighting the SCO's important role in combating terrorism, extremism, and drug trafficking. He expressed hope that the conference participants would continue the dialogue at the March 31 Hague conference in a manner that would be "free from ideological overtones." In a separate conversation with DAS Moon, Borodavkin expressed appreciation for U.S. participation in the conference, calling it a good first step in starting cooperation between the SCO and U.S. Reaffirming the importance of cooperation on Afghanistan to the Russia-U.S. relationship, he hoped that the SCO conference's apparent success would help fine tune the U.S. policy review on Afghanistan. EU, Iran and China Differ on Declaration -------------- ¶5. (SBU) While the conference participants adopted a fairly innocuous joint declaration, two issues prolonged the declaration negotiation: several European countries' objection to characterizing the SCO as "an appropriate forum" for a wide dialogue on Afghanistan-related issues, and Iran's insistence on language that would single out its "efforts and sacrifice" in combating drug trafficking from Afghanistan. In the first instance, EU members, particularly Germany and the UK, expressed discomfort with agreeing to a qualitative judgment of the SCO's capabilities when they were not members of the organization. Their views met with firm opposition from China, which resisted all alternatives. The final declaration compromised by noting that the SCO was "one of the appropriate fora" to discuss Afghanistan. ¶6. (SBU) In the second instance, the Iranian delegation demanded that either Iran be singled out for praise, specific reference to joint efforts by Afghanistan and Pakistan be deleted, or the declaration not be approved. The Iranians stood firm in the face of urgent appeals for reasonableness from the Russian chair, Afghanistan, and China. Only Russian behind-the-scenes intervention succeeded in reaching a compromise by removing the entire paragraph on the importance of joint actions between states to combat drug trafficking. India, as an SCO observer country, served as a mediator in the negotiating session, while Russia demonstrated impartiality and flexibility as the chair. By What Measure Success? -------------- ¶7. (SBU) SCO members, Russian officials, and the Russian press, declared the Moscow conference a success that would enhance the role of the SCO in stabilizing Afghanistan. Leading Russian daily Kommersant went so far as to declare the success of the March 31 Afghanistan conference in The Hague dependent upon the outcome of the Moscow conference. Despite such self congratulations, a MFA official who was a principal organizer of the meeting lamented that success was measured by agreement upon three general statements and no concrete results. By typical Russian metrics, simply holding MOSCOW 00000833 005 OF 005 an international conference of this magnitude is considered a diplomatic victory. ¶8. (U) DAS Moon has cleared this cable. BEYRLE