READOUT OF U/S BURNS AND USDP FLOURNOY'S

S E C R E T PARIS 000708

NOFORN
SIPDIS

E.O. 12958: DECL: 05/27/2019
TAGS: PREL MOPS MARR NATO FR AF PA SE
SUBJECT: READOUT OF U/S BURNS AND USDP FLOURNOY'S
POLITICAL-MILITARY DISCUSSIONS IN PARIS

Classified By: Charge d'Affaires, Mark A. Pekala for reasons 1.4(b) and
(d).


1. (C/NF) Summary. During a series of political-military
discussions in Paris on May 14 between U/S Burns and USDP
Flournoy with their French counterparts Gerard Araud and
Michel Miraillet, the French pledged support for our
non-proliferation efforts with North Korea and Russia and
urged close cooperation in the next 12 months as we prepare
for the 2010 review conference for the NPT treaty. French
officials expressed interest in the ongoing reviews of
missile defense, noting their support for USG bilateral
efforts to establish a third MD site in Europe but cautioning
that the potential costs of a NATO MD program could be
prohibitive and that current European defense budgets could
not support it. Paris is gearing up for the OSCE informal
ministerial in Corfu in June and has circulated a draft paper
with the Germans, UK and U.S. to reach agreement on some
basic principles for discussion. France further supports
reform of NATO institutions to facilitate committee work and
streamline the Alliance's organizational structure. French
and U.S. officials agreed on concerns over the security
situation in the Pakistan Swat Valley and increasing refugee
crisis. On the Balkans, France considers that the Office of
the High Representative (OHR) should be phased out after the
upcoming October meeting of the Peace Implementation Council
(PIC),and replaced by an EU Special Representative. The GOF
and USG representatives also discussed additional approaches
to combat piracy in the Gulf of Aden and how to increase
bilateral cooperation in space and on cyber deterrence. End
Summary.

--------------
NON-PROLIFERATION AND DISARMAMENT
--------------


2. (S/NF) Both Araud and Miraillet expressed strong support
for U.S. efforts to dissuade North Korea's nuclear program,
acknowledging that France is not on the "front-lines" of this
issue. Burns and Flournoy expressed appreciation for
France's support on the UN Security Council, hoping that they
would be able to tighten some procedures and proceed with new
designations through that organization. At the same time,
Flournoy said that the U.S. was reviewing new initiatives to
strengthen our solidarity and alliances with other countries
in the region to demonstrate that any DPRK provocation merely
serves to isolate Pyongyang and strengthen our common front.
She also suggested strengthening implementation of PSI, to
which the French agreed. Miraillet raised concerns of
Egyptian missile cooperation with DPRK and asked whether we
had any evidence of possible DPRK cooperation with Myanmar.
All agreed that we "must be tough" in PSI, within the UN and
with Russia on the Montchegorsk case.

--------------
BILATERAL AND MULTILATERAL COOPERATION
--------------


3. (C/NF) Paris is very focused on the NPT prepcom meetings
in New York to prepare for the 2010 review conference. Araud
stated that, as President Sarkozy announced in a speech last
March, France is ready to make concrete steps as part of
disarmament efforts. However, he cautioned that countries
without nuclear weapons and NGOs will continue to pocket any
concessions made and then put forth further demands as only a
Zero policy will satisfy them. He asked for close
cooperation with the U.S. in establishing "redlines" for the
nuclear countries and ensuring a balanced agenda that
includes proliferation threats from Iran and North Korea as
well as verification challenges. MFA Strategic Affairs
Director Jacques Audibert added that based on the current
discussions, France sees problems with the text of the
document as well as pressure being applied to do more. He
stated that, based on recent steps taken to dismantle test
and fissile materials sites, France has the best record of
nuclear states in disarmament efforts. In addition, France
is concerned that some proposals for verification could cost
billions of dollars and it also wants to ensure that
countries are able to exercise their right to peaceful use of
power.


4. (C/NF) USDP Flournoy clarified that there are three main
principles behind the USG nuclear and disarmament policy
articulated by President Obama in Prague: (1) strengthening
the non-proliferation regime, including ratification of the
CTBT treaty; (2) reducing our own nuclear arsenal (primarily
through new START negotiations with Russia); and (3)
maintaining a nuclear deterrence that is robust, safe and
reliable. These three pillars are all crucial elements to
our policy and move in parallel with each other. Both Burns
and Flournoy expressed desire for successful START
negotiations with Russia, but cautioned that a follow-on
treaty would only encompass modest reductions with deeper
reductions deferred until a later stage. ASD Vershbow added
that France should consider rejoining NATO's Nuclear Planning
Group (NPG) which would give it another forum to influence
wavering allies. Araud responded that he was unclear where
France currently stands on rejoining NPG.

--------------
MISSILE DEFENSE
--------------


5. (S/NF) GOF officials were very interested in current U.S.
plans for missile defense in Europe. USDP Flournoy noted
that Secretary Gates 2010 defense budget showed a shift in
investment from national to regional and theater missile
defense programs. At the same time, we are engaging in a
congressionally-mandated missile defense review. While the
USG remains interested in missile defense for Europe, we are
also taking Russian concerns seriously and trying to re-set
our broader relationship with Moscow, so we are looking at
different options. To give the new administration maximum
flexibility, however, the 2010 budget has allocated funding
for a third missile defense site in Europe. We'd also like
to increase missile defense cooperation with NATO and believe
the ALTBMD represents a good beginning. The U.S. is also
interested in exploring bilateral missile defense
opportunities with France, to take advantage of their strong
industrical and technological base. We'd like to continue
exploring use of French facilities associated with the
Atlantic test range. Flournoy added that we remain
interested in finding protection for the southern flank of
Europe and U/S Burns noted that the pace of the Iran missile
program was surprising to many, including the Russians.


6. (S/NF) Araud stated that he had engaged on numerous
occasions with the Russians in order to better understand
their missile defense concerns. Aside from not wanting to
see the American flag based in its former satellite
countries, all of Araud's Russian interlocutors had clarified
that U.S. missile defense plans were "only the first step" in
a global system. They also said the radar in the Czech
Republic looks deeply into Russia and can observe Russian
missile testing. As for NATO missile defense, Araud noted
that, while Paris had never opposed the U.S. missile defense
plans, there were concerns about the potential costs of the
program. He added that he was surprised at the number of
NATO allies willing to approve a program when there was
clearly "not one euro" to pay for it with current defense
budgets. France would require clear funding in order to
approve a NATO plan. Since France is still implementing its
2008 "white paper," its own defense funding has "dire
constraints." So, while Paris supports current discussions
and developments at NATO, the key question remains money.

--------------
EUROPEAN SECURITY ARCHITECTURE
--------------


7. (S/NF) French officials are very focused on the informal
OSCE Ministerial scheduled for Corfu in June to discuss
European security. Araud stated that the Europeans are very
divided on this subject and that the recent meeting of EU
Political Directors had been very tense, with strong opposing
positions. The U.S. position will be critical to unify EU
countries. The GOF has circulated a paper within the Quad
laying out some of the major redlines for discussion,
including: the importance of the transatlantic link, keeping
current security architecture, including a broad vision of
security, focusing renewed emphasis on the Helsinki
principles, addressing new ways to cope with crisis

prevention and crisis management and discussion of what to do
about CFE (whether to keep the current version or to consider
other alternatives). They are waiting for the USG reaction
to plan next steps. U/S Burns agreed that it is important to
take the initiative on this discussion of European security
and that the French paper is a good starting point.


8. (S/NF) Araud was very pessimistic about the CFE treaty,
saying that he sees no way to save CFE now, even if no one
wants to say so publicly. Currently, the Russians have the
best of both worlds since the occidental countries are still
implementing its provisions, but Russia is not. Further, the
allies will not accept an asymmetrical flank regime where
they submit to limits while Russia has none. Araud suggested
that we get into "brainstorming mode" on what Europe really
needs for its security and then try to discuss it more
broadly after the September German federal elections. The
U.S. delegation noted that it was in our own interest to make
the system function and that we will want to keep the CFE
structure, even if we move forward with discussions on
alternatives. Doing so may give us leverage with the
Russians on other issues, but USDP Flournoy warned that she
did not want to give Russia "a new piece of paper which would
relieve them of their obligations under existing treaties"
and that alternatives shouldn't focus solely on "red lines"
but also on lines of opportunity.

--------------
NATO STRATEGIC CONCEPT
--------------


9. (C/NF) USDP Flournoy stated that most NATO allies view
the launch of the new Strategic Concept as long overdue. The
last one has not kept pace with changes in the new security
environment. The U.S. wants a "wise persons" group to
consult very widely to compile the views of Allies, which
will be used by SecGen to draft the concept, rather than try
to draft it by committee. We are focused on maintaining the
credibility of Article 5, dealing with new security threats,
the future of NATO's open door, NATO's relationship with
other organizations such as the EU, NATO internal reform and
the Alliance's commitment to capabilities development. Araud
cautioned that defining Article 5 more precisely as some
countries would like, would weaken it. The current structure
of the NATO treaty, with only 10 Articles, gives NATO the
flexibility to redefine itself easily. France wants to see
an emphasis on NATO intervention as a comprehensive approach
and to address the criteria for NATO enlargement, since there
are now several different processes to join the Alliance.
France also counts itself among the "reform wing" of NATO,
and Araud criticized the military structure of NATO which
appears designed to "give jobs to Lithuanian colonels" over
other operational priorities. He questioned the necessity of
consensus within NATO's working committees and advocated
reforms to allow various proposals to come out of committee
rather than having one country block all action. Consensus
within the NAC would still be "sacred."


10. (C/NF) USDP Flournoy asked if French officials had any
suggestions on how to overcome the NATO-EU logjam. Araud
expressed great frustration with Turkey because it is not
willing to work informally to overcome obstacles. He said
that France had made efforts during its EU presidencies in
both 2000 and 2008 to improve cooperation with Turkey, but
with out much success. The Europeans cannot bring Turkey
into the European Defense Agency because of the Cypriot veto,
but they have just admitted Turkey as an observer in the
European Gendarmerie Force. However, he concluded that none
of these efforts had been of much help. ASD Vershbow
suggested that perhaps now is the time to make a concerted
effort for a Cyprus settlement, and he encouraged the EU to
design some incentives for Greece and Cyprus to achieve it.

--------------
AFGHANISTAN/PAKISTAN
--------------


11. (C/NF) U/S Burns led the discussion on
Afghanistan/Pakistan by acknowledging the depth of the
challenge presented in the region, and the need to improve
communication and coordination between Pakistani and Afghan

officials. The deteriorating security situation in the Swat
Valley remains a particular concern. U/S Burns said USG
efforts sought to build political cover for the political
leadership in Pakistan, commenting on the added challenge
caused by the raw feelings between President Zardari and
Nawaz Sharif. USDP Flournoy added that the USG was under no
illusion that there was a quick fix at hand, but underscored
the urgency of the security situation. She discussed her
concerns that Pakistani efforts in Swat are exacerbating the
IDP situation. It was not clear whether the Pakistanis would
be effective in "holding" and "building" and "clearing"
Taliban forces from Swat.


12. (C/NF) Araud said that a Pakistani delegation would be
in Paris tomorrow to discuss counter insurgency (COIN) and
Special Forces training. The French government plans to
offer COIN cooperation, and promised to coordinate French
efforts with the U.S. and UK to ensure consistency of the
overall effort. On the issue of Pakistani security
assistance, the French voiced some frustration that the
Pakistanis ask for equipment, but are reluctant to accept any
condition-based assistance. U/S Burns and USDP Flournoy both
described the challenges for Pakistan to break from their
ingrained views of the strategic threat coming from India
versus the Afghan border region, and the enormous importance
of Pakistan making that leap. GOF officials said that other
donors to Pakistan from the Gulf States view the challenges
differently, but all agreed that their participation is
important to crafting and financing a viable solution. In
response to a question from the French MOD, U/S Burns said
that the USG hoped for the resumption of back-channel
communications between Pakistan and India, but that the
United States had to move cautiously and not be seen as too
intrusive.

13. (C/NF) On Afghanistan, the French described their
efforts to concentrate military and civilian cooperation in
the two regions where French soldiers are operating. By
increasing their aid to 40 million Euros this year, they hope
to see real progress over the next year in agriculture and
rural development. Araud also discussed efforts to deploy a
European Gendarmerie Force mission to Afghanistan to provide
mentoring and training to the Afghan police. He described
coordination challenges owing to the domestic political
feuding between the Italian Defense and Foreign Ministers,
but said that the pan-European response (now involving
French, Italian, Spanish and Dutch gendarmes) was worth the
effort. Italy continues to contend that the EGF mission,
which will be comprised of 400 gendarmerie, not be approved
until the formal standing up of NTM-A at the June Defense
Ministerial.
--------------
THE BALKANS
--------------


14. (C/NF) Araud expressed the French view that the Office
of the High Representative (OHR) should be phased out after
the upcoming October meeting of the Peace Implementation
Council (PIC),even if the 5-plus-2 conditions were not
completely fulfilled with the OHR, and replaced by a EU
Special Representatives, adding that "the military mission on
the ground is over." Believing that the OHR is now part of
the problem, Araud said that the EU would be discussing its
position on the EU Special Representative in the coming
weeks, and that it wants to find a way to maintain U.S.,
Russian and Turkish engagement. On the status of EUFOR,
Araud described the ongoing challenges to Italian and Spanish
forces in Bosnia whose military forces continue to be
deployed, often at the badgering of EU countries that have
removed their own forces from the region. EUR Acting A/S
Marcie Ries said that the United States was not convinced
that satisfactory progress had been made on the 5-plus-2
commitments to warrant closure of the OHR, and said that we
remain concerned about the corrosive influence of resurgent
nationalism in the region. Both sides agreed to continue our
dialogue after VP Biden,s trip to the region next week.
Araud said that the French did not want a "Dayton II," and
commented that the Bosnian constitution was "artificial and
fragile, but the Bosnians are used to it." Nonetheless, he
said that he believes the current impasse between RS leader
Dodik and Bosniak leadership was unworkable.

15. (C/NF) Araud said that Serbia, Bulgaria and Greece,

represent the three necessary poles for stability in the
Caucuses. Araud hoped that the EU would improve its
relations with Belgrade, since the Serbs had voted by a large
margin in each of their last two elections for pro-European
parties. Araud was quick to point out that the Serbs are
guilty of double talk, and was especially critical of FM
Jeremic,s efforts to play both sides. He added that Tadic
understands that Jeremic is a problem but cannot dismiss him
for domestic political reasons. Araud briefly described the
GOF,s views on Macedonia, which he described as a "dead
end." On the border dispute between Croatia and Slovenia,
Araud said that Slovenia was prepared to block a potential
compromise solution at hand with the EU and requested
Washington's help with pushing Ljubljana towards compromise.
The EU Commission would soon provide a new, slightly-amended
version, but that was "the end of the road." Summing up the
frustration an MFA colleague had with the Slovenian,s
stubbornness, Araud said Czech FM Schwartzenberg had
commented "never underestimate the charms of petty
nationalism."

--------------
COUNTER-PIRACY
--------------


16. (C/NF) Both U.S. and French officials agreed that the
situation in the Gulf of Aden is complicated and requires a
comprehensive approach. Araud informed the U.S. officials
that France had decided to train a battalion of Somali
soldiers in Djibouti, to help improve security. U/S Burns
shared that the G-8 Political Directors had discussed other
ideas, including increasing judicial capacity, training of
Somali forces and possible steps that commercial ships can
take to better avoid the pirates. USDP Flournoy added that
the paying of ransoms has created a commercial market that
the international community should try to change with
incentives. Further, given the resources needed to protect
commercial shipping, it may be more economical for ships to
learn to take some simple, active defensive measures such as
blocking exits, learning evasive maneuvers and increasing
speed. We must still address what to do with the pirates we
have apprehended, as countries have varying laws on capture
and jurisdiction.

--------------
BILATERAL COOPERATION
--------------


17. (C/NF) GOF and U.S. officials also discussed a variety
of additional areas for bilateral cooperation, including
nuclear, space and cyber issues. Araud stressed the
importance of cyber deterrence for the French, noting that
cyber attacks that took place during the visit of the Dalai
Lama to France and the fact that French computers were used
unwittingly in cyber attacks on Georgia during the
Georgia-Russia crisis last summer. The GOF would like to
share legal, doctrinal and policy experiences in this area.
At the end of the meetings, the U.S. and Frances signed a
Memorandum of Understanding on Space Cooperation between the
U.S. Department of Defense and the French Ministry of Defense.


18. (U) THis cable was cleared by U/S Burns and USDP
Flournoy.

PEKALA