U/S BURNS' PARTICIPATION IN G8 POLITICAL DIRECTORS

C O N F I D E N T I A L SECTION 01 OF 06 ROME 000144 SIPDIS P STAFF FOR SARAH TAKATS E STAFF AMY WESTLING E.O. 12958: DECL: 02/07/2019 TAGS: PREL PTER PARM MNUC IT AF PK IR KN BM XA, XF SUBJECT: U/S BURNS' PARTICIPATION IN G8 POLITICAL DIRECTORS MEETING, VENICE, FEB 2-3 Classified By: Political Minister-Counselor Barbara A. Leaf for Reasons 1.4 (B) and (D) ¶1. (SBU) Summary: Undersecretary of State for Political Affairs Bill Burns participated in the first Political Directors Meeting of the Italian G8 Presidency in Venice, February 2-3. All participants showed great interest in the new Administration's approach to major policy issues -- most notably the Middle East, Iran, Afghanistan and DPRK -- and how this might impact G8 agenda items. The stated goal of this initial discussion was to have a "free-flowing exchange of ideas" in order to "fine-tune" the list of discussion topics for future meetings. Topical summaries of key issues are in paragraphs 4-17. Italian Political Director De Bernardin plans to circulate a skeleton of the Foreign Ministerial Statement and the Political portion of the Summit Leaders' Statement for discussion at the next PolDir Meeting in Taormina, Sicily, April 6-7. Italy will then prepare draft statements for discussion at the third PolDir Meeting in Rome, June 8-9, with the possibility of a fourth meeting on the eve of the G8 Foreign Ministerial at Trieste June 26-27, if necessary. End Summary. Italian G8 Presidency Priorities and Agenda - - - - - - - - - - - - - - - - - - - - - - ¶2. (SBU) De Bernardin kicked off the meeting by citing Afghanistan/Pakistan, Middle East Peace, Africa, Peacekeeping, Non-Proliferation, and Counterterrorism/Organized Crime as Italy's main priorities for the Political G8 track. He also raised FM Frattini's proposal for a Foreign Ministerial Conference ON Afghanistan and Pakistan ON the margins of the G8 Foreign Ministerial at Trieste (June 26-27),but indicated the details are still being fleshed out (see paragraph 14). ¶3. (SBU) De Bernardin plans to circulate a skeleton of the Foreign Ministerial Statement and the Political portion of the Summit Leaders' Statement for discussion at the next PolDir Meeting in Taormina, Sicily, April 6-7. This meeting will also include updates from the Peacekeeping/Peacebuilding, Roma-Lyon, Non-Proliferation and Global Partnership Working Groups. Italy will then prepare draft statements for discussion at the third PolDir Meeting in Rome, June 8-9, with the possibility of a fourth meeting on the eve of the G8 Foreign Ministerial at Trieste June 26-27 if necessary. Iran: U.S. Policy Review Underway - - - - - - - - - - - - - - - - - ¶4. (C) PolDirs discussed Iran over dinner. U/S Burns indicated the new administration will consult with Quint and P5 plus 1 members as it undertakes a review of its policy toward Iran. He said President Obama seeks to set a new tone, and noted the U.S. was prepared to use all tools of American power, including direct diplomatic engagement with Iran. In evaluating how best to engage, the U.S. expects to hear how our partners are prepared to increase diplomatic and economic pressure ON Iran. PolDirs raised the issue of the upcoming elections in Iran, and the impact U.S. engagement ROME 00000144 002 OF 006 might have ON enhancing Ahmadinejad's political prospects. There was consensus that steady expansion and technical advancements in Iran's nuclear program meant it was important to move quickly ON a renewed diplomatic approach including direct U.S. involvement with Iran, as well as greater pressure ON the second track. Europe and the Caucasus - - - - - - - - - - - - ¶5. (C) Following Iran, PolDirs discussed Georgia, Nagorno-Karabakh, and Transnistria. With Berlusconi's stated aim of improving relations between the U.S. and Russia, De Bernardin urged a discussion of how to address the Georgia crisis. The EU Council (Cooper) suggested the Greek proposal for a renewed OSCE mission in Georgia ON "legal grounds" was good, however Russia reiterated its objection to two equal-ranked mission offices that report to the Chief in Office of the OSCE, as opposed to a "chapeau" organization in Vienna. France suggested that if Russia would not agree to a reinforced technical rollover of UNOMIG's mandate that also facilitates IDP returns and permits unimpeded humanitarian access to South Ossetia and Abkhazia, a simple technical rollover might be the best way to proceed. All parties reaffirmed their close cooperation ON Nagorno-Karabakh, and the EU Council (Cooper) reaffirmed the importance of using the 5 plus 2 format for Transnistria. Global Issues: Non-Proliferation, Counterterrorism, Piracy, Peacekeeping - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - ¶6. (SBU) De Bernardin, who led the discussion ON Global Issues, said Italy's goals in the Non-Proliferation arena include: -- Unity of G8 intent with regard to Iran and North Korea, -- Moving forward ON the 2010 Review of the NPT, -- Support of IAEA activities and the universalization of the IAEA additional protocol, -- Support for the Fissile Material Cutoff Treaty (FMCT) and Comprehensive Test Ban Treaty (CTBT), -- Peaceful Use of Nuclear Energy, -- Expanding the geographic scope of the G8 Global Partnership against Proliferation and augmenting its scientist redirection program to include the chemical and biological weapons arena. ¶7. (SBU) Other G8 members were pleased to hear from U/S Burns that President Obama would seek to strengthen the IAEA, intensify efforts to develop a successor to the START treaty and pursue CTBT and FMCT. Russia said it would seek endorsement of multilateral approaches to fuel cycle development, especially with regard to its Angarsk International Center for Enrichment. Germany thanked Italy for making Non-Proliferation a centerpiece of the G8 presidency. Canada urged that during the NPT 2010 Review we should avoid repeating the failures of 2005, and stressed the need to make progress in all three pillars (NP, disarmament, and civilian use). Cooper (European Council) also supported the Italian plan, and called for greater outreach and ROME 00000144 003 OF 006 communication to avoid the appearance that Non-Proliferation is a North vs. South issue. France called for reaffirming our support for the IAEA additional protocols, and highlighted Syria's failure to cooperate with the IAEA. Japan called for greater focus ON ballistic missiles, particularly with regard to North Korea. ¶8. (C) Italy's Counterterrorism and International Organized Crime priorities include: -- A separate statement at the Summit addressing radicalization, recruitment and terror financing, -- Implementation of the FATF special recommendations, -- Prevention of abuse of charities, -- Protection of critical infrastructure, -- Transportation security and movement of terrorists, -- CTAG (Counterterrorism Action Group): Strengthening the linkage between the G8 and the UN, -- Promote full implementation of UNTOC, including outreach initiatives, -- Holding a Afghanistan drug production experts meeting. ¶9. (C) Italy also proposed appointing a G8 expert to study the compatibility of EU and UN listing regimes in light of the recent European Court of Justice de-listing ruling. Ryabkov countered that it would be better to encourage all countries to FOLLOW the UN lead ON listing and to ratify the 13 UN Conventions ON Counterterrorism. He also called for measures to counter terrorist use of the Internet and to foment the public-private partnerships launched at the St. Petersburg Summit, and urged caution against changing methodology with regard to a German proposal to consider individual sanctions. Canadian PolDir Swords emphasized the link between Organized Crime and Terrorism, particularly with regard to piracy, and U/S Burns seconded her call to focus ON kidnapping. ¶10. (SBU) ON Peacekeeping/Peacebuilding, Italy's priorities include promoting global Peacekeeping capacity, especially in Africa, and coordinating civilian, military, and policing efforts. De Bernardin urged other G8 members to consider contributing funding or trainers to CoESPU (Center of Excellence for Stability Police Units),the U.S.-Italian Peacekeeping training initiative launched as part of the Sea Island Action Plan. Italian FM Frattini has appointed Mario Raffaeli G8 coordinator for Peacekeeping in Africa. He will visit G8 capitals to help develop the PK/PB agenda with regard to Africa and to analyze gaps in physical and human resources. Canada reminded members that a report ON the Toyako commitments is due in 2009. ¶11. (SBU) Italy suggested that the G8 could add piracy to its agenda. There was strong support for this idea, although some disagreement over the mode of discussion. Germany expressed support for a Ministerial discussion, but urged that piracy be kept separate from terrorism, while Canada said that piracy cut through both organized crime and terrorism discussions. France praised the recently launched mechanism ON supporting anti-piracy efforts. The Commission noted two ongoing EC projects: one ON combating West African drug routes, and another ON critical maritime routes ROME 00000144 004 OF 006 (including the Straits of Malacca). Asia: DPRK and Burma - - - - - - - - - - - ¶12. (C) Japan, which led the discussion ON Asia, noted that the six party talks had stalled because of the posture of the North Koreans, who are attempting to divide and conquer and throw in the possibility of another missile launch as a negotiating tactic. Japan argued that the international community needs to regain its tactical flexibility and seek the right balance of carrots and sticks. Missiles, humanitarian concerns and normalization of relations all need to be part of the negotiations. The DPRK is putting pressure on South Korea, whose new government they see as less friendly, and they perceive that the new U.S. Administration may be more flexible. Germany said that Ministers should issue a statement ON the issue. U/S Burns noted that the new Administration was reviewing its policy but the DPRK was mistaken if it is expecting that position to soften. The U.S. will be carefully balancing incentives and disincentives and understands Japan's concern about humanitarian issues and abductions. Russia urged a renewed focus ON pragmatic deliverables, noting that verification is a shared goal and that there has been progress ON dismantling the facilities at Yongbyon. ¶13. (C) ON Myanmar/Burma, Japan suggested a pragmatic approach, noting that the new Parliament building, draft constitution, and elections in 2010 were good outward signs that would make it hard for the regime to reverse course. Russia urged the G8 to move slowly, following Gambari's efforts closely and seeking to understand the dynamics of his dialogue with the regime. Germany demurred, saying the same discussion took place one year ago and deeming it worthy of a Ministerial discussion. Cooper concurred, noting the importance of demonstrating that the G8 has not forgotten. Afghanistan and Pakistan: Need to Focus ON a Regional Approach - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - ¶14. (C) De Bernardin said Italy is aware of the need to keep the proposed Afghanistan-Pakistan Conference focused and results-oriented, suggesting that Italy has sensed the skepticism in capitals over Frattini's proposal. Italy wants to invite Afghanistan and Pakistan's neighbors (Iran, Turkmenistan, Uzbekistan, Tajikistan, China and India) as well as regional partners with a role to play (Saudi Arabia, UAE). The conference could focus ON border issues, with an emphasis ON cross border security cooperation migration, drug trafficking, and customs revenue. The length of the Afghan border is both a problem and an asset: 25 per cent of the Afghan national budget comes from customs revenue. Italy's Director General for Asia Massimo Iannucci will travel to G8 capitals over the next few weeks to coordinate the content of the proposal, and De Bernardin suggested Iannucci could report to the PolDirs at the April 6-7 meeting. The Foreign Ministerial would run back-to-back with the Afghanistan Conference, extending from June 25-27. ¶15. (C) Germany agreed that the conference could contribute ROME 00000144 005 OF 006 to the Afghanistan-Pakistan Initiative launched at the 2007 Potsdam Ministerial, and made the following proposals: provide G8 support to the Friends of Pakistan initiative, which is "moving too slowly," given that Pakistan is "close to failing;" create a G8 working group of Asia Directors General, and encourage Afghanistan and Pakistan to hold another peace jirga. Germany added that China should be encouraged to use its considerable influence in Pakistan. Canada added that G8 Ambassadors in Kabul and Islamabad should meet at least every three months to carry forward the work of the coordinating mechanism agreed to at Kyoto, and that Pakistan needs to re-engage ON the Dubai Process of Dialogue between Afghan and Pakistani border officials, whose working groups had stalled. ¶16. (C) U/S Burns agreed that the challenges posed by Afghanistan and Pakistan were inseparable and that is why the new Administration has appointed Ambassador Holbrooke to address them both. He praised Japan's willingness to host a Pakistan Donors Conference and said that the Italian conference was an interesting proposal, as long as it did not distract from other initiatives. The U.S. would keep an open mind as the concept developed and provide its feedback in the future. Russia said its proposal to hold a CSTO conference in March would complement the Italian initiative but doubted whether FM Lavrov could attend a two and a half days worth of meetings in Trieste. Africa: Some Positive Signs to Note - - - - - - - - - - - - - - - - - - ¶17. (C) Canada noted that despite recent events ON the continent, Africa had some positive stories to tell, including elections in Ghana, NEPAD, an overall net increase in democracies and decrease in conflicts. Canada, noting that many of the issues facing Africa also have Sherpa tracks (disease, economic development, etc.) suggested that the focus for the Ministerial be thematic or regional, depending on how events evolve over the coming months. Possible topics include: use of natural resources to fuel conflicts (particularly in the Congo region),peacekeeping issues, post-conflict stabilization, Sudan, Great Lakes (including the Lord's Resistance Army),Somalia (piracy and internal stability),and Zimbabwe, which is the country most at risk due to the lack of NGO access. Cooper suggested that the best approach might be to focus ON areas where the G8 could have the most impact, like Somalia. Russia suggested that the ICC indictment of Sudanese President Bashir might complicate matters in the Sudan and suggested it should be deferred. France emphasized the possible risks if DRC-Rwanda cooperation fails, and disagreed with the Russian suggestion that the Zimbabwe political stalemate had been resolved by the power-sharing agreement. U/S Burns underscored the need for accountability and follow-through ON past commitments, noted that UNSCR 1863 provides a useful framework for contributing to stability ON land, and stressed the importance of reinforcing international anti-piracy efforts. Middle East: Keen Interest in New Administration's Policy - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - ROME 00000144 006 OF 006 ¶18. (C) U/S Burns led the discussion ON the Middle East Peace Process and assured members that the new Administration was determined to pursue peace vigorously, as reflected in Senator Mitchell's early appointment as Special Envoy and immediate trip to the region. PolDirs showed strong interest in and appreciation for the U.S. approach. France urged robust involvement of the international community, showed interest in exploring steps to reinforce the cease-fire, and noted the importance of Syria. Germany and Japan suggested that only the U.S. could break the current stalemate, and that the new U.S. Administration could shake up the current dynamics. Cooper cautioned about the importance of coordinating reactions to a Palestinian consensus government, and Russia indicated they would be more prepared to consult after Israeli elections. Canada raised the importance of humanitarian issues and concern about the impact of the recent crisis ON Egypt. ¶19. (U) U/S Burns has cleared this message. 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