HLTF: SHARING RUSSIAN PAPER ON CFE

UNCLAS SECTION 01 OF 02 STATE 043053

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: KCFE PARM PREL NATO
SUBJECT: HLTF: SHARING RUSSIAN PAPER ON CFE


1. (U) This is an action cable.


2. (SBU) Mission is requested ask the IS to deliver to
delegations promptly on Thursday, April 30, a copy of the
paper contained in paper 3 below along with the following
explanatory remarks :

-- Following up on discussions during the April 28 HLTF
meeting, we would like to provide a copy of the translation
of the paper provided by Russian Security and Disarmament
Director Antonov on April 24 to Assistant Secretary
Gottemoeller.

-- We look forward to working with Allies to develop a
coordinated response and believe the HLTF "away day" at the
end of May will provide an excellent opportunity to discuss
Russia's position and the non-paper in detail.


3. (U) Begin translation of Russian paper (note internal
numbering):

Restoration of the Viability of the CFE Treaty: A Way
Forward (Aide-Memoire)

The Russian-U.S. draft of the "package solution," on which
Russia and the United States have been working for over a
year, bringing in their proposals on ways to resolve existing
problems, could become the basis for a comprehensive document
on restoring the viability of the control regime for
conventional weapons in Europe. For this purpose, however, it
needs a thorough and thoughtful revision.

The main flaw of the draft as it now stands is that contrary
to the concept of "parallel actions" on which it is based, it
provides for specific Russian actions in exchange for rather
vague promises on the part of NATO, whose fulfillment is not
at all guaranteed.

It is necessary to ensure the balanced nature of the draft,
which should provide for "parallel" or rather, counter
actions by the interested parties. Absolutely every aspect
that causes or may cause disagreements must be resolved
properly, not in the indefinite future, but directly within
the framework of the "package," and in such a way as to
preclude the possibility of diverse interpretations and the
breakdown of the agreements that have been reached. We are
certain that all States Parties to the CFE Treaty are
interested in reaching an agreement precisely on such a clear
and explicit document, which will make it possible to
overcome existing differences and ensure the long-term and
effective functioning of the treaty regime in the interest of
all States Parties.

Specifically, the following things are required in order to
achieve this goal.

1. The most reliable guarantees possible for ratification of
the Agreement on Adaptation within the agreed time frame,
including the submission of the instruments of ratification
to the depositary.

2. Inasmuch as ratification is within the purview of the
parliaments, and the executive authorities cannot guarantee
it, we ought to make clear provision for temporary
application of the adapted CFE Treaty. Let us remind you that
the Russian approach provides for a two-stage scenario:
during the first six months the States Parties would be
guided by the political obligation to act in accordance with
the objective and goals of the adapted CFE Treaty, complying
with the ceilings and then, unless the Agreement on
Adaptation has entered into force by that time, its temporary
application would begin.

3. A sine qua non for reaching a "package" agreement is
abolition of discriminatory territorial subceilings for the
Russian Federation, which are totally unjustified when a
number of countries in the flank region are joining NATO, and
which are hindering the fight against terrorism. If any of
our partners feels a need for additional confidence-building
measures (reciprocal, of course) in the context of abolishing
subceilings, the Russian side is willing to carefully study
appropriate proposals.

4. Agreement must be reached on reduced levels of armaments
for the NATO member states; such levels would enter into
force on the date on which the temporary application of the
adapted CFE Treaty begins. Relevant indices must become an
annex to the "package."

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5. It is also imperative that the specific conditions for the
accession of new NATO members to the CFE Treaty become an
annex to the "package solution."

6. There is no need to postpone agreement on a definition of
"existing combat forces." It must also be appended to the
draft.

7. The Russian side deems it essential within the framework
of the "package" to decide that immediately after the entry
into force of the adapted CFE Treaty the States Parties will
begin talks on its further updating. This decision could also
contain a sample list of issues that they would like to
consider at those talks.

8. It would be necessary as early as this stage to agree on
and append to the "package" the draft of a decision approving
and supporting the continuation of the current peacekeeping
operation under the Russian-Moldovan Agreement of 1992. After
the "package" is agreed upon, the draft of this decision
would be submitted by the CFE Treaty States Parties for
approval by the Permanent Council of the OSCE.

9. In regard to regional aspects, the Russian side is
prepared within the framework of the "package," provided that
it be made truly balanced, to consider some
transparency-related issues. This pertains both to Moldova
and to the situation in the Transcaucasus, taking into
account the actual situation in the respective regions.

10. The draft "package solution" revised with consideration
of the foregoing could be approved at the new extraordinary
conference of the CFE Treaty States Parties in the form of
its final document.

11. The Russian side will put the CFE Treaty back in effect
upon the entry into force of the Agreement on Adaptation of
the CFE or at the beginning of its temporary application as
stipulated in the "package solution." After agreement is
reached on the "package solution" and taking into account its
content, the Russian side would explore the possibility of
implementing on a bilateral basis, as a goodwill gesture,
reciprocal transparency measures in the CFE area of
application during the period preceding the start of
temporary application/entry into force of the Agreement on
Adaptation.

12. In view of the considerable amount of work ahead of us,
the Russian side reaffirms its willingness to step up efforts
to revise the draft "package solution." It is necessary to
continue the Russia-U.S. dialogue on the level of federal
government representatives, and to bolster it with daily work
on the specific content of the "package" at the level of the
Russian and U.S. delegations in Vienna. The Russian side is
also willing to become actively involved in bringing other
States Parties into this dialogue, including in the JCG
format.

End translation of Russian paper
CLINTON