DEMARCHE TO RUSSIA -- COMPREHENSIVE REVIEW

UNCLAS SECTION 01 OF 03 STATE 076723

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: PARM PREL AORC KPAO PTER UNSC RU CM
SUBJECT: DEMARCHE TO RUSSIA -- COMPREHENSIVE REVIEW
PARTICIPATION

REF: A. STATE 75607

B. IGO LIST

SENSITIVE BUT UNCLASSIFIED -- PLEASE PROTECT ACCORDINGLY


1. (U) This is an action cable for Moscow and Beijing. See
paras 5 and 6 below for Moscow and para 7 for Beijing.


2. (SBU) Summary/Action Request: Russia's UN delegation has
been resisting efforts by USUN and friendly delegations to
include the G8 Global Partnership, Australia Group and
Organization Internationale de la Francophonie on the list of
international organizations
(IGOs) invited to the 1540 Committee's Comprehensive Review
(scheduled for September 30 - October 2). Russia's
opposition is joined to a lesser extent by China regarding
participation of the Missile Technology Control Regime
(MTCR). USUN has discussed at senior levels and has informed
interested delegations of our interest in approaching Moscow.
The purpose of the demarche is to welcome the broadest
participation and note to Russia that
rather than establishing criteria for each and every
organization, we have consistently applied a view that "all
are welcome" to support the broad obligations of United
Nations Security Council Resolution 1540 (UNSCR 1540).
Consultations in New York with France, Austria, Australia,
UK, Italy, and Mexico, per Ref A, resulted in the
recommendation that each country conduct its own demarche to
Russia separately. More broadly, we want to gain Russian
support for fall discussions that demonstrate our partnership
on this issue at the highest levels. (Note. The full IGO
list will be sent SEPTEL. Both Austria and United States
recommended several additional groups which did not receive
objection and the unresolved areas are all marked with an
asterisk on the IGO list with which USUN is already familiar.
End note.) End summary.

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OBJECTIVES FOR ENGAGING RUSSIA
--------------


3. (SBU) Washington requests Embassy Moscow to deliver a
demarche to Russia on the Comprehensive Review and to inform
counterpart Embassies representing France, Austria,
Australia, UK, Italy, and Mexico that we are doing so as
coordinated in New York. The objectives of this demarche are
to:

-- Express our disagreement with Russia's position related to
the remaining 3 IGOs, and its desire to revisit a past
decision regarding IGO participation.

-- Reiterate our commitment to secure the broadest
participation in the Comprehensive Review, as well as
participation in implementation of UNSCR 1540.

-- Indicate to Russia that we do not support establishing a
vetting process for IGOs and regional organizations that may
be interested in supporting UNSCR 1540.

-- Reiterate our commitment to gaining Russian cooperation
and demonstrate our partnership on this issue at the highest
levels.


4. (U) Reporting deadline. Moscow is requested to deliver
the demarche by July 24 and report results NLT July 27, 2009.


5. (U) Embassy Moscow may draw from the below points, the

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SEPTEL IGO list, and non-paper text in para 6 to appropriate
host government officials. Post may leave the non-paper
behind with host government officials. (Note: USUN was
advised by the Russian UN mission that delivery of this
demarche at the level of Anatoly Antonov -- Director of the
Russian MFA Department of Security and Disarmament (DVBR)
and/or Sergey Ryabkov -- Deputy Foreign Minister, would be
the most effective approach. End Note.)

Begin points.

-- The United States appreciates U.S.-Russia cooperation on
nonproliferation and efforts to prevent the spread of WMD to
non-state actors through implementation of UNSCR 1540, as
reinforced by joint statements by Presidents Obama and
Medvedev on both April 1 and July 6.

-- We are committed to supporting the participation of the
remaining three intergovernmental organizations in the 1540
Comprehensive Review ) with their inclusion, we are ready to
finalize this list.

-- The 1540 Committee has engaged with regional and
intergovernmental organizations worldwide throughout the past
five years on a variety of issues relating to their
implementation of resolution 1540.

-- On December 17, 2007, the Committee agreed to an original
list that included the Australia Group as well as
Organisation Internationale de la Francophonie.

-- More broadly, the addition of the G8 Global Partnership is
consistent with our ongoing G8 Summit agreements.

-- It would be an unhelpful precedent to revisit previous
consensus agreements in the Committee, or to weaken the
Committee's agreement to work with other organizations as
broadly as possible.

-- We seek to be inclusive. All are welcome to contribute in
an open and
transparent process; this will serve the Committee well in
the future. Establishing criteria to determine which
regional or intergovernmental organizations are eligible
to participate will ultimately lead to a less transparent and
less inclusive process.


6. (U) Begin non-paper:

The results of outreach and initiatives since the adoption of
UNSCR 1540 have demonstrated international commitment to the
non-proliferation goals of the resolution, and we
are committed to developing the broadest ideas for the
Comprehensive Review. We aim to build capacity and encourage
further implementation of resolution 1540 while
recognizing a "one size fits all" approach is not suitable
for the various requirements unique to each state. We
appreciate Russia's commitment to working "together to
strengthen the ability of other nations to carry out their
weapons of mass destruction non-proliferation obligations
under UNSCR 1540," as noted in President Medvedev,s and
President Obama,s joint statement of July 6.

We hope we can develop a review process that will better
equip the Committee to pursue practical, concrete measures to
enhance Member States' ability to implement the resolution,
while recognizing that the pace of implementation will
require a longer strategic timeline
than originally envisioned following adoption of UNSCR 1540
in 2004. An effective review, approximately five years after
adoption of the resolution should recognize that both the UN
Security Council and the many regional, intergovernmental,
and nongovernmental organizations working to promote

STATE 00076723 003 OF 003


implementation of resolution 1540 need a longer timeframe in
which to do so. The greater the involvement of regional and
intergovernmental organizations, and the entities that
complement their activities, the more the international
community will be able to build even greater nonproliferation
capacity to implement UNSCR 1540 and reap the resolution's
benefits.

It has always been our intention to conduct an open review in
an effort to be transparent. The Committee has engaged with
regional and intergovernmental organizations
worldwide throughout the past five years on a variety of
issues relating to implementation of UNSCR 1540. On December
17, 2007, the Committee agreed to an original list for the
Comprehensive Review that included the Australia Group as
well as the Organisation Internationale de la Francophonie.
We believe revisiting previous consensus agreements would set
an unhelpful precedent. More broadly, we believe the
addition of the G8 Global Partnership to the review is
consistent with our ongoing G8 Summit agreements and the
Committee's letter to the G8 Japanese Presidency in August

2008.

Lastly, we seek to be inclusive as possible. All are welcome
to contribute in an open and
transparent process; this will serve the Committee well in
the future. Establishing criteria to determine which
regional or intergovernmental organizations are eligible to
participate will ultimately lead to a less transparent and
less effective process. We ask Russia to welcome all the
organizations previously agreed, the new additions, and also
support further additions if suggested.

End non-paper text.


7. (SBU) For Beijing. Washington understands that Beijing
would not object to Missile
Technology Control Regime (MTCR) participation in the
Comprehensive Review and would appreciate confirmation from
Post. Washington requests Embassy Beijing follow
up with Chinese MFA on its position regarding the MTCR,s
participation in the
Comprehensive Review. Post facilitated a meeting June 30
before the start of the ASEAN Regional Forum (ARF)
Intersessional Meeting and delivered a similar message to
this demarche.


8. (U) Further questions or information on UNSCR 1540 can be
directed to Tom Wuchte, U.S. 1540 Coordinator. Department
appreciates Post's assistance.
CLINTON