Identifier
Created
Classification
Origin
09UNVIEVIENNA6
2009-01-12 12:32:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
UNVIE
Cable title:  

PARIS PACT BREAKS NEW GROUND

Tags:  SNAR KCRM PREL NATO EUN AF FR IR CA PK UN RS ZK 
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DE RUEHUNV #0006/01 0121232
ZNR UUUUU ZZH
O 121232Z JAN 09
FM USMISSION UNVIE VIENNA
TO RUEHC/SECSTATE WASHDC IMMEDIATE 8884
INFO RUCNDT/USMISSION USUN NEW YORK 1438
RUEHBUL/AMEMBASSY KABUL 0249
AFGHA/AFGHANISTAN COLLECTIVE
RUEHNO/USMISSION USNATO 0076
RUEHBS/USEU BRUSSELS
UNCLAS UNVIE VIENNA 000006 

SENSITIVE

SIPDIS

E.O. 12958: N/A
TAGS: SNAR KCRM PREL NATO EUN AF FR IR CA PK UN RS ZK

SUBJECT: PARIS PACT BREAKS NEW GROUND

REFS: A).UNVIE 003, B).08 UNVIE 638, C).08 UNVIE 634

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SUMMARY
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UNCLAS UNVIE VIENNA 000006

SENSITIVE

SIPDIS

E.O. 12958: N/A
TAGS: SNAR KCRM PREL NATO EUN AF FR IR CA PK UN RS ZK

SUBJECT: PARIS PACT BREAKS NEW GROUND

REFS: A).UNVIE 003, B).08 UNVIE 638, C).08 UNVIE 634

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SUMMARY
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1. (SBU) The Sixth Policy Consultative Group Meeting of the Paris
Pact Initiative was held in Vienna December 15-16, 2008. African
states participated in this annual meeting for the first time.
Members reviewed the 2008 roundtables and approved three for 2009.
UNODC Executive Director Antonio Maria Costa, in his opening
remarks, criticized the roundtables for producing too much paperwork
but not enough practical results. He challenged member states to
focus on concrete results, proposing some specific goals such as
doubling drug seizures, cutting precursors inflow, improving the
Afghan Transit Trade Agreement (ATTA) with Pakistan, and listing
drug criminals according to UNSC resolutions. Rising to Costa's
challenge and with our encouragement, Germany convened a small group
of countries on the margins to discuss establishing practical
benchmarks. In the end Germany asked the Secretariat to draft a
paper, for consideration at the next Policy Consultative Group
meeting, on ways to make Paris Pact more results-oriented. Although
Costa's criticism was made particularly for dramatic effect, this
German request could eventually lead to the adoption of specific
indicators, and fits with our desire to make UNDOC operationally
effective.


2. (SBU) Ambassador advocated for other member states to contribute
to the Good Performers' Initiative and supported Costa's call for
the Paris Pact to become more muscular. On the margins, he met with
Afghan Minister of Counternarcotics Khodaidad and Deputy Minister of
Interior General Daud Daud (Ref A). END SUMMARY

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NEEDS "SURGERY" AGAINST OPIUM
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3. (U) In his opening remarks, Costa noted the positive trends:
poppy cultivation declined 19 percent in 2008, production was down 6
percent, and opium prices fell 20 percent. Afghans involved in opium
cultivation dropped by 1 million, and the export value of opium was
down by 15 percent to USD 3.4 billion. However, he cautioned that

the opium problem was a "metastasizing cancer," concentrated in five
insecure southern provinces. He estimated the Taliban received $250
million to $470 million from levies they imposed on opium
production, processing and trafficking. Costa called for urgent
"surgery," and expressed his disappointment that ISAF forces had not
moved to strike drug targets.

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Priorities and Practical Results
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4. (U) Costa identified some priorities for the Pact, such as
increasing opium interdiction rates from the current 25 percent,
increasing the number of opium-free provinces from the current 18,
stimulating bilateral and multilateral cooperation, and fighting
corruption and money laundering. He urged attention on East Africa,
a transit stop for Afghan opium. He claimed that the 15 Paris Pact
roundtables over the past five years had produced a lot of paperwork
but not enough results. Success, he argued, will be judged by
results, not process. He challenged participants to strengthen
practical cooperation - on intelligence sharing, joint operations,
and concrete measures to prevent and treat drug abuse. He urged
development of concrete goals in these areas, including doubling
drug seizures, cutting precursors inflow, improving the Afghan
Transit Trade Agreement (ATTA) with Pakistan, and listing drug
criminals according to UNSC resolutions. "We need to give the Paris
Pact more testosterone", Costa argued.

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Measuring Success
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5. (SBU) At Ambassador's suggestion, German Ambassador Luedeking
invited his counterparts from the U.S., France, Canada, and Russia,
as well as UNODC's new Kabul office chief Jean-Luc Lemahieu, to a
meeting on the margins to discuss benchmarks to measure success.
Lemahieu urged a limited geographic focus. Ambassador advocated "a
simple set of metrics" such as increasing the number of poppy-free
provinces and increased interdiction of precursor chemicals.
Expressing understanding for Lemahieu's position, he nevertheless
pointed out the importance of going beyond Afghanistan's immediate
neighbors. Canada proposed examining the Proliferation Security
Initiative, with "a clear set of principles," as a possible model
for operational benchmarks for the Paris Pact. According to Canada,
such benchmarks could include increased seizures, tightening the
flow of containers, and arresting traffickers.


6. (SBU) Russia cautioned against an "overnight revolution," noting
that the Paris Pact is a partnership mechanism for a "balanced,
comprehensive approach." Germany suggested a two-track approach:
benchmarks for the Rainbow Strategy on the one hand, and benchmarks
for expert roundtables on the other. France proposed using UNSC
Resolution 1817 (June 2008, on Afghanistan precursor chemicals) as a
benchmark. However, at the conclusion of the Paris Pact meeting on
December 16, Germany only asked the secretariat to produce a paper,
on ways to make the Pact more results-oriented, for
discussion/consideration at the next Policy Consultative Group
meeting in December 2009.

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REVIEW OF 2008 ROUNDTABLES
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7. (U) The recommendations from the 2008 expert roundtables on the
Black Sea region, eastern Africa, and financial flows were reviewed.
All conference presentations are available upon request
(MoralesBA@state.gov). On the Black Sea roundtable, participants
recognized that various platforms exist, but none encompasses all
member states. In the absence of a unifying platform, UNODC
committed to developing a technical cooperation program. The East
Africa roundtable concluded that priority areas for that region
include 1) research and analysis, 2) legislation, 3) national
operational capacities, and 4) cooperation at the national and
regional levels. UNODC presented the recently-developed two-year

regional program entitled, "Promoting the Rule of Law and Human
Security in Eastern Africa." The discussion on financial flows
included a presentation by the Financial Transactions and Reports
Analysis Center of Afghanistan (FinTRACA) describing the challenges
and approaches in dealing with hawalas.

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2009 Roundtables and African Reaction
--------------


8. (U) Three roundtables (Ref B) were adopted for 2009: "Afghanistan
and neighboring countries" to assess both demand and supply issues
after the elections in Afghanistan; "European heroin trafficking and
abuse" in a western European city; and "Central Asia and China" to
be hosted in Almaty to discuss Afghan heroin trafficking and abuse
in Central Asia and Western China. Several East African delegations
expressed disappointment that Africa would not be the focus of one
of the 2009 roundtables. This feeling was exacerbated when UNODC
suggested that East Africa should be discussed in a different
framework outside of the Paris Pact, to which the Kenyan delegate
responded, "then what is the purpose of Africans in the Paris Pact -
why are we here?" The Secretariat explained that since a roundtable
was held in Nairobi in 2008, the Secretariat would be meeting with
the African states regularly to evaluate the progress on
implementing the recommendations from the roundtable. (Note: UNODC's
Paris Pact coordinator told Counselor subsequently that such a
meeting with seven African partner states had been previously
scheduled for February 2009. End Note.

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GOOD PERFORMERS INITIATIVE
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9. (U) Ambassador delivered a presentation on the Good Performers
Initiative (GPI),encouraging other states to contribute.
Afghanistan's Minister of Counternarcotics, General Khodaidad,
expressed his appreciation for U.S. assistance, and called on
Canada, Japan, the EU, and EC to support counternarcotics efforts in
Afghanistan. Germany and Canada appeared receptive to the GPI's
potential.

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COMMENT
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10. (SBU) This was the first Paris Pact Policy Consultative Group
meeting to include participants from outside the West/Central Asia
region. The African participants-from Ethiopia, Kenya, Mauritius,
Nigeria, and Tanzania-were obviously pleased that an international
forum was engaged in helping them to address their serious opium
transit problem.


11. (SBU) Costa's criticism of the Paris Pact for not having
produced concrete results appears to have been intended at least in
part to grab the attention of delegates, and to spur them to think
ambitiously. Also of note, given criticism from some of the EU
members, was Costa's forthright warning that firm NATO action
against drug-related targets is essential to extirpating the opium
"cancer." Through its Rainbow Strategy, the Paris Pact has improved
counternarcotics coordination and cooperation in the region, even
though such improvement may not be easily measurable. It has also
shown tangible results in the seizure of precursor chemicals.
Perhaps it is with these points--and Russia's cautious voice--in
mind, that Germany eventually requested the Secretariat to produce a
more general paper for discussion/consideration next December.
Incremental as this request may be, it could still lead eventually
to the adoption of specific indicators of success. End Comment.

Schulte
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