Identifier
Created
Classification
Origin
09USOSCE137
2009-06-03 14:54:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
Mission USOSCE
Cable title:  

CFE/JCG: JUNE 2: RUSSIA ACCUSES WESTERN STATES

Tags:  KCFE OSCE PARM PREL 
pdf how-to read a cable
VZCZCXRO9543
OO RUEHSK
DE RUEHVEN #0137/01 1541454
ZNR UUUUU ZZH
O 031454Z JUN 09
FM USMISSION USOSCE
TO RUEHC/SECSTATE WASHDC IMMEDIATE 6412
INFO RUCNCFE/CONVENTIONAL ARMED FORCES IN EUROPE PRIORITY
RUEHNO/USMISSION USNATO PRIORITY 1734
RUEAIIA/CIA WASHDC PRIORITY
RUEKJCS/DIA WASHDC PRIORITY
RUEKJCS/SECDEF WASHDC PRIORITY
RUESDT/DTRA-OSES DARMSTADT GE PRIORITY
RHMFISS/CDR USEUCOM VAIHINGEN GE PRIORITY
RUEKJCS/JOINT STAFF WASHDC//J5-DDPMA-IN/CAC/DDPMA-E// PRIORITY
RUEAHQA/HQ USAF WASHINGTON DC//XONP// PRIORITY
RUEADWD/DA WASHINGTON DC PRIORITY
RUEASWA/DTRA ALEX WASHINGTON DC//OSAE PRIORITY
UNCLAS SECTION 01 OF 03 USOSCE 000137 

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, EUR/RPM
NSC FOR NILSSON, HAYDEN
JCS FOR J5 NORWOOD, COL SMITH
OSD FOR ISA (PERENYI)

E.O. 12958: N/A
TAGS: KCFE OSCE PARM PREL
SUBJECT: CFE/JCG: JUNE 2: RUSSIA ACCUSES WESTERN STATES
OF "GROSSLY VIOLATING" CFE

UNCLAS SECTION 01 OF 03 USOSCE 000137

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, EUR/RPM
NSC FOR NILSSON, HAYDEN
JCS FOR J5 NORWOOD, COL SMITH
OSD FOR ISA (PERENYI)

E.O. 12958: N/A
TAGS: KCFE OSCE PARM PREL
SUBJECT: CFE/JCG: JUNE 2: RUSSIA ACCUSES WESTERN STATES
OF "GROSSLY VIOLATING" CFE


1. (SBU) Summary: At the June 2 JCG plenary, Russia
inquired whether delegations wished to comment on the Russian
Aide-Memoire, "Restoring the Viability of the CFE Treaty: A
Way Forward," distributed to the JCG on May 5. The U.S.
noted that the Aide-Memoire was not up for negotiation in the
JCG, but would be discussed in the June 3 bilateral meeting.
Italy, with support from eight other delegations, criticized
Russia for refusing Italy's request for inspection on May 25.
Russia responded by accusing NATO Allies of being in "gross
violation" of TLE collective ceilings.


2. (SBU) The last plenary meeting of this JCG session will
be on July 21. The first plenary of the next JCG session
will convene on September 8. No JCG plenaries will take
place on June 9 (due to the meeting in Berlin) or on June 23
(due to the Annual Security Review Conference). End summary.

- - - - - - - - - - - - - - - - - - - - - - - - - - -
Russia Seeks Reaction to Aide-Memoire; Receives None
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3. (SBU) The Joint Consultative Group (JCG) met on June 2
under the Chairmanship of Armenia (Papikyan). Russian Head
of Arms Control delegation Ulyanov solicited comments from
delegations regarding its Aide-Memoire, "Restoring the
Viability of the CFE Treaty: A Way Forward," which contained
Russian views on how to restore CFE, distributed to the JCG
on May 5. Ulyanov suggested sufficient time had passed for
review.


4. (SBU) The U.S. (Neighbour) noted appreciation for the
Russian paper, and assured Ulyanov that it has been studied
very closely; however, the U.S. remains of the view that the
contents of the Aide-Memoire are not subject to negotiation
at the JCG. Substantive U.S. comments on the Aide-Memoire
would be provided to Russia on June 3 in Geneva during the
meeting between Assistant Secretary Gottemoeller and Russian
MFA Director Antonov.


5. (SBU) Belarus (Krayushkin) recalled that it provided
views on the Russian Aide-Memoire immediately upon
distribution of the document. Krayushkin reminded the JCG
that Belarus "completely supported" the basic ideas of the

Aide-Memoire and its views had not changed.


6. (SBU) Germany (Schweizer) said it was "more or less in
line" with the U.S. statement, and noted that the
Aide-Memoire was still under review in Berlin. Schweizer
recognized that some ideas in the memorandum were not new and
were an attempt to respond to the March 28 NAC statement.
However, Schweizer noted that this was the first time we had
seen these ideas in writing. Germany pointed out that this
Russian response "has taken time" and, therefore, asked
Russia for its understanding that review of the Aide-Memoire
would also require considerable time.

- - - - - - - - - - - - - - - - - - - - - - - - - -
Allies Criticize Most Recent Russian Noncompliance
- - - - - - - - - - - - - - - - - - - - - - - - - -


7. (SBU) Italy (Negro) criticized Russia for refusal to
accept an inspection Italy had planned to begin on May 25.
Italy underscored concern that CFE, which "ensures
transparency in the OSCE area" could be eroded by only one
State Party. Germany, Turkey, France, Romania, Portugal, the
U.S., the Czech Republic, and the UK supported the Italian
statement. Germany (Schweizer) regretted Russia's denial of
the Italian request and stressed that verification was a
substantive part of CFE, which all States Parties (except
one) continue to carry out. Germany urged Russia to
"contribute substantively to confidence" in the OSCE region.


8. (SBU) Turkey (Begec) said Russia's "ongoing suspension
continues to be a matter of disappointment." France
(Simonet) regretted that Russian actions had "rendered

USOSCE 00000137 002 OF 003


inoperable some of the most important CFE provisions." The
U.S. (Neighbour) noted the importance for all States Parties
to observe all rights and responsibilities under CFE,
including raising at the JCG questions related to compliance.
Neighbour noted that Russian non-compliance with the Treaty
makes resolving the CFE impasse and moving forward on A/CFE
"all the more difficult" (JCG.JOUR/696/Annex 2).

- - - - - - - - - - - - - - - - - - - - - - - - - -
Russia Accuses (Again) Allies of "Gross Violation"
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9. (SBU) Russia (Ulyanov) said it would abstain from
reiterating its "well-known position" on CFE inspections and
instead revisited a heard-before, argument (confusing to most
delegates in the room) accusing NATO Allies of exceeding
TLE. "Who was in noncompliance," Ulyanov asked? Not Russia
for implementing a "legally-based moratorium." Ulyanov
questioned how the U.S. and UK delegations, in particular,
which regularly call for all States Parties to comply with
all CFE provisions, could point the finger at Russia when, he
asserted, the "Western group" was in serious violation of
exceeding flank limits. (Comment: It was not immediately
clear whether Ulyanov meant "Old NATO," or included the
newest NATO members when he referred to "Western States in
violation." End comment.)


10. (SBU) The U.S. (Neighbour) replied that there is no
provision for suspension within the CFE Treaty or under
applicable customary international law, and therefore,
Russia's "suspension" was not in compliance with the Treaty.
Russia said it was "well aware of the U.S. legal position,"
but repeated its question: "Would members of the Western
group set aside their gross violation of the Treaty and
comply with Treaty limits?"


11. (SBU) Turkey (Begec) stressed that Russia was in
noncompliance not the Allies. NATO as such does not have a
"legal personality" in the current CFE Treaty. Russia
(Ulyanov) disagreed; the Treaty "clearly refers to the
Western group." Germany Schweizer said the JCG was no place
to discuss "group implementation." This debate already had
given rise to Adapted CFE, which provides for national
ceilings instead of group limitations and addresses Russia's
concerns. Germany thought it unreasonable to discuss "past
rules," and noted the principle of transparency had carried
through all the revisions of CFE and was at stake. Schweizer
emphasized the importance of CFE information exchanges, which
Russia was not carrying out.


12. (SBU) Russia (Ulyanov) insisted that CFE was about
quantity, not transparency: "we have Vienna Document for
that." Ulyanov said there were only two possible ways for
Allies to get out of this situation. Either put an end to
their "gross violation" by reducing or limiting holdings, or
ratify A/CFE. Citing examples, the U.S. (Neighbour) replied
that there was a "tremendous amount of headroom" with regard
to holdings since all States Parties were below permitted
TLE. He said he could not understand how Russia could
complain about holdings by the U.S. or the Allies. As for
ratification, Neighbour reaffirmed that the current situation
made the ability to ratify A/CFE all the more difficult.
Georgia (Giorgadze) echoed the U.S. statement and added that
Russian presence at the Gudauta military base and on occupied
Georgian territory complicated Georgia's ability to ratify
A/CFE.


13. (SBU) Russia (Ulyanov) stressed that the Russian
moratorium was a "consequence" not a cause of the current CFE
impasse. Ulyanov believed that some States have sought to
use arms control or have "sacrificed it" for political
interests which have nothing to do with CFE.


14. (SBU) Comment: The U.S. and German delegations believe
Ulyanov was complaining that many Eastern Group of States

USOSCE 00000137 003 OF 003


Parties countries have joined NATO without Western Group of
States Parties numbers being reduced. Russia's accusations
were poorly formulated and not placed in the JCG Journal.
End comment.

- - - - - - - - - - - - - - - - - -
Duration of Present JCG Session Set
- - - - - - - - - - - - - - - - - -


15. (SBU) The Chair (Pipykan) noted no objections to
setting the last plenary meeting of the current session for
July 21 and the first plenary meeting of the fall session for
September 8 (JCG.DEC/1/09). The Chair reminded delegations
that next week's plenary was cancelled in light of the June
10 Berlin meeting. He said that in the absence of
objections, the June 23 JCG was also cancelled due to the
Annual Security Review Conference (June 23-24). The JCG
indicative schedule of plenary meetings was re-issued to
reflect schedule changes (JCG/INF/37.08/Rev.4).

- - - - - - - -
Debut of NATO-T
- - - - - - - -


16. (SBU) The first "NATO-T" which replaces the "JCG-T" and
the "NATO mini-caucus" met prior to the plenary under U.S.
chairmanship. Inter alia, the Netherlands (Kleinjan)
provided a readout of the HLTF "Away Day" held at
Oberammergau, May 26-28.

- - - - - - -
Next Meeting
- - - - - - -


17. (U) The next JCG Plenary will be on June 16 and chaired
by Azerbaijan. The NATO-T, which will continue under U.S.
chairmanship for the entire month of June, will take place on
June 15.
Scott