OPEN SKIES: DECEMBER 14 PLENARY, REVCON, AND

UNCLAS SECTION 01 OF 03 USOSCE 000287

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, EUR/RPM, EUR/PRA
JCS FOR J-5
OSD FOR ISA (KEHL, WALLENDER)
NSC FOR FRIEDT

E.O. 12958: N/A
TAGS: PARM PREL KCFE OSCE
SUBJECT: OPEN SKIES: DECEMBER 14 PLENARY, REVCON, AND
SENSORS


1. (SBU) Summary: The December 14 Open Skies Consultative
Commission (OSCC) adopted the annual decision on distribution
of OSCC expenses. There was broad support for the OSCC
modality proposals by Hungary and Luxembourg, but both agreed
to wait until January to discuss a more comprehensive draft
being prepared by the U.S. After the plenary, the second
meeting of the Informal Working Group on Planning the Review
Conference (IWGPRC) met to discuss the agenda and Final
Document for the June 2010 meeting. The Informal Working
Group on Sensors (IWGS) held a series of meetings, resulting
in progress on digital sensor issues. Germany is
reconsidering its future aircraft options. The first OSCC of
2010 will be on January 25, under Canadian Chairmanship. End
summary.


2. (SBU) The OSCC held its final meeting of 2009 on December
14, concluding the Bulgarian (Iliev) chairmanship. The OSCC
adopted the 2010 Scale of Distribution of Expenses for the
OSCC (OSCC.DEC/9/09). The Chair took note of the draft
decision on the agenda regarding a change to the OSCC working
modalities put forward by Luxembourg (OSCC.DEL/9/09).
Luxembourg advanced this draft following the scheduling
issues experienced in October when the OSCC needed to hold
two plenaries in one month. The U.S. (Neighbour) indicated
its support in principle for the Luxembourg recommendation,
and noted that we had told the Chair prior to the meeting
that Washington is working on a comprehensive draft that
takes the Luxembourg (Pilot) proposal into account, as well
as several other OSCC "housekeeping" issues. Luxembourg
agreed to defer further discussion until the January meeting,
and welcomed the U.S. drafting efforts.

3. (SBU) The draft Decision put forward originally by
Hungary for changes to notifications formats 8 and 19, was
also deferred on the same basis (OSCC.DD/9/09). On the
margins we discussed the substance of the format change
proposals with Hungary (Szatmari),and recommended they
present the actual text of the format as it would be adopted
for review by the OSCC. Mission recommends providing
assistance with a revision to this draft accordingly.

4. (SBU) Comment: Consultations with key delegations
(Bulgaria, Hungary, Luxembourg, Germany, Russia, and Canada)
indicate support for an update to the OSCC modalities.
Mission welcomes a draft for review by delegations in advance
of the January plenary. End Comment.

5. (SBU) Russia (Federyakov) made a statement concerning
invoices it has received from Euro Control (air traffic) for
several missions (OSCC50.JOUR/160, Annex). According to OSCC
Decision on Costs, Open Skies Treaty missions are exempt from
air traffic control fees. Russia requested that the OSCC
Chair send a letter to Euro Control advising them of the
Treaty regulations. Ukraine said it has also received such
invoices, and supported Russia's request for clarification
with the proper authorities. Both asked that this subject be
added to the agenda of the next OSCC meeting. Bulgaria
swiftly passed the action to incoming OSCC Chair Canada.
REVCON Planning Group
--------------

6. (SBU) After the Plenary, the U.S. (Marvin) chaired the
second meeting of the Informal Working Group on Planning the
Review Conference (IWGPRC). As Chair of the REVCON, we are
conducting outreach activities with relevant parts of the
OSCE Secretariat to ensure that other elements dealing with
crossover security issues are aware of the benefits of Open
Skies. This approach is intended to support the OSCE concept
of comprehensive security. In that regard, the U.S. drew
attention to recent OSCE Ministerial Decisions with potential
room for dialogue on Open Skies Treaty contributions:
--MC Decision 2/09: "Further OSCE Efforts to Address
Transnational Threats and Challenges to Security and
Stability";
--MC Decision 6/09: "Strengthening Dialogue and
Cooperation on Energy Security in the OSCE Area."

7. (SBU) We also noted the upcoming February 2010 OSCE
Workshop on "Protecting Non-Nuclear Critical Energy
Infrastructures from Terrorist Attacks" organized by the
Anti-Terrorism Unit (ATU). Comment: U.S. reps met with OSCE

USOSCE 00000287 002 OF 003


ATU head Raphael Perl to discuss the potential for Open Skies
imagery to serve as a tool in evaluating protection of
critical infrastructure. The ATU is considering including an
Open Skies side-event for the workshop, or as a briefing to
the OSCE Permanent Council Security Committee.

8. (SBU) With regard to Open Skies supporting security issues
beyond arms control, Turkey said it wants to make sure such
work does not take away from the Treaty's original focus,
does not incur additional costs, and is voluntary in nature.
Turkey suggested that it might be useful to have a working
group formed, including experts from other security areas
(e.g., infrastructure protection; climate change; energy),to
discuss how these functions could be better incorporated into
Open Skies missions. Turkey offered its aircraft for lease
for non-Treaty flights focused on other security issues.

9. (SBU) The Czech Republic offered potential topics for
REVCON discussion, including: creating a transition plan for
the replacement of optical sensors with digital sensors by
all States Parties; enlarging the number of States Parties to
the Treaty; creating a system for a joint fleet of aircraft
for use by multiple parties; forming partnerships with other
global security organizations where Open Skies can add value;
and finding ways for broader sharing of Open Skies imagery
data. (Note: US Chair of the IWGS suggests that the Czech
recommendation to replace all film systems with digital
system be made a REVCON goal with a target date of 2020.
Technology is moving quickly in this direction. We can
achieve significant cost savings by retiring all film cameras
and the associated chemical film processing equipment across
the entire treaty.)

10. (SBU) Russia (Federyakov) noted that the Treaty has
clearly not reached its potential yet. We need more
discussions to determine how the Treaty can be used for other
security purposes, either on a national basis or in
cooperation with other international organizations. The
question of payment for flights to cover other security
issues should also be addressed. The first step could be to
better disseminate information concerning the Treaty to other
security-related sectors. We need to have a dialogue with
such organizations to see if there is room for cooperation,
and then figure out how to put into action.

11. (SBU) Sweden (Byren) pointed out that there are many
things we can do with Open Skies Treaty platforms without
challenging the purpose of the Treaty. The most urgent issue
is planning a transition to digital sensors, and to ensure
they are deployed in the future. We should keep the core
mission of the Treaty, and keep it simple regarding other
areas.

12. (SBU) Luxembourg (Pilot) noted that it is increasingly
difficult for Ministries of Defense to fund platforms for
Open Skies flights, and perhaps they need to look for
cooperation with other Ministries that are interested in
other security issues. Burden-sharing of the Treaty
platforms to cover multiple issues should be examined by
national authorities.

13. (SBU) U.S. (Neighbour) supported the suggestions made,
and confirmed that maximizing resources by reaching out to
other ministries or organizations may provide opportunities
for future funding, which in turn would allow the Treaty to
continue in the future. The U.S. requested that all
delegations continue to provide input for REVCON agenda and
Final Document. The IWGPRC will meet again after the January
or February OSCC meeting.

14. (SBU) In preparation for the REVCON, the U.S. also
organized a separate meeting to brief Allied visiting Heads
of Verification (HOV) reps on the imagery results of Open
Skies. The briefing emphasized the importance of Open Skies
imagery to the U.S., and stressed the need for transition to
digital sensors. In a number of sidebars, it was clear that
HOV reps grasped the importance of transition to digital
sensors but have doubts about funding constraints. Many HOV
reps said it is also difficult to obtain policy guidance from
their MFA counterparts. We urged HOV reps to coordinate with
the MFA in providing input for the REVCON. Comment: Many
delegates welcomed additional coordination on a bilateral or
small group basis as we advance toward the REVCON. End

USOSCE 00000287 003 OF 003


comment.
IWGS Moves Forward on Digital Decisions
--------------

15. (SBU) From 7-12 December, the Informal Working Group on
Sensors (IWGS) met to discuss the final outstanding points on
the Revision One to Decision 14 for digital sensors
(OSCC.SEN/6/09). Two main issues were resolved: a visual
analysis reading rule was chosen, and the the
pre-certification data requirement (number of data points)
was agreed. There is one key issue remaining regarding the
type and design of the resolution target. In order to move
forward, delegates discussed the merit of reaching agreement
on the use of just one type of target. Currently the Treaty
requires a minimum of two-bars. The target design is
important for proper determination of resolution. In
addition, several states parties have cost concerns, and
favor the use of a common target for use by all States for
pre-certification data collection and certification events. A
common target (and potential one or two common target
locations) would provide the most reliable, consistent, and
cost-effective results for all Parties.

16. (SBU) The U.S. Chair (Simmons) consulted with Germany
about hosting a small test event in January to assist in
resolving the target-related questions. The Netherlands, and
other POD group members, primarily have two-bar targets, and
expressed concerns about funding required to build new
targets. The Chair will be consulting with several states in
advance of the next meeting to facilitate Allied
coordination. In addition, the U.S. provided test results
from flights done in November for all delegates to review
prior to the next meeting.

17. (SBU) The IWGS will meet again the week of February 15,
and expects to finish working on the draft for digital
sensors. It will also consider a companion draft decision
for digital sensor data processing. In addition, OSCC
Decision 17 on the format for digital exchange will expire at
this month. U.S. reps are preparing to review and update
this text as well. Lastly, Notification Format 4 was
reviewed in conjunction with the Decision 14 text, and a
draft is ready for further review.

18. (SBU) Mission understands that if the February IWGS
meeting is successful, the digital sensor decisions may be
forwarded to the OSCC for adoption in March. Meeting this
goal would greatly serve our policy interests in preparing
for the REVCON.
German Aircraft Plans
--------------

19. (SBU) On the margins of several meetings, U.S. reps
talked to a variety of German counterparts about its plans
for fielding an aircraft in the future. Germany had not
received any firm commitment from other Open Skies States to
participate. The cost estimates without partners made the
proposal unaffordable for Germany. In responding to the
German offer to share a leased option with a commercial
company, at least two states had to decline due to
procurement regulations. Also, the new German Secretary of
the Air Force has requested a comprehensive review of
aircraft plans. German HOV General Mertens said there is a
possibility to use some Airbus VIP jets. Germany will advise
when it has a revised proposal for review.
FULLER