CFE/JCG: MARCH 31: MORE PILING ON CRITICAL OF

UNCLAS SECTION 01 OF 03 USOSCE 000080

SENSITIVE
SIPDIS

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

E.O. 12958: N/A
TAGS: KCFE OSCE PARM PREL
SUBJECT: CFE/JCG: MARCH 31: MORE PILING ON CRITICAL OF
RUSSIA; GERMANY'S RICHTER'S PERSONAL OBSERVATIONS


1. (SBU) Summary: At the March 31 JCG plenary Germany
(supported by 9 delegations, including the U.S.) criticized
Russia's latest act of noncompliance with the CFE Treaty.
There was agreement to cancel the April 28 JCG plenary due to
the HLTF that day. Germany's Colonel Wolfgang Richter, whose
tour has ended in Vienna, offered personal observations on
conventional arms control. The United States has assumed the
Chairmanship of the JCG and will remain Chair through the JCG
on 12 May. Canada, as Chair of the TOI Working Group,
announced that it had circulated the draft 2009 Consolidated
Matrix, which contains national CFE data, for review and
comment by States Parties. Washington, see para 4. End
Summary.

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Russia Criticized for Preventing Verification Measures
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2. (SBU) The Joint Consultative Group (JCG) met on March 31
under the Chairmanship of Germany (Richter). Germany
(Schweitzer) announced its disappointment (JCG.JOUR/692/Annex
1) that on March 26 Russia refused a German request for a CFE
inspection that would have begun today in Moscow. This
rejection, Schweitzer noted, continues Russia's practice of
"preventing other States Parties from carrying out
verification measures in accordance with the Treaty."
Schweitzer stressed that Germany continues to implement the
CFE Treaty despite Russia's unilateral suspension of the
Treaty. Schweitzer underscored that if the principles of the
CFE regime were to be upheld, "unfettered cooperation" would
be required by all States Parties. He noted that the
parallel actions package "appropriately responds to the
concerns of the Russian Federation," but noted that "the
ongoing dialogue needs to be assisted." Recalling Germany's
"specific constructive offer" that was tabled by Foreign
Minister Steinmeier at Helsinki in December, Schweitzer said
that Germany will shortly invite high-level reps to the June
10 seminar in Berlin. Germany's hope is that this initiative
will breathe new life into disarmament and arms control in
Europe.


3. (SBU) The Netherlands, the UK, Romania, Portugal, the
U.S., France, Italy, Turkey, and the Czech Republic supported
the German statement calling attention to Russia's recent act
of noncompliance. The U.S. (Neighbour) pointed out the
importance for all States Parties to observe all rights and
obligations afforded them that arise out of the CFE Treaty
(JCG.JOUR/692/Annex 2). This includes the transmission of
requests for inspection of Russian forces and the opportunity
of raising within the JCG framework questions related to
compliance with, or possible circumvention of, provisions of
the CFE Treaty.

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Canada Circulates Consolidated Matrix for Review
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4. (SBU) Canada (Linteau) in its role as Chair of the TOI
Working Group and Sub-Working on POET has circulated a draft
Consolidated Matrix for 2009 (JCG.TOI/1/09) to all States
Parties for their review. Linteau requested that all States
Parties review and confirm their national data as it appears
in the draft matrix and forward any comments to Canada or
Germany before April 30. Washington, please advise USdel how
to respond to the TOI Working Group Chair.

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April 28 JCG Plenary Cancelled
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5. (SBU) The Chair (Richter) had noted at the March 24 JCG
that many NATO delegations were planning to be in Brussels on
April 28 for the next HLTF meeting. Richter observed that for
this reason, absent any objection, the April 28 JCG plenary
would be cancelled. There were no objections.

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Col. Richter (Germany) Personal Views on Arms Control
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6. (SBU) Colonel Wolfgang Richter offered personal
observations on conventional arms control, stressing they
were not reflective of Germany's national position. Richter
recalled that the JCG as the only permanent forum of the 30
States Parties legally enshrined in the Treaty was meant to
contribute to the common security in Europe on the basis of
mutual respect, understanding, cooperation, and trust. He
noted personal disappointment that the frank and open
dialogue characteristic of the JCG in the '90s and as recent
as last year during structured and focused dialogue had
vanished. He noted that the "frequently used term 'the other
side'" showed a return to the bloc positions which have
turned to stone.


7. (SBU) Richter claimed that the deplorable situation of
the JCG reflects the overall state of affairs of the current
security dialogue in Europe. He was convinced of the
necessity of an arms control regime which entails numerical
and geographical limitations of major weapons systems, but
believed that such a regime would keep its relevance only if
through constant adaptation to the changing security
environment. Richter's "short historical recollection" was
meant to show the "absurd situation into which we have
maneuvered ourselves." He listed some contradictions which
recently have become evident:

-- on high levels we call for dialogue while we reject
dialogue in relevant bodies;

-- on high levels we call for flexibility, but are unable to
find compromises on the ground and, instead, formulate
so-called "rdlines" which we deem not negotiable;

-- we call for unconditional respect for principles of
territorial intgrity, non-use of force and peaceful
resolution of conflicts, accuse each other of violating them,
while at the same time taking unilateral decisions to define
exceptions to these rules;

-- we accuse each other of undermining the CFE regime while
either suspending its operations or blocking the entry into
force of its adaptation agreement, something we agreed was
needed 10 years ago;

-- all Parties reject bloc-to-bloc approaches buta group of
States speaks with one bloc-voice while one State demands a
bloc-ceiling for this group; and,

-- a group of States rejects the idea of bloc-based balance
of forces, but in political reality it is unable to overcome
the bloc-approach, which is only attainable by bringing a/CFE
into force; instead this group of States calls on one State
to return to old CFE with its bloc-based balance of forces.


8. (SBU) Richter said that discussion was needed on how the
Treat should reflect changes in the political landscape
since Europe is a different place than it was 10 years ago.
He cautioned that using arms control agreements as a leverage
to enforce political solutions to unresolved conflicts can
undermine their survival. He noted that what is called
"sub-regional" conflict by some might be the very question of
survival for others. For this reason arms control measures
must contribute to early warning and conflict prevention. He
suggested that flank limitations be reconsidered in lieu of
new approaches that would contribute to sub-regional
stability through mutual self-restriction of military
equipment in the vicinity of borderlines.


9. (SBU) Richter closed on a positive note. Common
interest to preserve cooperative security and stability in

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Europe should allow us to overcome the current impasse by not
striving for maximalist positions: "Like our predecessors in
the late '80s we should go back to the old wisdom that
politics is the art of the possible and that the best is the
enemy of the good." Compromises are necessary: "It lies in
the nature of compromises not to make one party particularly
happy, but to distribute the unhappiness equally among all
participants." Raising his eyes in the direction of the
U.S., Richter noted that a return to a sober approach could
be heard loud and clear from across the Atlantic. He was
optimistic that a unique historical chance to move forward
lied in the upcoming months.

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JCG-T Considers Monthly Chairs
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10. (SBU) During the JCG-T plus 4, which met prior to the
plenary, Germany (Richter) proposed that JCG-T chairs rotate
monthly as does the NATO Caucus now instead of every week.
Luxembourg (Pilot) and the U.S. (Neighbour) offered
provisional support and suggested delegations consider pros
and cons of this approach.

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Next JCG Chaired by U.S.
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11. (U) The next JCG Plenary will be on May 5 under the
Chairmanship of the U.S. The next JCG-T will be on May 4,
chaired by Canada.
SCOTT