Canadian Thoughts on FMCT and Part 1 of the Conference on

C O N F I D E N T I A L OTTAWA 000069 NOFORN SIPDIS STATE FOR ISN/MNSA (WMENOLD) AND WHA/CAN GENEVA FOR CD DELEGATION AMEMBASSY OTTAWA PASS TO AMCONSUL QUEBEC AMEMBASSY OTTAWA PASS TO APP WINNIPEG E.O. 12958: DECL: 2020/02/19 TAGS: PARM MNUC KNNP PREL CA SUBJECT: Canadian Thoughts on FMCT and Part 1 of the Conference on Disarmament REF: STATE 13698 CLASSIFIED BY: Scott Bellard, Minister Counselor, Department of State, Political Section; REASON: 1.4(B),(D) ¶1. (C) Summary. Canada continues to engage Pakistan bilaterally in an effort to persuade Islamabad to join consensus within the CD and allow negotiations to begin on a Fissile Material Cut-Off Treaty. Informal discussions under the auspices of a reputable NGO might offer a venue for more open exchanges. The UN disarmament system is producing few concrete results and its track record is not good. U.S. leadership in convening a 4th UN Special Session on Disarmament might offer a way to address systemic blockages. End summary. Bilateral Efforts with Pakistan ¶2. (C/NF) Pol/miloff discussed reftel points on February 18 with Chris Grout, Policy Officer in the Nonproliferation and Nuclear Disarmament Division of the Department of Foreign Affairs and International Trade (DFAIT). Grout said that Canada shared U.S. frustration at being unable to begin FMCT negotiations, and that Canada has been working bilaterally with Pakistan for the last two years in an effort to find a solution. Grout asked if our high-level engagement with Islamabad had produced any insights into "what might make it work" for Pakistan. Urging Pakistan to Join CD Consensus ¶3. (C/NF) In a separate February 17 meeting, Canadian Assistant Deputy Minister Ken Sunquist raised the FMCT with a visiting Pakistani delegation, according to Grout. While the Pakistani trade delegation was ill-equipped to offer substantive responses, ADM Sunquist pursued long-standing Canadian themes by urging Islamabad to join consensus at the CD and to take a leadership role in negotiating a Fissile Material Cut-off Treaty. Canada continues to consult with Pakistan in Islamabad and Geneva, although Grout acknowledged that the "discussions have not produced much." Grout emphasized that Pakistan continued to insist that the scope of any FMCT should encompass existing stockpiles. In Grout's view, acceding to such a demand by Pakistan would risk "losing others" within the CD who oppose such an approach. He recognized that persuading Pakistan to alter its position would be "difficult," but was heartened that the Pakistanis have not ruled it out as "impossible." Use UNGA or NGOs to Facilitate Discussions? ¶4. (C/NF) In considering other possible avenues for progress, Grout recalled 2005, when "frustration was redlining." At that time, a number of CD members put forward a proposal to move consideration of an FMCT out of the CD and into the UN General Assembly. Grout acknowledged that the proposal was not viewed favorably by the U.S. at the time. He pointed out that former Australian Foreign Minister Gareth Evans had mentioned the UNGA as a potential venue in a recent address to the CD. Grout noted that Canada had not developed a position with respect to the UNGA idea, and is "not wedded to any specific course of action." Canada will continue to consult within the CD and will encourage "intensive meetings" on specific subject areas. Grout wondered whether the International Panel on Fissile Materials (IPFM) might be in a position to facilitate such discussions. In Grout's view, a reputable and independent NGO such as IPFM might be able to make progress by "taking it out of the hands of States." Fixing the Broken UN System ¶5. (C/NF) Regarding the longer-term problems confronting the CD, Grout commented that the requirement for consensus produced "procedural headaches" and limited its effectiveness. He characterized the UN disarmament system as "not working," citing the very few concrete results to emerge from the CD, the Disarmament Committee, or the 1st Committee. He concluded that "the track record was not good" for the UN system, pointing out that progress on an Arms Trade Treaty and Cluster Munitions ban had been achieved on an ad hoc basis. Grout noted that the last UN Special Session on Disarmament was in 1988 and he wondered whether the U.S. administration might be able to provide the necessary leadership for a 4th UN Special Session on Disarmament. Only such a session could address the many procedural rules that limit the CD's effectiveness, he commented. He added that applying the consensus rule only to sovereign security and defense matters would ease difficulties in gaining approval on procedural issues. Grout promised to consult with the Canadian CD delegation and to share any additional ideas on an effective way forward. JACOBSON