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

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SIPDIS
STATE FOR ISN/MNSA (WMENOLD) AND WHA/CAN
GENEVA FOR CD DELEGATION
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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