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Cablegate: Osce/Fsc November 5: Plenary Discusses Unpoa;

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DE RUEHVEN #0270/01 3121623
ZNR UUUUU ZZH
P 071623Z NOV 08 DUE TO NUMEROUS SVCS H/W ZDK
FM USMISSION USOSCE
TO RUEHC/SECSTATE WASHDC PRIORITY 6025
RUCNOSC/OSCE COLLECTIVE
INFO RUCNOSC/ORG FOR SECURITY CO OP IN EUR COLLECTIVE
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RUEHUNV/USMISSION UNVIE VIENNA 1181
RHMFISS/CDR USEUCOM VAIHINGEN GE
RHMFISS/CDRUSAREUR HEIDELBERG GE
RUEAIIA/CIA WASHDC
RHDLCNE/CINCUSNAVEUR LONDON UK
RUEKJCS/DIA WASHDC
RUEASWA/DTRA ALEX WASHINGTON DC
RUESDT/DTRA-OSES DARMSTADT GE
RHMFIUU/HQ USCENTCOM MACDILL AFB FL
RUEKJCS/JCS WASHDC
RUEKJCS/JOINT STAFF WASHDC
RUEKJCS/SECDEF WASHDC
RUEHGV/USMISSION GENEVA 1121

UNCLAS SECTION 01 OF 06 USOSCE 000270

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, VCI/NRRC, EUR/RPM, EUR/PRA, EUR/CARC,
SCA/CEN, SCA/RA, PM/WRA
JCS FOR J-5
OSD FOR ISA (PERENYI)
NSC FOR HAYES
USUN FOR LEGAL, POL
EUCOM FOR J-5
CENTCOM FOR J-5
UNVIE FOR AC
GENEVA FOR CD

E.O. 12958: N/A
TAGS: PARM PREL KCFE OSCE RS XG
SUBJECT: OSCE/FSC NOVEMBER 5: PLENARY DISCUSSES UNPOA;
CODE OF CONDUCT QUESTIONNAIRE NEARING COMPLETION

REF: A. OCT 23 WRIGHT-MITCHELL EMAIL (FSC.DD/10/08/REV.1)
B. NOV 4 MEYER-SILBERBERG EMAIL (BMS ON UNPOA AT
FSC 5 NOVEMBER)
C. OCT 31 WRIGHT-SILBERBERG EMAIL (U.S. PROPOSED
TEXT ON GEORGIA FOR CHAIR'S PROGRESS
REPORT)

USOSCE 00000270 001.2 OF 006


1. (SBU) Summary: During the November 5 FSC Plenary the
Republic of Macedonia criticized Greece for a 28 October
military parade in Thessaloniki and said it had evidence that
slogans against the Republic of Macedonia were chanted by
Greek armed forces. Decision No. 11/08 introducing best
practices to prevent destabilizing transfers of small arms
and light weapons through air transport and on an associated
questionnaire was adopted. The rest of the Plenary focused
on the UN Program of Action (UNPOA) on the Illicit Trade in
Small Arms and Light Weapons (SALW) and the Third Biennial
Meeting of States (BMS3) held in July 2008. Ambassador
Dalius Cekuolis, Chair of the BMS3, spoke about the role
regional organizations, specifically the OSCE, could play in
contributing to implementation of the UNPOA and the
recommendations that came out of BMS3.

2. (SBU) In the Working Groups, the Chair requested that
delegates seek final guidance from capitals on the
Ministerial Council draft decision on SALW and SCA and the
draft decision on end user certificates. There was consensus
to endorse the draft decision on the overview of disposal
aspects of liquid rocket fuel (melange) in the OSCE area at
the next plenary. The Estonian delegation said it would
circulate for comment a draft agenda for the March 2009 cyber
security workshop. There was discussion on the Chair's four
draft progress reports. There was some discussion on the
Ministerial Council decision on issues relevant to the FSC,
but Russia did not have guidance from Moscow. Discussion on
the draft decision for a single deadline for submission of
information on defense planning will continue in the next
meeting of the Working Group. There was intense discussion
over the update of the questionnaire on the Code of Conduct.
Many delegations expressed general sentiment that all
delegations had made wins and losses and the time has come to
push forward the draft decision for an update on the Code's
questionnaire. Washington, please see paragraphs 9, 12, 13,
and 18. Attendance in the Working Groups was less than usual
as many NATO delegations had sent reps to the HLTF off-site
in Romania. End Summary.

The Republic of Macedonia Condemns Greek Military Parade
- - - - - - - - - - - - - - - - - - - - - - - - - - - - -

3. (SBU) The Republic of Macedonia (Zekolli) condemned a
military parade in Thessalonki on 28 October and said it had
audio and visual evidence that members of the Greek armed
forces chanted provocative slogans that 'contained hate,
xenophobia, and intolerance.' Ambassador Zekolli said that
such behavior contradicted obligations supported by the Code
of Conduct on Politico-Military Aspects of Security. Greece
(Sourani) responded that she could not recall 'a previous
case in any international forum where a state had been
criticized for conducting a military parade on its National
Day.' Sourani said that slogans in parades are expressions
of the sensitivities and sentiments of the local population.

USOSCE 00000270 002.2 OF 006


She claimed that the slogans heard in the October 28 parade
did not contain any 'irredentist or aggressive references and
were a testament to the fact that the people of Thessaloniki
consider the name of Macedonia as an integral part of their
Greek identity.'

Role the OSCE Might Play to Further Work on UNPOA
- - - - - - - - - - - - - - - - - - - - - - - - -

4. (SBU) Ambassador Dalius Cekuolis, Chair of the Third
Biennial Meeting of States (BMS3) on the UN Small Arms
Program of Action on the Illicit Trade in Small Arms and
Light Weapons (UNPOA), addressed the FSC under the Security
Dialogue. He focused on how regional organizations, such as
the OSCE, could help 'keep alive' the BMS3 outcome document.
He said regional organizations could help to build national
capacity and political will for furthering the work on the
UNPOA.

5. (SBU) The United Kingdom, Germany, France, Turkey,
Sweden, Belarus, and Italy supported the role of the OSCE in
contributing to the efforts of the BMS3. The United States
spoke in favor of regional meetings to further UNPOA
implementation. The UK (Gare) supported including the OSCE
where a regional approach can be effective and welcomed a
comprehensive OSCE program where further projects could
happen. Germany (Horsten) said it was important to implement
BMS3 recommendations and suggested holding an FSC workshop to
look at securing stockpiles. Horsten also suggested that the
OSCE could 'bridge the gap' by convening meetings and holding
workshops before the next BMS is held. Germany (now with
Schweizer in the chair) said the focus should be on
'normative aspects.' He looked forward to a review of the
work which could result in a 'major meeting at the end of
2009.'

6. (SBU) The U.S. (Silberberg), drawing from talking points
and notes prepared by PM and ISN per ref email A, stated that
the U.S. remains fully committed to UNPOA implementation,
continues to uphold our obligations under this agreement, and
encourages others to do the same. Silberberg noted that in
order for States to be successful in UNPOA implementation
they must undertake practical measures, including destruction
of surplus weapons, development and enforcement of arms
export and import control policies, and better stockpiling
management; this is most effectively done at national,
sub-regional, and regional levels and does not require
additional global meetings.

7. (SBU) Separarte from the discussion on the UNPOA, the
decision introducing best practices to prevent destabilizing
transfers of small arms and light weapons through air
transport and on an associated questionnaire was adopted
(FSC.DEC/11/08). The U.S. delivered an interpretive
statement, per ref email B, which has been attached to the
Decision and the FSC Journal of the day. The text of the
U.S. statement follows:

'The U.S. welcomes FSC.DEC/11/08 and applauds the extent of
Wassanaar's valuable work on best practices to prevent
destabilizing transfers of small arms and light weapons by
air for implementation as standard elements in the FSC.

USOSCE 00000270 003.2 OF 006

The U.S. would like to underscore the value, when employing
such elements, of leveraging existing export regulations that
focus on the exporter's responsibility to ensure compliance
by its agents, employees, and others who are party to the
authorized export. Integral to that responsibility is the
exporter's awareness of the means of transportation for the
authorized export, to ensure it reaches the authorized end
user for authorized end use.'

UPDATE ON SALW PROJECTS
- - - - - - - - - - - -

8. (SBU) The Coordinator for SALW projects (UK-Hartnell)
provided an update on the status of SALW projects.
Tajikistan second phase is expected to be completed in early
2009. There will be a donors' visit to Belarus from 16-21
November 2008. The Kyrgyz Republic has requested assistance
in enhancing stockpile management and security of storage
sites containing SALW and conventional ammunition and in this
regard has replied to the OSCE Questionnaires on SALW and
conventional ammunition. An experts' assessment visit to
Kyrgyzstan is scheduled for 11-13 November 2008. Hartnell
recalled the request by Cyprus during the Joint FSC-PC on 29
October and announced that Cyprus has distributed answers to
the OSCE Questionnaire (FSC.EMI/419/08). Cyprus' request
seeks expert assistance to develop a program, for which
Cyprus will assume the costs, for the destruction of 324
MANPADS. The Coordinator mentioned that one participating
State has indicated willingness to provide assistance, and
stands ready to help any other participating States which
respond to this request.

Ministerial Council Decision on SALW and SCA
- - - - - - - - - - - - - - - - - - - - - - -

9. (SBU) In Working Group B, chaired by Finland's Tuomas
Riihimaki, there was agreement to accept the U.S. proposed
additional text 'within existing resources and/or
extrabudgetary contributions' in the Ministerial Council
decision on small arms and light weapons and stockpiles of
conventional ammunition (MC.DD/7/08/Rev.2). Armenia
suggested the U.S. phrase be placed in the preamble, which
would apply to all operative paragraphs instead of repeating
the language after each mention of OSCE contributions in the
text. Azerbaijan did not have final instructions from
capital. Revision 3 of this draft decision reflects the
addition of the U.S. text in the preamble and the adoption of
the SALW by air decision (FSC.DEC/11/08). USDEL believes that
the current text satisfies U.S. criteria and will join
consensus on November 12, unless otherwise directed.

Ministerial Council Decision on FSC Issues
- - - - - - - - - - - - - - - - - - - - - -

10. (SBU) On the MC draft decision on issues relevant to
the FSC (MC.DD/6/08/Rev.2), Georgia (Giorgadze) said it did
not have instructions from capital. It is not clear whether
Georgia will ultimately accept the language that refers to
the FSC's Security Dialogue as 'addressing the armed conflict
in August 2008 as well as other conflict situations and
security problems in the OSCE area' or will insist on more

USOSCE 00000270 004.2 OF 006


specific language. Germany (Schweizer) suggested a minor
edit correcting its proposed compromise language in operative
paragraph three. The U.S. (Wright) said it could accept the
German compromise language. Russia (Ulyanov) said it prefers
the original text which is 'more precise and clear,' but that
it did not have official instructions from Moscow. The Chair
thanked the U.S. for its acceptance of the compromise
language. Germany (Schweizer) also suggested that 'in its
mandate' be added to operative paragraph two to make clear
that the Security Dialogue continue to address issues within
the FSC's mandate. Switzerland (Von Arx) suggested that the
next revision contain only options one and three (i.e.,
delete option two, the U.S. proposed text) in operative
paragraph three so delegations could focus on the two options
that have support. Revision 3 distributed on November 6
reflects these changes; discussion will continue in Working
Group B on November 12.

Single Deadline for Submitting Defense Planning Information
- - - - - - - - - - - - - - - - - - - - - - - - - - - - - -

11. (SBU) In Working Group A, also chaired by Riihimaki,
Norway, Sweden, Germany, Switzerland, Austria, and Belarus
said they support Russia's VD99 proposal for a 30 September
deadline to submit defense planning information
(FSC.DEL/494/07/Rev.3/Corr.1). The UK (Hartnell) reported
that although the U.K. budget runs from April to April it
must go to Parliament for approval, which means it 'lands in
the hands of politicians' and, like the U.S. budget, is
notorious for not being approved on time. Discussion will
continue in the Working Group on November 12.

End User Certificates
- - - - - - - - - - -

12. (SBU) The Chair (Riihimaki) noted that the phrase
'and/or other pertinent documents' was inserted into
operative paragraph one of the draft decision on an
information exchange with regard to sample formats of
end-user certificates and relevant verification procedures
(FSC.DD/9/08/Rev.3). Riihimaki said that this additional
language derives from the SALW document and makes reference
to additional documents that States may use for the same
purpose. The UK, U.S., Germany, and Poland supported
Revision 3 of the draft decision. USDel believes that the
current text satisfies U.S. criteria and will join consensus
on November 12, unless otherwise directed.

Liquid Rocket Fuel
- - - - - - - - - -

13. (SBU) Greece was the only delegation without final
instructions from capital on the draft decision on the
overview of disposal aspects of liquid rocket fuel in the
OSCE area (FSC.DD/13/08). This draft decision (melange) will
be adopted on November 12, pending Greece's support. USDEL
believes that the current text satisfies U.S. criteria and
will join consensus, unless otherwise directed.

Code of Conduct
- - - - - - - -


USOSCE 00000270 005.3 OF 006


14. (SBU) Latvia and the UK argued, right off the bat, that
changes they had proposed to the draft decision on an update
of the questionnaire on the Code of Conduct (FSC.DD/14/08)
had not been accepted. The Chair (Riihimaki) stressed the
need to 'finalize the process.' He acknowledged that several
States still have differing views on a number of issues
related to the questionnaire, but that everyone had to make
compromises. He urged delegations to demonstrate
'flexibility,' and strongly noted that 'we should get a
result this year' if we wanted the document to be ready for
use in April 2009 when the next set of States' replies will
be submitted.

15. (SBU) The UK (Hartnell), supported by Turkey and
Latvia, repeated that it still disapproves of question II.1.2
and thought it odd that we would ask States to comment on
'the legitimate security concerns of other States.' Russia
(Ulyanov) said that this question exists due to Russia's
insistence; in fact, Russia thinks 'it is one of the most
important items in the entire Code.' (NOTE: After the
Working Group, Hartnell approached USDel and inquired whether
we supported keeping the question in. It is unclear at this
point whether London will live with the question, or stand in
the way of the document going forward.)

16. (SBU) Latvia (Nilsons) expressed concern that paragraph
three of section one (other international commitments) still
appeared in the questionnaire. If nothing else, he suggested
the two questions become one and also recommended removal of
the phrase 'in good faith' from the end of question I.3.1.
He said that Latvia preferred paragraph three of section one
in a previous version of the questionnaire
(FSC.DEL/9/08/Rev.1 ) 11 June). He also noted that Latvia
preferred to see 'if applicable' added to the three questions
that consisted of section one in the 11 June version.

17. (SBU) Belorussian delegate Pavlov said that although
Belarus was 'skeptical' on adopting the draft decision it
would not stand in the way of continued dialogue and, he
would send the document back to capital for review. Pavlov
also said that Belarus did not like mention of the UN Charter
in the second paragraph of the preamble. He said that
perhaps the Helsinki Final Act should also be mentioned.
Germany (Schweizer) suggested language in paragraph eight of
the Code itself, which mentions the Helsinki Final Act, as a
compromise.

18. (SBU) A lengthy, intense discussion ensued wherein
Switzerland, Germany, Sweden, Italy, France, Austria,
Denmark, Spain, Ireland, and Slovenia argued for moving
forward with the document, which means no additional edits at
this point and a request that capitals conduct a careful
review of the document as it currently stands. Germany
(Schweizer) strongly argued that much of the 'balancing act'
to achieve compromises on the questionnaire had been
conducted over 'lots of hours' in informal working groups and
that some of the smaller delegations, which often cannot
attend all informal meetings, may not have witnessed the
effort put in by all. The Chair (Riihimaki) concluded the
discussion by noting 'a lot of support to go forward,' and
asked delegations to consult with capitals. USdel requests
Washington conduct a final review of the document, with a

USOSCE 00000270 006.2 OF 006


view toward its adoption in the next few weeks.

Chair's Progress Reports
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19. (SBU) The Chair (Riihimaki) gave an update on the
status of its four progress reports to the MC (MC.GAL/5/08 -
arms control agreements and CSBMs; MC.GAL/2/08 - SALW;
MC.GAL/3/08 - SCA; MC.GAL/4/08 ) Code of Conduct).
Suggestions made by delegations during the 4 November
informal meeting will be reflected in revised versions of the
reports. The Chair requested that any additional inputs be
delivered to drafters no later than 12 November to finalize
and publish the reports in time for the December 4-5
Ministerial. The U.S. proposed text on discussions on the
Georgia conflict will be added to the arms control agreements
and CSBMs report, as requested by Washington, per ref email
C. The U.S. (Wright) mentioned that we had received comments
on the SALW and SCA reports and would pass them on to the
respective drafters immediately following the Working Group.


Next Meeting
- - - - - - -

20. (U) The next FSC meeting will be on 12 November.
Working Groups A and B will meet before the Plenary so the
draft decisions noted in paras 9, 12, and 13 above can be
passed to the Plenary for adoption.
SCOTT

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