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Cablegate: Request for Guidance - Next Steps in Vienna On

VZCZCXRO9867
PP RUEHAST RUEHFL RUEHLA RUEHMRE RUEHPOD RUEHROV RUEHSK RUEHSR
DE RUEHVEN #0318/01 3531549
ZNR UUUUU ZZH
P 181549Z DEC 08
FM USMISSION USOSCE
TO RUEHC/SECSTATE WASHDC PRIORITY 6140
INFO RUCNOSC/ORG FOR SECURITY CO OP IN EUR COLLECTIVE
RHEHNSC/NSC WASHDC
RUCNDT/USMISSION USUN NEW YORK 0661
RUEHUNV/USMISSION UNVIE VIENNA 1216
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 1156

UNCLAS SECTION 01 OF 04 USOSCE 000318

SENSITIVE
SIPDIS

STATE FOR VCI/CCA, VCI/NRRC, EUR/RPM, EUR/PRA, EUR/CARC,
SCA/CEN, SCA/RA, PM/WRA, ISN/CPI, IO/UNP
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 OSCE RS XG
SUBJECT: REQUEST FOR GUIDANCE - NEXT STEPS IN VIENNA ON
UNSCR 1540

REF: A. STATE 104535
B. USOSCE 293

1. (SBU) GUIDANCE REQUEST: Mission requests Washington
approval to circulate the revised Food-for-Thought paper in
para 4. The revision reflects USDEL discussions per earlier
guidance (ref A) and the visit of the Chairman of the 1540
Committee to the OSCE (ref B). See also para 3 on concerns
raised by Moscow representative who discussed broader UNSCR
1540 issues with ISN/CPI Director Tony Foley, U.S. 1540
Coordinator Tom Wuchte, and UNVIE Senior Political Officer
Stefanie Amadeo. Washington guidance is welcome before
beginning of 2009 winter session in mid-January.

Background
----------

2. (SBU) This revised FFT reflects bilateral consultations
with OSCE delegations from UK and France, as well as the
incoming Chairman-in-Office (CiO), Greece. Greece deferred
to others, but offered to support as needed once the UK and
French delegations determined how to incorporate this
suggested approach into the 2009 Forum for Security
Cooperation (FSC) chairmanships that include France, Georgia,
and the UK. All three delegations, as well as Russia (see
para 5 below) need further details on next steps and want to
see a concrete paper.

3. (SBU) The text below reflects these discussions and
clarifies further that the recommended approach would (a)
complement the 1540 Committee and be consistent with its
mandate, but (b) not determine where the locus of activity
should occur, i.e., the Permanent Council's Security
Committee or the FSC. NOTE: It was clear from these
consultations that the U.S. should strive for co-sponsorship
by, at minimum, the UK and France who as P3 Security Council
members agree on this regional approach. END NOTE.

Food-for-Thought Text
---------------------

4. (SBU) Begin text:

Draft Cover Note from U.S. delegation ) for introduction at
the OSCE Permanent Council Security Committee and Forum for
Security Cooperation:

The UNSCR 1540 Committee's report outlining efforts since
2006 was completed in July 2008 and notes that OSCE efforts
to complement UN activities in this field are welcome and
that institutional relationships are important. To further
promote implementation of UNSCR 1540 by OSCE participating
States, the co-sponsors recommend that the OSCE consider
broadening responsibility for the cross-dimensional aspects
to include the Permanent Council's Security Committee, in
addition to the Forum for Security Cooperation (FSC). Both
the FSC and the Security Committee offer a broader base for a
cross-dimensional strategy, including the OSCE's Action
against Terrorism Unit (ATU) and Borders Group, to further
the 1540 Committee's nonproliferation agenda as part of the
overall United Nations Counter-Terrorism Strategy.

In addition, this paper urges both groups to make 2009 a year

USOSCE 00000318 002 OF 004


where the nexus between WMD proliferation and terrorism is
discussed with the same frequency and detail as issues such
as small arms and light weapons. This approach would allow
the OSCE to continue serving as a "regional organization"
leader and model for other international organizations.

The co-sponsors request that the attached document "OSCE
UNSCR 1540 Strategy Paper" be added to the agenda of the next
joint FSC/PC meeting. The paper would serve as the basis for
discussion on next steps within the OSCE. The paper offers
an outline for a comprehensive regional approach designed to
increase cooperation between the Security Committee and FSC.
This approach is consistent with the OSCE Ministerial
Statements already addressing resolution 1540, as well as
ongoing efforts in the IAEA and UNODC. Delegations are
thanked in advance for their consideration of this proposal
addressing an important threat to 21 st century security.

OSCE UNSCR 1540 Strategy Paper

Vienna Intergovernmental Organizations (IGO's) should create
a geographic center of excellence by leveraging institutional
capacity already in place to support the full implementation
of United Nations Security Council Resolution 1540. The 1540
Committee (hereinafter the "Committee") has stressed the
importance of regional implementation of UNSCR 1540 (2004) in
resolutions 1673 (2006) and 1810 (2008) and welcomes the
opportunity to strengthen its dialogue with the OSCE, UNODC,
and IAEA.

It is our view that the Vienna IGO's efforts to promote
implementation of 1540 can complement and multiply overall
efforts and would include leading by example within the OSCE.
A comprehensive regional approach can increase cooperation
between the Committee, consistent with the OSCE Ministerial
Statements already addressing resolution 1540, the
Committee's letter dated December 17, 2007 to the OSCE, and
the recent briefing at the OSCE by the Committee Chairman on
December 10.

In accordance with the new mandate under Security Council
resolution 1810 (2008), activities to facilitate the delivery
to states of needed technical assistance will be a high
priority for the Committee. The OSCE in cooperation with
IAEA and UNODC can help improve states' capacity to implement
1540 through regular consultations and outreach
In 2009, the OSCE participating States (pS) have three
immediate priorities that will further regional
implementation:

I. The Committee agreed in paragraph 4 of resolution 1810,
to "encourage all States to prepare on a voluntary basis
summary implementation plans, with the assistance of the 1540
Committee as appropriate, mapping out their priorities and
plans for implementing the key provisions of resolution 1540
(2004), and to submit those plans to the 1540 Committee."
The OSCE Ministerial Statements provide support for stronger
coordination and follow up through a comprehensive
information exchange in cooperation with other Vienna IGO's
as a next step. At 56, the effect of regionally exchanging
data on all the reports and matrices, discussing it among the
pS and Partners for Cooperation, and forwarding it as the
OSCE contribution will greatly complement the efforts of the

USOSCE 00000318 003 OF 004


Committee in New York.

II. Consistent with paragraph 5 of resolution 1810, which
"urges States ... to inform the Committee as appropriate of
areas in which they are able to provide assistance," the
Committee would welcome any new information OSCE pS, as well
as the Partners for Cooperation, could provide on their
technical assistance programs. The Committee could post such
information in the technical assistance portion of its
website (http://www.un.org/sc/1540/). The OSCE could also
draw the attention of pS to the Committee's technical
assistance template, also posted on the Committee's website.

III. Consistent with paragraph 2 of resolution 1810, which
calls on States to submit reports of implementation efforts,
the Committee requests the OSCE continue to promote pS
reporting on implementation, and help promote their
implementation of resolution 1540. The OSCE could consider
shifting to a broader, Vienna-based cross-dimensional
strategy centered on either the Security Committee, which
provides oversight to the Action against Terrorism Unit (ATU)
and Borders Group that complement the 1540 Committee's
nonproliferation agenda as part of the United Nations
Counter-Terrorism Strategy, or in the FSC with increased
dialogue with the Security Committee. That strategy could
include, inter alia:

-- OSCE Field Missions that could assist pS in a number of
practical programmatic areas.

-- OSCE cooperation with partner organizations, such as IAEA,
UNDOC, NATO, OPCW, INTERPOL, etc. to host more frequent UNSCR
1540 dialogue.

-- Hosting regional 1540 implementation technical assistance
and training workshops at the OSCE Academy in Central Asia.

End text.

A Moscow View
-------------

5. (SBU) On the margins, Wuchte and Foley, accompanied by
UNVIE political officer met with Moscow Senior Counselor
Deyneko who has been working UNSCR 1540 issues and attended
the FSC meeting December 10 (see Ref B). Wuchte and Foley
welcomed the participation of the expert from Russia's
capital, although he did not intervene at the plenary or at
the Finnish-hosted small group discussion with the 1540
Committee Chair immediately after.

6. (SBU) Deyneko expressed his skepticism that regional
organizations could provide any real value-added to the work
of the 1540 Committee. He acknowledged that although he was
not familiar with OSCE competencies, he remained concerned
that the approach recommended by the Committee led to
"unnecessary layers" and "diminishment" of the role of the
Committee. Wuchte and Foley pointed out that this was wholly
consistent with the operative paragraphs in UNSCR 1810, which
also extended the Committee until 2011. Deyneko said he was
aware of this but Moscow was still not happy with the outcome
of the renewal resolution or the Committee's report.


USOSCE 00000318 004 OF 004


7. (SBU) COMMENT: Mission encourages Washington and New York
to engage quickly in aligning Moscow's co-sponsorship of
UNSCR 1810 with a corresponding commitment to support the
regional and intergovernmental strategy well under way as
proposed in para 2 above. END COMMENT.
FINLEY

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