Cablegate: Approaching the Eu in Advance of the December
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DE RUEHC #7023/01 3372159
ZNR UUUUU ZZH
O R 022150Z DEC 08
FM SECSTATE WASHDC
TO EU MEMBER STATES COLLECTIVE IMMEDIATE
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RUEHAK/AMEMBASSY ANKARA 6474
RUCNDT/USMISSION USUN NEW YORK 4029
RUEHMO/AMEMBASSY MOSCOW 6383
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RUEHVB/AMEMBASSY ZAGREB 1871
RUEHBW/AMEMBASSY BELGRADE 1236
RUEHSQ/AMEMBASSY SKOPJE 6150
RUEHTI/AMEMBASSY TIRANA 2424
RUEHPOD/AMEMBASSY PODGORICA 1569
RUEHPS/AMEMBASSY PRISTINA 4982
UNCLAS SECTION 01 OF 06 STATE 127023
E.O. 12958: N/A
TAGS: PREL PGOV ETRD EUN ZL IS PK CG TU
SUBJECT: APPROACHING THE EU IN ADVANCE OF THE DECEMBER
8-9 FOREIGN MINISTERS MEETING (GAERC)
1. (U) This is an action request. See paragraph 13.
2. (SBU) Summary: EU Foreign Ministers will hold their
next General Affairs and External Relations Council
(GAERC) meeting in Brussels December 8-9. We expect the
formal agenda to include: Israeli-Palestinian peace
process, Democratic Republic of the Congo, Western
Balkans and EU enlargement, Pakistan, and WTO/Doha
Round. A background section covering some of these
issues is provided prior to a section containing talking
points. Talking Points only are to be delivered as soon
as possible at the appropriate level to EU members only.
Other posts should not/not deliver these points. Posts
are requested to include the SIPDIS caption on their
response cables and to reference this cable. End
BOSNIA AND HERZEGOVINA
3. (SBU) The November 8 Prud/Odzak Agreement between RS
Prime Minister and SNSD Party President Milorad Dodik
(Serb), SDA Party President Sulejman Tihic (Bosniak) and
HDZ Party President Dragan Covic (Croat) that lays out a
common approach to several critical issues is welcome,
but needs to be put in to concrete form to break through
the political impasse and to meet the outstanding "5+2"
closure objectives and conditions for the Office of the
High Representative (OHR). We want to be in a position
to make a decision on OHR closure at the next meeting of
the Peace Implementation Council (PIC) in March 2009,
but this will require completion of the 5+2 agenda. We
are particularly concerned about a durable solution on
Brcko District by March, as the Prud/Odzak proposal for
a "constitutional law" may not be viable. Prime
Minister Dodik's anti-State efforts continue, including
his refusal to comply with a request for information
from the State Prosecutors office and recent threats to
file suit against international community and Bosnian
officials in the context of the document request. We
also remain concerned about President Silajdzic's
radical anti-RS agenda.
EU ENLARGEMENT - STOCK TAKING AND CONCLUSIONS ON TURKEY
4.(SBU) Turkey and the European Union signed an
Association agreement in September 1964 aimed at
bringing Turkey into the customs union and eventual
membership. The United States strongly supports
Turkey's aspirations to join the EU.
5. (SBU) The GOT has struggled to implement needed
reforms. The EU has also been internally deadlocked
over Turkish accession issues by Cyprus, as well as by
objections of other members like France and Austria. In
November 2006, the European Commission ordered the
suspension of eight of the 32 chapters of the EU's
"Acquis", or body of EU laws, until Turkey meets
obligations to open ports in Turkey to Republic of
Cyprus ships and aircraft. Turkey has said it will do
so only in conjunction with the EU opening of commercial
access (i.e., direct trade) for Turkish Cypriot goods
and people. Greek and Turkish Cypriots commenced talks
in September 2008 and, if they can reach a re-
unification settlement in early 2009, Turkey's accession
progress could accelerate significantly.
6. (SBU) In the November 2008 annual accession report,
the Commission noted negotiations had "moved forward
over the reporting period." The Commission cautioned
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that progress had been limited because of the
Constitutional Court case against the governing party
and called on Turkey to "reinvigorate" the process of
political reform. The report again stressed the EU's
view of the PKK as a terrorist organization.
7. (SBU) In June 2008, the EU opened two new chapters in
its negotiations with Turkey: Chapter 6 - Company Law
and Chapter 7 - Intellectual Property Law. During an
October U.S. " EU troika meeting, the French EU
Presidency restated its commitment to keep pace on
opening two chapters each Presidency and reached
agreement with Turkey in November to open Chapter 4"
Free Movement of Capital. Since the start of EU-Turkey
negotiations in 2006, nine chapters out of 35 have been
opened and only one has been provisionally closed.
DEMOCRATIC REPUBLIC OF THE CONGO (DRC)
8. (SBU) The situation in the eastern DRC has continued
to deteriorate despite repeated calls for cease-fires
and the opening up of humanitarian zones that would
allow access to the hundreds of thousands of internally
displaced persons (IDPs) who have been fleeing the
fighting. UN Secretary-General Ban Ki-moon recently
named former Nigerian President Olusegun Obasanjo as the
UN Special Envoy for the eastern DRC. President
Obasanjo is now leading the international diplomatic
effort to bring peace to the DRC, in tandem with former
Tanzanian President Benjamin Nkapa, representing the
International Conference of the Great Lakes Region. The
UN Security Council voted on November 20 to increase by
nearly 3,000 the troop ceiling of the UN Mission in the
DRC (MONUC) to help restore peace and stability to the
region, particularly the DRC's North Kivu province. The
UN Department of Peacekeeping Operations (DPKO) is now
looking for countries to contribute troops to this
expanded MONUC force. Both the European Union and the
Southern African Development Community (SADC) have
discussed a possible multi-national force to complement
MONUC, but thus far no such force has been realized.
9. (SBU) Some European officials have expressed
pessimism over President Zardari's leadership of
Pakistan. We take a more optimistic view, noting
Zardari's ability to forge political consensus and lead
Pakistan through the politically unpopular but necessary
adoption of an IMF program. The $7.6 billion IMF bail-
out, agreed Nov. 15, will help the country stabilize its
economy and prevent Pakistan from defaulting on its
foreign debt. But the economy is still in crisis, and
Pakistan needs international support to implement the
IMF program successfully. We hope the EU will take the
lead among potential donors and pledge a significant
assistance package that will provide a social safety net
to those adversely affected by the difficult economic
and financial reforms required by the IMF.
10. (SBU) The EU and several member states (the UK,
France, Germany, and Italy) helped launch the "Friends
of Democratic Pakistan" group at the ministerial level
in September. The "Friends" group also includes the
U.S., Pakistan, China, Saudi Arabia, the UAE, Turkey,
Canada, Australia, Japan, and the UN. The Friends
initiative is meant to catalyze political and economic
support for the democratically-elected government of
Pakistan, and will work to help the GoP achieve its
counter-terrorism, border management, and economic
development goals. The Friends of Pakistan will meet at
the expert level in January.
WTO DOHA ROUND
11. (SBU) WTO Doha Round talks are at a critical
juncture as negotiators continue to work toward a
breakthrough in Agriculture and Non-Agricultural Market
Access (NAMA). WTO Director General Lamy will hold
STATE 00127023 003 OF 006
green room meetings on a daily basis to discuss
horizontal Agriculture and NAMA issues. Regarding a
potential December ministerial meeting, Lamy has not set
an official date, but did say that we have our marching
orders from our Leaders. Lamy envisions that Ministers
could meet during the December 10-19 window and that it
would be a relatively short meeting unlike the meetings
in July. Senior officials will continue to meet the
week of November 24 to resolve difficult issues
including the special safeguard mechanism, special
products and NAMA sectorals. If progress is made in
these areas, Ag Chair Falconer and NAMA Chair Wasescha
may issue new texts in late November or early December.
12. (SBU) To date, we have not seen positive movements
from the key players (India, Brazil and China) on
providing critical market access, particularly with
regard to the NAMA sectorals. On November 19, the
National Association of Manufacturers (NAM), Coalition
of Service Industries (CSI) and the American Farm Bureau
Federation issued a letter to the President expressing
strong concerns that a WTO Ministerial meeting should
only be held when there is sufficient evidence that WTO
members are truly committed to opening their markets.
We have not seen this commitment. In fact, following
the G-20 summit, several key WTO members (India, Brazil
and Argentina) have announced their intent to raise
tariffs on certain products.
13. (SBU) ACTION REQUEST: Please deliver the following
points to the appropriate MFA official(s) as soon as
possible (in advance of the December 8-9 GAERC).
BEGIN NON-PAPER TEXT
BOSNIA AND HERZEGOVINA
--We welcome the November 8 Prud/Odzak agreement, which
provides the potential for breaking through the
political stalemate and negative atmosphere that have
impeded progress in Bosnia for months. We welcome, in
particular, the proposed compromise related to state and
defense property -- a key OHR closure objective -- and
on the census -- an EU partnership document requirement.
--We are concerned, however, that the proposed
"constitutional law" on Brcko is insufficient to meet
the Peace Implementation Council's requirements for OHR
closure. Over the next several weeks we will be
pressing the Bosnians to come up with an acceptable
solution on Brcko, as well as to translate the other
elements of the Prud/Odzak agreement into concrete
--The United States will support OHR closure next March
only if the 5+2 conditions and objectives are met in
--We are concerned by the RS government's continuing
failure to comply fully and unconditionally with the
State prosecutor's request of documentation and by
threats to take legal action against certain
international and Bosnian officials for performing their
duties. These developments raise troubling questions
about the RS government's commitment to uphold the rule
of law. The RS needs to hear a consistent message from
the international community regarding the need to
cooperate with State law enforcement authorities and to
respect the rule of law.
--Macedonia's Euro-Atlantic integration remains a key
factor for regional stability. Integration can aid
Macedonia in its pursuit of continued reforms and
STATE 00127023 004 OF 006
--Macedonia must work to ensure free, fair and peaceful
presidential elections in March 2009 and address serious
shortcomings made evident in elections in June 2008.
Full implementation of ODIHR recommendations to prevent
electoral misconduct, fraud, intimidation and violence
next March is critical.
--We continue to strongly support the Nimetz process for
resolving the name issue and have encouraged Macedonia's
leaders to exercise sound judgment and take a far-
reaching view based on the long-term interests of the
--We were pleased with the findings of the European
Commission's November 5 "enlargement package" and its
recognition of Macedonia's good progress on judicial and
police reform and continued consolidation of its multi-
ethnic democracy. We hope that the EU will continue to
remain clear and firm in its benchmarks for Macedonia's
accession and not allow the dispute over its name to
impact its progress towards the EU.
--Croatia is a leader in the region and has been a
strong proponent of Euro-Atlantic integration. We fully
support Croatia's EU aspirations and agree with the
Commission's findings that Zagreb needs to complete the
return of refugees, implement the judicial reform
strategy, settle property repossession claims and
maintain good cooperation with the ICTY.
EU ENLARGEMENT ? STOCK TAKING AND CONCLUSIONS ON TURKEY
--The United States continues to strongly support
Turkey's candidacy for European Union Membership. While
this is a decision for the EU, we have encouraged and
will continue to encourage the EU and Turkey to reach
--The U.S. continues to support UN efforts toward a bi-
zonal, bi-communal federation in Cyprus. We urge the EU
to fulfill its promise to ease the isolation of the
--The U.S. encourages the EU to work with Turkey to
update its counterterrorism legislation. We want to
ensure that Turkey has the legal tools to stop
facilitation in Turkey for terrorist activities that
take place outside of Turkey and to stop terrorists
traveling through Turkey.
--The U.S. supports opening accession chapters on
judicial reform and energy. We understand that the EU
has asked Turkey to focus on judicial reforms in the
wake of the closure case against the ruling AKP party.
--Annapolis launched the first substantive negotiations
in nearly a decade.
--The absence of public agreements or a flurry of press
releases should not be mistaken for a lack of progress.
--The Israeli-Palestinian conflict would not have
endured for 60 years if the obstacles to peace were few
and the solutions easily reached.
--The framework for negotiating a final resolution of
the conflict is before us: Determined, professional,
confidential negotiations between the parties;
consistent yet constructive international engagement;
and a vigorous effort to improve conditions on the
--In their unprecedented November 9 briefing for the
Quartet in Sharm El Sheikh, Israeli and Palestinian
negotiator re-affirmed their commitment to ongoing,
STATE 00127023 005 OF 006
bilateral negotiations that address all issues and their
goal of reaching a comprehensive peace.
--They asked the international community to respect the
mutually agreed principles for their negotiations,
including that third parties should not intervene in the
negotiations absent a joint request from the parties.
--The negotiators also asked the international community
to support their historic efforts by focusing on
providing political and economic assistance to the
legitimate Palestinian government, particularly with
regard to security reform, institution building, and
--The United States is committed to the negotiations,
and there continues to be bipartisan support in the U.S.
for sustaining the process launched at Annapolis. We
have a national interest in the progress that has been
made and in the conclusion of a final agreement.
--President Bush's vision of a Palestinian state at
peace with Israel will not come in a single dramatic
moment, but rather as the result of a methodical,
sincere commitment by the parties to conclude a lasting
agreement that benefits both their people.
DEMOCRATIC REPUBLIC OF THE CONGO (DRC)
--The United States welcomes and supports the
appointments of President Obasanjo and President Nkapa
to lead the international diplomatic efforts to resolve
the crisis in the eastern DRC.
--Only dialogue will bring about peace between the DRC
government and the rebel National Congress for the
Defense of the People (CNDP) headed by Laurent Nkunda.
The DRC military is incapable of defeating the CNDP
militarily and we urge EU member states to pass this
message consistently in their contacts with the GDRC.
--The Congolese government must also work closely with
MONUC to take action against the Democratic Forces for
the Liberation of Rwanda (FDLR), which continues to
operate with impunity in the eastern DRC, and which is
one of the underlying causes of the current crisis. The
U.S. has begun deployment of a Military Information
Support Team (MIST) to the region to work with the
Congolese government to undermine the FDLR.
--The United States is pleased that the Security Council
voted in favor of a 3,000-person troop increase for
MONUC and encourages all countries to consider
contributing forces to this effort.
--In addition, the United States would welcome the
formation of a European multi-national force to work
alongside MONUC to re-establish peace and security in
the eastern DRC, so that humanitarian organizations can
deliver much-needed assistance to the local populations.
--We appreciate the EU's support for the Friends of
Democratic Pakistan initiative.
--We encourage EU member states and the European
Commission to contribute more aid to Pakistan now that
Pakistan has reached an agreement with the IMF.
--We encourage better donor coordination on development
--We applaud Pakistan's counterinsurgency operations in
Bajaur and Mohmand, and encourage continued action to
oust militants from the area.
--We commend Pakistan's improved relations with
Afghanistan and India, as evidenced by President
STATE 00127023 006 OF 006
Karzai's attendance at President Zardari's swearing-in,
and the recent opening of a transit-trade route between
Pakistan and India. We encourage the GOP to continue
these efforts, which will strengthen regional security
and the regional economy.
--We encourage the EU to help fight instability in
Pakistan's border regions by supporting a proposed
international trust fund that would administer
development and security projects in the North-West
Frontier Province and the Federally-Administered Tribal
WTO DOHA ROUND
--The G-20 Declaration and APEC Leaders Statement
reflected two key elements on which we must all focus:
(1) Leaders made a significant concrete commitment to
"do no harm," agreeing to a stand-still on measures that
increase barriers to trade and investment. (2) Leaders
gave a strong concrete boost toward achieving modalities
in the Doha negotiations by the end of the year.
--We need to give attention to both elements with
--The U.S. remains committed to working to achieve
modalities in agriculture and non-agricultural market
access (NAMA) by the end of the year if at all possible.
--We must redouble our efforts to follow-up on the Doha
political commitments with real showings of flexibility
and contributions to ensure a modalities package this
year that will ensure that the negotiations ultimately
yield meaningful new trade flows and economic
If Raised on Ministerial:
--The key preparatory work on convergences needed to
achieve Agriculture and NAMA modalities this year is
ongoing. We must reach convergence on many key issues
before a date can be established.
If Raised on tariff increases:
--On the trade pledge, we already have signs that India,
Brazil and Argentina may be turning away from their
--We cannot allow this movement on tariffs to take hold
and each of us needs to shine a spotlight on these
tariff-raising actions, taken immediately after leaders
had pledged and agreed not to do so.
END NON-PAPER TEXT