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Viewing cable 06BRIDGETOWN875, DOMINICA'S DIPLOMATIC TROUBLE WITH SWITZERLAND

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Reference ID Created Released Classification Origin
06BRIDGETOWN875 2006-05-19 18:48 2011-08-30 01:44 CONFIDENTIAL Embassy Bridgetown
VZCZCXYZ0049
PP RUEHWEB

DE RUEHWN #0875/01 1391848
ZNY CCCCC ZZH
P 191848Z MAY 06
FM AMEMBASSY BRIDGETOWN
TO RUEHC/SECSTATE WASHDC PRIORITY 2533
INFO RUCNCOM/EC CARICOM COLLECTIVE
RUEHSW/AMEMBASSY BERN 0096
RUMIAAA/HQ USSOUTHCOM J2 MIAMI FL
RUMIAAA/HQ USSOUTHCOM J5 MIAMI FL
RUEHCV/USDAO CARACAS VE
RUEHGV/USMISSION GENEVA 0239
C O N F I D E N T I A L BRIDGETOWN 000875 
 
SIPDIS 
 
SIPDIS 
 
SOUTHCOM ALSO FOR POLAD 
 
E.O. 12958: DECL: 05/19/2016 
TAGS: AORC CPAS OFDP PGOV PINR PREL KCRM DO SZ XL
SUBJECT: DOMINICA'S DIPLOMATIC TROUBLE WITH SWITZERLAND 
 
REF: A. BRIDGETOWN 429 
     B. BRIDGETOWN 239 
 
Classified By: Poloff Michael Kelleher for reasons 1.4 (b) and (d). 
 
1. (C) Summary:  Dominica brought Switzerland to the 
International Court of Justice over the Swiss decision to 
strip a Dominica "diplomat" of his diplomatic status. 
Russian-born Roman Lakschin, who obtained Dominica 
citizenship through the Caribbean island-state's economic 
citizenship program, was accredited as Dominica's 
representative to the UN in Switzerland.  The Government of 
Switzerland withdrew Lakschin's diplomatic status because it 
believes he is a businessman and not a bona fide diplomat. 
Dominica argued in response that the Swiss have no right to 
withdraw Lakschin's diplomatic accreditation, which is to the 
UN and not Switzerland.  Lakschin's ties to Dominica have 
previously been the subject of a controversy that calls into 
question the integrity of both the country's economic 
citizenship program and its diplomats.  End summary. 
 
---------------------------------------- 
Dominica Brings Case Against Switzerland 
---------------------------------------- 
 
2. (U) The Government of the Commonwealth of Dominica (GCOD) 
brought a case against Switzerland before the International 
Court of Justice (ICJ) over what Dominica says is 
Switzerland's unlawful decision to withdraw the diplomatic 
status of Roman Lakschin, Dominica's representative to the UN 
in Geneva.  In presenting its case to the ICJ in April, the 
GCOD accused the Swiss of violating the Vienna Convention on 
Diplomatic Relations by removing the diplomatic credentials 
of Lakschin, who was not a representative to Switzerland but 
to the UN.  Dominica argued that as a small country of only 
70,000 people it is constrained in its ability to select 
diplomatic representatives and has the right to send whomever 
it wishes to Geneva to act as its envoy to the various UN 
agencies located there.  Curiously, in May the GCOD announced 
that it would delay its legal action against Switzerland 
until the matter could be investigated further. 
 
------------------------------ 
Diplomat's Questionable Status 
------------------------------ 
 
3. (U) Roman Lakschin's diplomatic activities on behalf of 
Dominica have previously been the subject of controversy. 
The Russian-born Lakschin received Dominica citizenship in 
the 1990s through the country's economic citizenship program. 
 In March 1996, he was accredited to the UN, its specialized 
agencies, and the World Trade Organization (WTO), as 
Counselor to the Permanent Mission of Dominica to the UN in 
Geneva.  In December 1996, the Swiss withdrew Lakschin's 
accreditation, stating that it had done so because he was a 
businessman and not a diplomat.  Dominica responded by 
re-appointing Lakschin as Charge d'affaires in March 1997, 
then elevated him to Ambassador in May.  The Swiss again 
withdrew Lakschin's accreditation in November 1998.  Dominica 
does not appear to have taken any further action on 
Lakschin's behalf until it filed the current case with the 
ICJ in April 2006. 
 
-------------------------------------- 
Living in Monaco and Selling Passports 
-------------------------------------- 
 
4. (U) Despite Roman Lakschin's various diplomatic 
assignments to Dominica's Mission to the UN in Geneva, 
Dominica does not appear to have any type of diplomatic 
presence in Switzerland and is represented throughout Europe 
by its Mission in Brussels.  Lakschin is a resident of Monaco 
but has business and financial dealings in Switzerland, 
according to press reports. 
 
5. (U) Lakschin's diplomatic activities on behalf of Dominica 
are alleged to have consisted solely of selling Dominica 
passports.  These allegations first arose publicly in 2003, 
when the integrity of Dominica's economic citizenship program 
was being questioned by the international community.  Canada 
had recently deported several Dominica economic citizens, 
members of the Russian-born Ponomarenko family, for suspected 
criminal ties.  As part of its investigation into how the 
Russians had obtained Dominica citizenship, Dominica Attorney 
General Henry Dyer said the GCOD would look into any 
connection to Roman Lakschin, who was suspected of having 
sold several Dominica passports to Russians for US$500,000 
each.  The Dominica press also reported in 2003 that the GCOD 
had assisted Swiss authorities in investigating Lakschin for 
selling Dominica passports to two Swiss families. 
 
6. (U) Note:  It is unclear exactly how many passports have 
been issued under Dominica's economic citizenship program, 
which was begun in 1991 as a means to attract investment to 
this small, economically troubled country.  A 2003 report by 
the BBC cited 2,371 passports, while a GCOD official put the 
number closer to 3,000 in 2005.  At present, economic 
citizenship requires a payment to the GCOD of US$75,000 for 
an individual or US$100,000 for a family of four.  The 
information publicly available on the program does not 
indicate if issuance of a Dominica diplomatic passport 
requires an additional fee.  End note. 
 
-------------------------------- 
Who Filed the Case for Dominica? 
-------------------------------- 
 
7. (U) Questions have been raised in the Dominica press about 
the decision to bring a case against Switzerland eight years 
after Roman Lakschin was last stripped of his diplomatic 
status and after the GCOD had itself accused Lakschin of 
impropriety.  According to one account, Lakschin was recently 
sued in Switzerland and invoked diplomatic immunity, claiming 
still to be Dominica's Ambassador.  He then traveled to 
Dominica and convinced certain government officials, possibly 
even Foreign Minister Charles Savarin, to agree to file a 
case on his behalf against Switzerland for removing his 
diplomatic accreditation.  Lakschin may have also retained 
the British attorney who actually wrote and filed the 
complaint with the ICJ in April.  Observers believe that the 
GCOD's subsequent announcement in May that it would delay 
further action until the case could be investigated is an 
indication that certain members of the Government were not 
aware of the case and have questioned the decision to support 
Lakschin. 
 
------- 
Comment 
------- 
 
8. (C) Roman Lakschin's troubles once again raise questions 
that have surrounded Dominica's economic citizenship program 
and the manner in which it grants diplomatic status to 
non-citizens.  The GCOD has taken criticism in the past for 
failing to adequately screen those to whom it grants economic 
citizenship, which is often sought by individuals attempting 
to avoid financial obligations or even criminal charges in 
other countries.  The critics have also accused the prime 
ministers of Dominica and other Eastern Caribbean states of 
accepting bribes in exchange for giving diplomatic status to 
both economic citizens and non-citizens (reftels).  In the 
case of Dominica, the GCOD recently requested that the USG 
issue a diplomatic visa to a non-citizen who had been 
appointed Ambassador-at-Large.  The individual, a Barbados 
businessman who is believed to have contributed generously to 
Prime Minister Roosevelt Skerrit's 2005 re-election campaign, 
may very well conduct legitimate diplomatic activity on 
behalf of Dominica.  The more that is learned about Dominica 
"diplomats" such as Roman Lakschin, however, the harder it 
may be for Dominica to convince other countries that its 
emissaries are genuine. 
PETERS