VZCZCXRO3807
OO RUEHDBU RUEHFL RUEHKW RUEHLA RUEHROV RUEHSR
DE RUEHNO #0566/01 2920752
ZNY CCCCC ZZH
O 190752Z OCT 07
FM USMISSION USNATO
TO RUEHC/SECSTATE WASHDC IMMEDIATE 1293
INFO RUEHZL/EUROPEAN POLITICAL COLLECTIVE PRIORITY
RUEHZG/NATO EU COLLECTIVE PRIORITY
RUEHMO/AMEMBASSY MOSCOW PRIORITY 5776

C O N F I D E N T I A L SECTION 01 OF 03 USNATO 000566 
 
SIPDIS 
 
NOFORN 
SIPDIS 
 
E.O. 12958: DECL: 10/15/2017 
TAGS: NATO PGOV PREL KV
SUBJECT: KOSOVO TROIKA UPDATES NATO-RUSSIA COUNCIL AND 
OUTLINES WAY FORWARD 
 
REF: A: USNATO 529 B: SECSTATE 143811 
 
Classified By: Ambassador Victoria Nuland, for reasons 1.4 (b) and (d) 
 
¶1.  SUMMARY:  The representatives of the Kosovo Troika (U.S. 
representative Frank Wisner, EU representative Wolfgang 
Ischinger, and Russian representative Alexander 
Botsan-Kharchenko) briefed a special meeting of the 
NATO-Russia Council (NRC) on Monday, October 15, providing a 
general update on where things stand and the way forward 
following the most recent Troika negotiations on Sunday, 
October 14. Of particular note, Russian Troika Representative 
Botsan-Kharchenko praised Belgrade's "flexibility" in 
improving its offer of autonomy for Kosovo, but added that 
this would not be enough to achieve a final settlement.  All 
NATO Permanent Representatives (PermReps) who spoke expressed 
their full support for the Troika-led process and welcomed 
the pro-active role that the Troika was playing in 
facilitating the face-to-face talks, but remained largely 
silent on what might happen if there is no agreement by a 
December 10 deadline.  Russian Ambassador Totskiy said Moscow 
is convinced a negotiated settlement is possible and warned 
that unilateral independence for Kosovo would set a precedent 
for other areas of the world;  the Dutch PermRep refuted the 
Russian arguments on precedents, saying Kosovo was a unique 
case. END SUMMARY. 
 
---------------------- 
TROIKA UPDATES THE NRC 
---------------------- 
 
¶2.  (SBU) NATO Secretary General Jaap de Hoop Scheffer opened 
an October 15 meeting of the NATO-Russia Council by 
expressing NATO,s full support for the Troika-led process, 
saying that KFOR has a lot at stake regarding the potential 
security repercussions in the region if there is further 
delay in resolving Kosovo,s status.  EU Troika 
Representative Ambassador Ischinger began by updating the NRC 
on the progress to date including the recent October 14 
face-to-face meetings between the parties in Brussels and the 
commitments that the Troika obtained from both parties to 
avoid provacative acts or statements during the negotiations. 
 He described the negotiations as difficult and complex given 
the wide gap that currently exists between Belgrade and 
Pristina. He noted that support from the international 
community is crucial and that, through the Contact Group, the 
Troika has found a way to work with the parties.  He also 
said that both parties have accepted the Troika process and 
that they continue to engage at the highest level. 
 
¶3.  (SBU) Ambassador Wisner reiterated that the Troika,s 
mandate would last for 120 days, through the December 10 
deadline by which the U.N. Secretary General has requested a 
report from the Contact Group on these efforts.  He informed 
the NRC that based on the Contact Group Ministerial guidance 
received in New York, the Troika is now making a strong 
effort not only to facilitate the face-to-face discussions, 
but also be proactive about presenting ideas and measures 
drawn from the respective proposals.  Although he was careful 
to emphasize that the Troika,s mandate was not to impose 
solutions, Ambassador Wisner asserted that the Troika process 
should make every attempt to find common ground between the 
two sides and to leave "no stone unturned" by the time of 
their December 10 report.  Wisner noted that in the 
discussions on October 14 both parties had exchanged views on 
their proposals and that the Troika had put on the table a 
paper of principal conclusions that were drawn from the 
parties' positions to help find common ground.  Russian 
representative Botsan-Kharchenko in a mild presentation 
re-confirmed Russia,s continued support for the Troika 
process and that there still remains a "slim chance" that 
they can arrive at a mutually acceptable solution.  However, 
he stated that there should be no prejudging of the final 
outcome and that the Troika is obligated to respect current 
international documents, mentioning UNSCR 1244, Contact Group 
Guiding Principles, and Ministerial statements.  While 
praising Serbia's engagement in the process, he acknowledged 
Belgrade's autonomy offers to date would not be enough to 
bridge the gap; more movement was required.  All three of the 
representatives acknowledged that the Troika, as of the 
October 14 Brussels talks, has entered into a new stage of 
the negotiations which will feature intensified face-to-face 
talks over the coming weeks.  The next meeting is scheduled 
to take place in Vienna on October 22.  Wisner praised 
NATO,s ongoing role in providing peace and stability in the 
region and that KFOR remains essential to ensuring a 
favorable security environment to support the Troika-led 
political process. 
 
 
USNATO 00000566  002 OF 003 
 
 
---------------- 
ALLIED INQUIRIES 
---------------- 
 
¶4. (C) All Allies who spoke (QUINT PermReps did not take the 
floor given their follow-on lunch with Ambassadors Wisner and 
Ischinger) conveyed their support of the Troika process, with 
regional Allies, Greece, Romania, Bulgaria, Hungary, 
Slovakia, and Slovenia highlighted the importance of a 
successful negotiation process to regional security.  While 
Allies largely avoided a political discussion on 
post-December 10 actions should the parties fail to reach 
agreement, Greece, Hungary, and Slovakia noted their 
preference for a new UN Security Council resolution, while 
Canada stated that a unilateral declaration of independence 
"is less than ideal". (Note:  Afterwards Canada confirmed it 
would support the Allied line on UNSCR 1244 and support 
maintaining KFOR in Kosovo. End Note.) The Slovenian PermRep 
noted that the Troika negotiations could not go on without 
limits, and that the moment of decision on Kosovo is coming. 
Spain reiterated its call for unity in the international 
community.  Allies largely welcomed the more pro-active 
process led by the Troika that would present common 
principles to the parties based on areas of overlap from 
their respective proposals.  The Troika, in response to 
several Allied PermRep inquiries elaborated on the areas of 
overlap noting that: 1) both sides acknowledge there will be 
no return to Kosovo's pre-1999 status; 2) Belgrade and 
Pristina are ready to cooperate on areas of mutual concern 
such as minority protection, cultural sites, and energy; 3) 
the parties could establish joint bodies responsible for 
implementing cooperative actions.  Responding to the Dutch 
and Spanish PermReps, the Troika noted that both sides have 
indicated their desire for the international community,s 
continuing role in Kosovo, including security. 
 
---------------- 
RUSSIAN REACTION 
---------------- 
 
¶5.  (SBU) Russian Ambassador to NATO Totskiy acknowledged the 
Troika,s tough mission, noting that Moscow is convinced that 
a negotiated settlement is achievable based on international 
law and praised Belgrade,s pro-active approach.  Totskiy 
denigrated Pristina,s efforts saying the Kosovo Albanians 
hopes for independence are being fed by high level promises 
of independence from the international community and that the 
threat of violence in Kosovo after December 10 is blackmail. 
He reiterated Russia,s argument that granting independence 
to Kosovo would set a precendent for other regions throughout 
Europe and the world.  In response, the Dutch PermRep, 
speaking broadly for all Allies, strongly pushed back on the 
precedent argument, saying that the political and historical 
facts surrounding Yugoslavia,s break-up speak for 
themselves.  In particular, he noted the heavy involvement 
that the U.N. Security Council and international community 
has made Kosovo is a unique situation that would not set a 
precedent for other conflicts around the world. 
 
--------------- 
TROIKA RESPONDS 
--------------- 
 
¶6.  (SBU) Pressed by Allies whether they envisioned a 
"Dayton" or Rambouillet-style endgame, Ischinger said some 
intense final days might be possible but, unlike popular 
impressions of Dayton, the Troika would neither impose a 
solution nor countenance any "Respublikas" with Kosovo. 
Ischinger expressed his personal view that if the Troika 
cannot achieve an agreed solution in the 120-day negotiating 
period than it would not happen even with "another 1,200 
days".  He further stated that the European Union,s 
perspective plays an important role in shaping Belgrade,s 
attitude, suggesting that one area which could have a 
significant impact on how the Serbs view the EU is visa 
liberalization.  Ambassador Wisner reiterated the Troika,s 
role facilitating the search for common ground given the 
considerable domestic political constraints in Belgrade and 
Pristina.  Responding to questions about minority rights, 
Ambassador Wisner highlighted that no party had spoken about 
diminishing minority protections in Kosovo as envisioned in 
the Ahtisaari proposal, which were among the highest-level of 
minority protection found anywhere in Europe. 
 
----------------------- 
QUINT FOLLOW-ON MEETING 
----------------------- 
 
¶7.  (C) In the follow-on QUINT lunch meeting with Ambassadors 
 
USNATO 00000566  003 OF 003 
 
 
Wisner and Ischinger, the conversation focused primarily on 
strategy and tactics vis--vis Russia, Trans-Atlantic unity, 
and creating incentives for the parties to negotiate 
seriously in the end game. 
NULAND