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DE RUEHCP #0321/01 1581053
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FM AMEMBASSY COPENHAGEN
TO RUEHC/SECSTATE WASHDC IMMEDIATE 4276
INFO RUEKJCS/SECDEF WASHINGTON DC PRIORITY
RUEHZN/ENVIRONMENT SCIENCE AND TECHNOLOGY COLLECTIVE
RUEHHE/AMEMBASSY HELSINKI 3827
RUEHMO/AMEMBASSY MOSCOW 1371
RUEHNY/AMEMBASSY OSLO 5491
RUEHOT/AMEMBASSY OTTAWA 2537
RUEHRK/AMEMBASSY REYKJAVIK 0419
RUEHSM/AMEMBASSY STOCKHOLM 8925
RUEHLN/AMCONSUL ST PETERSBURG 0309
RUCNDT/USMISSION USUN NEW YORK 1522
RUEHGV/USMISSION GENEVA 0664
RHMFIUU/12SWS THULE AB GL

UNCLAS SECTION 01 OF 05 COPENHAGEN 000321 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PGOV PREL SENV OVIP PBTS PHSA KGHG ENRG ETRD
EPET, EFIS, EWWT, MARR, DA, CA, NO, RS, XQ 
SUBJECT: DEPUTY SECRETARY'S PARTICIPATION AT ARCTIC OCEAN 
CONFERENCE IN GREENLAND 
 
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REF: COPENHAGEN 288 
 
¶1.  (SBU) Summary:  Deputy Secretary Negroponte led the U.S. 
delegation to the Arctic Ocean Conference hosted by the 
Kingdom of Denmark and Greenland Home Rule Government in 
Ilulissat, Greenland May 27-29.  In closed discussions during 
the conference and at a concluding press conference, all 
participants stressed mutual interests in the Arctic Ocean. 
In these and private bilateral meetings with the Danish, 
Greenlandic, Norwegian, and Canadians (septels), the Deputy 
Secre tary emphasized USG engagement in the Arctic and 
encouraged cooperative, pragmatic solutions to shared 
problems in the face of changing conditions.  He also sought 
a common approach with the Danes and Norwegians on engagement 
with Moscow. 
 
¶2.  (SBU) In an "Ilulissat Declaration" issued at the 
conclusion of the conference, the five Arctic Ocean coastal 
states affirmed their commitment to the law of the sea legal 
framework and to the orderly settlement of any possible 
overlapping claims in the Arctic.  They also committed to 
ensure the protection of the fragile marine environment of 
the Arctic Ocean and to promote safety at sea.  The 
declaration included references to strengthening search and 
rescue capabilities and capacity around the Arctic Ocean, 
strengthening cooperation on the collection of scientific 
data concerning the continental shelf and other scientific 
research, and contributing to the work of the Arctic Council 
and other relevant fora.  End Summary. 
 
¶3.  (U) Background:  The conference was a Danish initiative, 
announced by FM Moeller last fall, in response to public 
perceptions of a potentially dangerous "race in the Arctic" 
between states with overlapping territorial claims in the 
Arctic Ocean.  In addition to the Deputy Secretary, the U.S. 
delegation consisted of (U.S.) OES A/S Claudia McMurray, 
Department Legal Advisor John Bellinger, Ambassador to 
Denmark James Cain, D Special Assistant Edward Wittenstein, 
and REO Hall (note taker).  Danish FM Per Stig Moeller and 
Greenland Home Rule (GHR) Premier Hans Enoksen were co-hosts; 
GHR Minister for Finance and Foreign Affairs, Aleqa Hammond, 
also participated for the Greenlandic delegation.  The 
Russian delegation was led by FM Sergei Lavrov; Norwegian 
delegation was led by FM Jonas Gahr Stoere; Minister of 
Natural Resources Gary Lunn led the Canadian delegation.  The 
text of the "Ilulissat Declaration" is available at 
http://www.um.dk/en. 
 
Words from the Co-hosts 
----------------------- 
 
¶4.  (U) The conference opened with welcoming remarks from FM 
Moeller, who outlined the need for Arctic coastal states to 
commit to an orderly and rules-based process to settle 
territorial claims, and the mutual interest in cooperation on 
issues to protect the Arctic region.  Premier Enoksen 
emphasized the need to involve Arctic residents in issues 
affecting their livelihoods, a theme echoed throughout the 
conference by GHR FM Hammond and Canadian Minister Lunn. 
 
Expert Presentations Spark Questions 
------------------------------------ 
 
¶5.  (U) Words of welcome were followed by presentations on 
climate change affecting the Arctic by Dr. Pal Prestrud, 
Director of the Center for International Climate and 
Environmental Research (Oslo); on issues relating to local 
inhabitants and indigenous communities by Aqqaluk Lynge, Vice 
Chair of the Inuit Circumpolar Council; and on commercial 
opportunities in the Arctic by Sergey Frank, former Russian 
transport minister and CEO of a Russian shipping company, 
Sovcomflots. 
 
¶6.  (U) Asked by FM Stoere about the state of Arctic 
scientific research, Dr. Prestrud admitted that on key 
issues, data was either short-term or lacking.  Research 
being conducted as part of International Polar Year (IPY) 
would help, but needed to be followed up.  Stoere said 
 
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Norway, as the current chair of the Arctic Council, would 
convene a sub-ministerial political meeting to discuss the 
results of the Ilulissat conference.  The Greenland Premier 
agreed such a meeting was important, and urged that 
indigenous Arctic residents have a voice at that meeting. 
 
¶7.  (U) Lynge emphasized colonial errors of the past 
(including relocation of indigenous people from a community 
near Thule AFB) and asserted that "all Inuit own the Arctic." 
 Asked by FM Moeller whether he was afraid of new 
opportunities in the Arctic, Lynge replied "we are not afraid 
of anything when we are included in the response."  He cited 
increased cooperation with U.S. researchers as positive and 
concluded that "we need your assistance and you need our 
(traditional) knowledge."  Canadian minister Lunn lauded 
Inuit cultural respect for the environment and said that 
while continental shelf territorial claims could only be 
handled by sovereign states, local and indigenous residents 
of the Arctic should be involved in decision-making.  FM 
Lavrov asked Lynge whether existing Arctic institutions 
needed to be modified.  Lynge urged greater indigenous 
participation in all Arctic institutions. 
 
¶8.  (U) Russian CEO Frank emphasized that commercial 
opportunities for increased shipping in an increasingly 
ice-free Arctic were not for the faint of heart, because 
profit requires high up-front costs for specialized shipping 
technologies.  He urged Russian, Norwegian and Danish ship 
builders to cooperate to prevent the industry from migrating 
to lower-cost Asia. 
 
Russians Defensive, Revive Dormant SAR Proposal 
--------------------------------------------- -- 
 
¶9.  (SBU) Though requested by FM Moeller to address "General 
foreign and security policy issues/challenges in relation to 
the Arctic Ocean," Russian FM Lavrov instead chose to 
emphasize other themes in the afternoon session.  On climate 
change, he discounted human activity as a driver for global 
warming in the Arctic, saying the issue requires further 
study including evidence of cyclical warming there.  FM 
Moeller later volunteered his own view that sunspots play an 
important role in global warming; FM Stoere countered that 
the best scientific evidence on global warming is 
incorporated in the IPCC report, and urged all to base their 
policies on the precautionary principle. 
 
¶10.  (SBU) Lavrov downplayed international reaction to the 
planting of a Russian flag on the North Pole sea bottom in 
2007 as a misunderstanding, expressing Russian respect for 
the UN Law of the Sea (UNCLOS) framework to resolve competing 
territorial claims.  On indigenous participation, Lavrov 
claimed Russia listened "attentively" to concerns of 
indigenous residents of the Russian Arctic, saying that 
protection of indigenous rights is "integral" to Russian 
Arctic policy. 
 
¶11.  SBU) Lavrov concluded by proposing the creation of an 
Arctic search and rescue (SAR) organization, preferably with 
a unified coordination of service.   The Deputy Secretary 
asked for clarification of the proposal, saying the U.S. came 
to the conference prepared to support discussions about a 
possible SAR agreement between the five states and perhaps 
others.  Lavrov responded that the Russian proposal had been 
tabled in the Arctic Council several years ago, and would be 
something for "our professionals to follow-up."  FM Stoere 
suggested the issue be presented to the Arctic Council; the 
Deputy Secretary, FM Lavrov and FM Moeller voiced agreement. 
Premier Enoksen praised potential cooperation on SAR and said 
Greenland and Iceland had already had some discussions. 
 
U.S. Promotes Dialogue and Science 
---------------------------------- 
 
¶12.  (SBU) The Deputy Secretary opened his discussion of 
"Cooperation in relation to the Arctic Ocean" by noting that 
while the U.S. is not a party of the UNCLOS, we treat it as a 
matter of customary international law, and the Administration 
 
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is seeking Senate ratification.  He urged participants to 
consider resolving existing maritime boundary disputes in 
addition to new Arctic continental shelf claims.  To help to 
understand the science of the Arctic, the U.S. is committed 
to marine scientific research and urges all states to be 
prompt and responsive to requests for marine scientific 
research within their exclusive economic zones, he said. 
Areas for potential cooperation between the five and other 
interested parties include SAR; oil and gas guidelines 
adopted by the Arctic Council in 2002, which could be 
updated; as could shipping guidelines in the International 
Maritime Organization (IMO).  FM Moeller thanked the Deputy 
Secre tary for his "promising remarks" on UNCLOS ratification, 
and agreed upon the need for increased scientific research, 
especially into the Gulf Stream and other ocean currents. 
 
Canada "On Track" in North 
-------------------------- 
 
¶13.  (SBU) In his presentation on "Operational issues in 
relation to the Arctic Ocean," minister Lunn noted the 
importance to Canada of its "Northern Strategy" announced by 
PM Harper.  He highlighted Canadian support for IPY projects, 
Canadian-Danish cooperation in mapping the continental shelf 
(for which Canada has set aside Canadian $40 million over the 
next four years), and said Canada was "on track" to submit 
its claim to the UNCLOS commission by 2013.  He emphasized 
the need for Arctic coastal state cooperation in the Arctic, 
and listed Canadian agreements with Denmark, the U.S., and 
Russia there.  On Arctic shipping, Canada is considering 
making a voluntary ship inspection system mandatory.  FM 
Moeller quipped that despite Denmark's dispute with Canada 
over Hans Island ("which of course is Danish"), Denmark had 
found a way to cooperate with Canada over the use of that 
site. 
 
Norway Pushes Arctic Council Follow-up, More on Flag-Planting 
--------------------------------------------- ---------------- 
 
¶14.  (SBU) FM Stoere began his presentation on the theme of 
"Protection of the marine environment in relation to the 
Arctic Ocean" by citing growing threats to the Arctic 
environment posed by oil shipping or rig accidents and 
increased tourist cruises.  While a legal "toolbox" currently 
exists in the UNCLOS, it is not adequate, Stoere maintained. 
Some in the Norwegian Parliament propose the creation of an 
Arctic treaty, but he did not think that necessary.  UNCLOS 
allocates rights and obligations and the IMO regulates 
shipping, so there is no lack of rules.  Arctic coastal 
states now need to set policies and implement them. 
 
¶15.  (SBU) Also important, Stoere said, was the need to 
follow up in the Arctic Council, with more focus on policy 
making  He proposed that a deputy ministerial meeting be held 
in the fall to report on Ilulissat outcomes, raise the SAR 
proposal, revise oil and gas guidelines, and discuss 
short-lived climate drivers such as soot and methane.  Norway 
also supports follow-up of IPY with further marine research. 
In response, FM Moeller agreed that there was no need for 
another Arctic policy forum or treaty.  He urged the use of 
the IMO for discussions of maritime safety.  That said, he 
said "we cannot exclude the possibility of follow-up meetings 
of this group (of five)." 
 
¶16.  (SBU) Responding to a reference in FM Stoere's 
presentation of Russia's flag-planting episode, Lavrov 
emphasized that the action did not signify a claim to the 
Pole.  He cited the U.S. planting of a flag on the moon or 
climbers planting their national flags on Everest as more 
analogous to the Russian action.  D encouraged cooperation in 
the delimitation of the continental shelf; Lunn cited 
Canadian cooperation with Denmark over Hans Island; and 
Lavrov cited Russian cooperation with Norway.  FM Moeller 
summed up this discussion by observing that "planting a flag 
does not mean ownership."  Greenland FM Hammond praised 
respect by the coastal states of UNCLOS and urged 
strengthening of the IMO. 
 
 
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¶17.  (SBU) FM Moeller wrapped up the conference discussion 
period by soliciting and receiving agreement from 
participants for the Ilulissat Declaration, which was then 
made public.  Moeller summed up action items, including 
follow up with the Arctic Council and IMO, and the imperative 
of considering impacts of policies on local Arctic 
inhabitants.  In his concluding remarks, Premier Enoksen 
thanked all delegations for the spirit of unity apparent at 
the conference.  Signaling concern over U.S. listing of the 
polar bear as a threatened species, Enoksen said indigenous 
peoples ancestors had lived off Arctic animals for thousands 
of years without ever threatening their extinction.  He 
thanked FM Moeller for his initiative in conceiving the 
conference, and the Danish state for its support to 
Greenland, expressing hope that the Danish state be a role 
model to others for its treatment of its indigenous 
population. 
 
Press Probe in Vain for Conflict 
-------------------------------- 
 
¶18.  (U) At the concluding press conference, FM Moeller 
declared that Denmark's aims for the conference had been 
fulfilled and described the joint commitment of participating 
states to the legal framework of the UNCLOS.  FM Stoere 
announced his intention to convoke a meeting of all Arctic 
Council members to share the results of the Ilulissat 
conference, and emphasized the need for new policies on SAR. 
The Deputy Secretary highlighted U.S. research initiatives 
totaling $400 million annually for the past six years, the 
need for unfettered research cooperation, and the importance 
of SAR, shipping, environmental protection, commercial 
fishing and adherence to the law of the sea.  Minister Lunn 
emphasized that the continental shelf delimitation would 
follow an "orderly, rules-based process," not a "race," and 
that the "peoples of the north need to be a part of the 
solution."  FM Lavrov emphasized Russia's intention to 
resolve issues through negotiation and complement the work of 
the Arctic and Barents Euro-Arctic Councils.  He announced 
two initiatives:  the creation of a Russian safety system 
when implementing economic and infrastructure projects in the 
Arctic, and the resurrection Russia's SAR proposal in the 
Arctic Council.  FM Lavrov thanked Norway as Council 
President, and pledged to "further strengthen scientific 
cooperation with all our neighbors on the basis of rules as 
part of the Law of the Sea." 
 
¶19.  (SBU) In the question and answer session that followed 
opening statements, FM Lavrov dismissed as "hypothetical" 
questions about possible joint territorial claims under 
UNCLOS, saying "we have agreed we will follow rules and the 
(UNCLOS) commission will decide based on the scientific 
evidence." Later, in response to a question about why the UN 
is not mentioned in the Declaration, FM Lavrov quipped "I 
believe our colleagues (in the press) are very tired, since 
they are raising non-existent issues."  (Note: the UNCLOS is 
not explicitly mentioned in the declaration, but rather "the 
law of the sea" is mentioned, since the U.S. is not a yet a 
party.) 
 
¶20.  (U) Asked why, given the unity emphasized by all 
participants, there was a need to meet at all, FM Moeller 
replied that he felt it was important to clarify shared views 
and commitments to the rule of law as Arctic coastal states. 
Moeller later said that "it would be strange if there were 
not overlapping claims," for the commission to decide.  The 
Deputy Secretary emphasized the opportunity for cooperation 
and collaboration on issues of common concern, including 
safety at sea, scientific collaboration, and climate change. 
Asked about the impact of the Ilulissat Declaration on other 
states, FM Moeller said the Declaration applied only to the 
five Arctic coastal states, which did not "substitute" for 
the Arctic Council.  FM Stoere said Norway favored an open 
dialogue with other interested states on Arctic issues. 
 
¶21.  (U) Asked whether global warming was positive or 
negative for the Arctic, FM Lavrov said the issue required 
further research, but where opportunities arose, they should 
 
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be pursued.  Lunn said there was no question warming is 
affecting the peoples of the Arctic and states should do all 
they could to help them mitigate and adapt to changes.  FM 
Moeller said warming had positive and negative effects, 
including positive effects for Greenland, which gains more 
access to resources through warming, but negative effects for 
the rest of the world.  He cited international efforts to 
deal with the ozone hole as far back as 1992 as a model of 
what can be done to address global warming.  Premier Enoksen 
listed examples of how warming is affecting Greenlanders in 
both positive (e.g. the return of cod to Greenland's waters, 
longer growing season, access to previously ice-covered 
mining resources) and negative (undermining infrastructure 
including building foundations, landing strips) ways.  He 
concluded that climate change was cause for concern to 
Greenland and the rest of the world, and it would be 
important for Arctic peoples to have a voice on the issue. 
FM Stoere cited the IPCC's conclusions that greenhouse gas 
emissions be curbed and expressed hope for an agreement at 
the 2009 climate summit in Copenhagen. 
 
¶22.  (SBU) The Deputy Secretary said the effects of climate 
change on the Arctic (increased navigation, tourism, and oil 
and gas exploration) had been the subject of discussion at 
the conference.  The U.S. was committed to participating in 
negotiations and prepared to make binding commitments in 
those talks, provided other nations do so as well.  He 
highlighted the President's Major Economies Process and the 
upcoming G8 meeting in Japan. 
 
¶23.  (U) In response to a question about whether the 
Greenland Home Rule government would be invited to subsequent 
meetings held outside Greenland, FM Lavrov simply thanked the 
Danish government for organizing the conference and inviting 
Russia to participate.  The Deputy Secretary said it had been 
very valuable to hear directly the perspective of the Premier 
and FM Hammond, and noted that they made interventions on 
virtually every subject discussed at the conference.  Asked 
if the Ilulissat Declaration would change U.S. and Canadian 
disagreement over the Northwest Passage, Lunn said that was a 
different issue. 
 
¶24.  (U)  Asked if the "race for the Arctic" had ended in 
Ilulissat, FM Moeller gave an emphatic "Yes," and minister 
Lunn called out "it never started!," concluding the exchange 
with the press. 
 
Comment 
------- 
 
¶25.  (SBU) The conference achieved FM Moeller's declared 
aims, and went largely according to plan.  Conference 
outcomes were never in doubt, with the Ilulissat Declaration 
negotiated beforehand between all participants.  FM Lavrov 
seemed keen to downplay Russian flag-planting and earn Russia 
credit for its search and rescue proposal.  Stoere's 
announcement of a fall Arctic Council meeting to brief on 
Ilulissat will presumably help allay concerns of Council 
members not invited to the conference (Iceland, Sweden and 
Finland).  Beyond that, no follow-up meeting of the five 
coastal states was planned, although FM Moeller left that 
door open. 
 
¶26.  (U) The Deputy Secretary's party reviewed this cable. 
CAIN