VZCZCXYZ0006
PP RUEHWEB

DE RUEHC #1957 2121539
ZNR UUUUU ZZH
P R 301532Z JUL 08
FM SECSTATE WASHDC
TO RUEHPO/AMEMBASSY PARAMARIBO PRIORITY 0000
INFO RUCPDOC/DEPT OF COMMERCE WASHINGTON DC
RULSDMK/TRANSPORTATION DEPT WASHINGTON DC 0000

UNCLAS STATE 081957 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: EAIR KTIA XL NS
SUBJECT: CIVAIR SURINAME--TIME FOR OPEN SKIES? 
 
REF: A. UTSCHIG/MENSCHER/FRANGIE -- 
        HORWITZ/LIMAYE-DAVIS/HEDBERG EMAILS JULY 
        2007-JULY 2008 
     ¶B. 07 PARAMARIBO 622 
     ¶C. 07 STATE 146737 
 
¶1.  This is an action request.  Please see paragraphs 6 and 
¶13. 
 
¶2.  Summary.  Surinamese Transportation officials met with 
DOT and DOS on July 8 to discuss Suriname Airways' planned 
flights to the United States.  During the meeting, the GOS 
had numerous questions about our bilateral air services 
agreements and Open Skies. Given the renewed interest on 
their side, Washington agencies request Post follow up with 
Surinamese officials to discuss a U.S.-Suriname Open Skies 
agreement.   End Summary. 
 
¶3.  During a July 8 visit to Washington, Minister Richel 
Apinsa and officials from Suriname's Ministry of 
Transportation met with U.S. Department of Transportation 
Deputy Assistant Secretary Susan McDermott and other DOT and 
State officials.  The purpose of the visit was to review the 
processes and procedures necessary for Suriname Airways to 
begin flights to the United States in August or September. 
Several statutory and regulatory requirements apply to 
foreign airlines interested in serving the United States, 
including economic authority approval from the U.S. 
Department of Transportation, Operating Specifications from 
the Federal Aviation Administration (FAA), and a security 
assessment by the Transportation Safety Administration (TSA) 
of the airport serving as the last point of departure to the 
United States.  Suriname Airways holds the necessary DOT 
approvals, and Suriname has a Category 1 IASA rating from the 
FAA.  Furthermore, the Surinamese officials characterized 
their work with the TSA as "almost complete." 
 
¶4. Director of Civil Aviation Vivian Hanenberg and Minister 
Apinsa had several questions pertaining to bilateral air 
services rights.  Hanenberg asked if Suriname Airways would 
be able to fly to the United States and points beyond, and he 
also asked about intermediate points.  Under Suriname 
Airways' economic authority, the airline may serve only Miami 
and New York.  We informed the delegation that if the United 
States and Suriname were to enter into an Open Skies 
agreement, there would be no limitations on the number of 
intermediate and beyond points.  Hanenberg asked about the 
procedural requirements for negotiating an Open Skies 
agreement.  We explained that the first step would be for GOS 
to review our model Open Skies text.  If GOS is satisfied 
with our text, then a protracted negotiation would be 
unlikely.  We also informed the Surinamese that, were we to 
reach agreement on a text, it could be applied on the basis 
of comity and reciprocity pending formal ratification by the 
GOS.  This would allow carriers of both sides to immediately 
benefit from the provisions in the agreement before it 
formally enters into force. 
 
¶5.  We further pointed out that in our experience, all our 
Open Skies partners --92 of them to date-- have benefited 
from the arrangement.  In addition to offering flexible route 
rights, an Open Skies agreement ensures a more streamlined 
DOT regulatory process and opportunities for carriers to 
enter into code-sharing arrangements.  Apinsa asked about 
cargo rights, and we informed her that cargo and charter 
operations are also included under Open Skies agreements.  In 
response to her question about USG discussions with CARICOM, 
we provided a summary of our previous negotiations with the 
regional body (Reftel C).  Since Suriname Airways plans to 
commence service to the United States via Aruba, the 
Surinamese officials appeared especially interested to know 
that Aruba (as well as Jamaica and the Netherlands Antilles 
in the region) negotiated Open Skies agreements with the 
United States without assistance or intervention from 
CARICOM. 
 
¶6.  During our July 8 meeting, Apinsa specifically asked us 
to provide more information, including our Open Skies model 
text.  Follow-up emails between DOT and Hanenberg indicate 
the Minister may soon set up a committee to review entering 
into an Open Skies agreement with the United States.  Given 
the Surinamese carrier's planned service to the United States 
and the renewed interest in Open Skies, Washington agencies 
request Post re-approach the Ministry of Transportation and 
deliver suggested talking points and related reference 
material to Minister Apinsa and to the Director of Civil 
Aviation, Vivian Hanenberg.  Post should request that 
officials review the model Open Skies text and provide 
questions and comments in writing as soon as possible. 
Opening a dialogue between the United States and individual 
states (not via CARICOM), initially by correspondence, will 
provide the basis to assess whether an agreement will be 
possible. 
 
OBJECTIVE 
--------- 
 
¶7.  The objective of this demarche is to determine host 
government receptivity to the liberalization of the aviation 
sector through an individual (non-CARICOM), bilateral Open 
Skies agreement. 
 
¶8.  Please note that the USG negotiating team would prefer 
first to receive written comments on the Open Skies text from 
the host government and, when possible, to negotiate via 
written correspondence.  If an agreement reasonably appears 
to be achievable, and "face-to-face" negotiations would 
facilitate conclusion of negotiations, we can arrange for a 
digital video conference (DVC), or for negotiations in 
Washington.  USG travel to the region is unlikely due to 
budget and logistical constraints. 
 
REPORTING DEADLINE AND POINT OF CONTACT 
--------------------------------------- 
 
¶9.  Embassy should report results of efforts by August 20. 
Please slug response for EEB/TRA/AN.  Post may also wish to 
e-mail the response to Viki Limaye-Davis at 
Limaye-DavisYV@state.gov, and Brian Hedberg at 
Brian.Hedberg@dot.gov. 
 
BACKGROUND 
---------- 
 
¶10.  It is U.S. policy to pursue Open Skies agreements with 
our aviation partners based on our model Open Skies text.  By 
liberalizing air transport between the United States and our 
partners through such agreements, the United States seeks to 
facilitate the growth of worldwide air services.  The United 
States is very interested in negotiating an Open Skies 
agreement with Suriname. 
 
¶11.  Liberal, market-oriented air transport agreements 
enhance aviation relations by allowing airlines to make 
commercial decisions with minimal government intervention. 
Liberalized agreements provide for open routes, capacity, 
frequencies, designations and pricing, as well as 
opportunities for cooperative marketing arrangements, 
including code-sharing.  We believe an Open Skies regime 
offers the best environment for developing markets to attract 
additional air services for the benefit of travelers, 
shippers, tourism, and the broader economy.  The United 
States has 92 Open Skies partners around the globe. 
 
¶12.  The United States, New Zealand, Singapore, Brunei, 
Chile, Samoa, and Tonga are parties to the Multilateral 
Agreement on the Liberalization of International Air 
Transportation (MALIAT).  Parties to the MALIAT enjoy the 
benefits of Open Skies with all the other parties without 
having to negotiate individual bilateral agreements.  The 
MALIAT is open for accession by any country that agrees to be 
bound by the terms of the MALIAT and by four key aviation 
security conventions: the Convention on Offenses and Certain 
Other Acts Committed on Board Aircraft, done at Tokyo 
September 14, 1963; the Convention for the Suppression of 
Unlawful Seizure of Aircraft, done at The Hague December 16, 
1970; the Convention for the Suppression of Unlawful Acts 
against the Safety of Civil Aviation, done at Montreal 
September 23, 1971; and the Protocol for the Suppression of 
Unlawful Acts of Violence at Airports Serving International 
Civil Aviation, done at Montreal February 24, 1988.  Although 
we encourage countries to accede to the MALIAT, a bilateral 
Open Skies agreement is often a more realistic objective. 
 
ACTION REQUEST 
-------------- 
 
¶13.  Post is requested to sound out decision-makers in the 
host government, especially Mr. Hanenberg, on Surinamese 
interest in concluding an Open Skies agreement.  In building 
support for Open Skies within country, Post may also wish to 
contact tourism, foreign affairs, and trade officials. 
Embassy may draw on talking points provided below, which may 
be left as a non-paper.  Embassy should provide government 
officials copies of the updated 2008 model Open Skies text 
and Open Skies Fact Sheet, available on the internet at 
http://www.state.gov/e/eeb/tra/c661.htm.  The MALIAT text is 
also available at the same internet address.  The Department 
(EEB/TRA/AN) can also forward the Open Skies model text and 
related fact sheets to the Embassy's civil aviation officer 
by unclassified e-mail.  Embassy should encourage officials 
to review the model texts and offer comments or questions for 
Embassy to transmit to Department.  Embassy is also requested 
to report its assessment of overall local interest in an Open 
Skies agreement.  Based on Embassy's report, Washington 
agencies will consider next steps. 
 
¶14.  Begin talking points. 
 
-- U.S. officials appreciated the opportunity to meet with 
GOS transport/aviation officials during their recent visit to 
Washington.  We were encouraged by the progress of the GOS to 
invigorate its transportation system. 
 
-- In particular, Washington officials appreciated the 
discussion concerning improving air services between our two 
countries. 
 
-- An Open Skies agreement would further our efforts to 
reinforce joint economic cooperation and strengthen bilateral 
ties. 
 
-- U.S. international aviation policy is based on enabling 
marketplace competition to expand worldwide air services 
through bilateral Open Skies agreements. 
 
-- The U.S. model Open Skies text encompasses both passenger 
and cargo service, as well as scheduled and charter 
operations. 
 
-- Our experience, as well as that of many other nations, 
demonstrates that the best way to develop aviation to its 
fullest potential is to allow operating decisions to be made 
in an open marketplace rather than by government regulators. 
 
-- We are confident that Suriname Airways could benefit from 
an Open Skies agreement. 
 
-- Open Skies agreements establish liberal ground rules 
designed to facilitate growth of an efficient, market-based 
international aviation system, with enhanced potential for 
increasing commercial and business exchanges, investment, 
exports, and tourism.  Growth in aviation also benefits the 
broader economy and promotes integration with the world 
economy. 
 
-- Open Skies agreements remove restrictions on routes, 
capacity, frequencies, designations, and pricing.  They also 
include liberal "doing-business" rights, provide a basis for 
cooperative marketing arrangements and give carriers the 
flexibility to respond to market conditions. 
 
-- An Open Skies agreement would enhance the ability of our 
countries' airlines to enter into cooperative marketing 
arrangements, including code-sharing with each other, with 
third-country airlines, and even with surface transportation 
providers. 
 
-- Efficient air transportation is a prerequisite for 
developing tourism, manufacturing sites, financial centers, 
and distribution hubs.  Daily international air service can 
add significantly to a locality's economy. 
 
-- International air links are as important for cargo as they 
are for passengers.  It is estimated that air carriers 
transport 2 percent of the world's trade by weight, but 40 
percent of the world's trade by value.  The message is clear: 
a nation must have efficient air links to develop its trade 
in high-value goods. 
 
-- Since 1992, the United States has concluded Open Skies 
agreements with countries at all levels of economic 
development in Europe, the Middle East, Africa, Asia, the 
Pacific, Latin America and the Caribbean.  The United States 
has ninety-two Open Skies partners. 
 
-- Our Open Skies partners in the Caribbean include Aruba, 
Jamaica, the Netherlands Antilles and the French Overseas 
Departments. 
 
-- We suggest that authorities review the model text and 
provide questions, comments, and areas of agreement for the 
Embassy to transmit to Washington.  This will open a dialogue 
between our governments and help to define the best way to 
move forward to negotiate an agreement. 
 
As appropriate: 
-- The United States, New Zealand, Singapore, Brunei, Chile, 
Samoa, and Tonga are parties to the Multilateral Agreement on 
the Liberalization of International Air Transportation.  The 
MALIAT is the first multilateral aviation agreement based on 
Open Skies principles.  Parties to the MALIAT enjoy the 
benefits of Open Skies with all the other parties without 
having to negotiate individual bilateral agreements.  It is 
open for accession by any country that agrees to be bound by 
four key aviation security conventions.  Should you consider 
the MALIAT more appropriate for your aviation regime than a 
bilateral Open Skies agreement with the United States, we 
invite you to become a party. 
 
End talking points. 
 
¶15.  Washington agencies appreciate Post's assistance. 
RICE