VZCZCXRO5554
PP RUEHTRO
DE RUEHC #4535/01 2742232
ZNR UUUUU ZZH
P 302227Z SEP 08
FM SECSTATE WASHDC
TO RUEHVEN/USMISSION USOSCE PRIORITY 4080
RUEHUNV/USMISSION UNVIE VIENNA PRIORITY 3886
RUCNDT/USMISSION USUN NEW YORK PRIORITY 3290
INFO RUEHBJ/AMEMBASSY BEIJING PRIORITY 3308
RUEHBS/AMEMBASSY BRUSSELS PRIORITY 1750
RUEHJA/AMEMBASSY JAKARTA PRIORITY 1241
RUEHLO/AMEMBASSY LONDON PRIORITY 9914
RUEHMO/AMEMBASSY MOSCOW PRIORITY 4859
RUEHOT/AMEMBASSY OTTAWA PRIORITY 2362
RUEHOU/AMEMBASSY OUAGADOUGOU PRIORITY 7750
RUEHZP/AMEMBASSY PANAMA PRIORITY 3302
RUEHFR/AMEMBASSY PARIS PRIORITY 1117
RUEHSA/AMEMBASSY PRETORIA PRIORITY 0993
RUEHRO/AMEMBASSY ROME PRIORITY 8042
RUEHSJ/AMEMBASSY SAN JOSE PRIORITY 9421
RUEHKO/AMEMBASSY TOKYO PRIORITY 6111
RUEHVB/AMEMBASSY ZAGREB PRIORITY 1641
RUEHTC/AMEMBASSY THE HAGUE PRIORITY 3390
RUEHTRO/AMEMBASSY TRIPOLI PRIORITY 3265
RUEHBS/USEU BRUSSELS PRIORITY
RUEHNO/USMISSION USNATO PRIORITY 9422

UNCLAS SECTION 01 OF 05 STATE 104535 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: AORC IAEA KPAO OSCE PREL PTER UNSC EUN
SUBJECT: MOVING IMPLEMENTATION FORWARD -- UNSCR 1540 -- 
VIENNA TRILATERAL COOPERATION 
 
REF: A. USOSCE 219 
     ¶B. UNVIE 158 
     ¶C. UNVIE 434 
 
SENSITIVE BUT UNCLASSIFIED ) PLEASE PROTECT ACCORDINGLY 
 
¶1.  (U) This is an action request for USOSCE and UNVIE, see 
paras 4 and 7 below. 
 
¶2.  (SBU) Summary.  In efforts to strengthen UNSCR 1540 
implementation capacity, USOSCE and UNVIE have raised 
understanding among OSCE, IAEA, and UNODC about existing U.S. 
programs that promote 1540 implementation and 
nonproliferation cooperation in general.  The reporting and 
outreach by posts have been successful in identifying several 
ways in which our bilateral assistance might be able to 
augment such areas as: UNODC nuclear terrorism legislative 
assistance, EU-sponsored UN 1540 workshops, OSCE efforts to 
develop wide-ranging 1540 best practices among all 56 States, 
and other capacity-building through existing institutional 
capacity.  As requested in Ref A, this cable outlines an 
approach for both the U.S. Mission to the Organization for 
Security and Cooperation in Europe (OSCE) and U.S. Mission to 
International Organizations in Vienna (UNVIE) to further 
nonproliferation efforts among the three Vienna-based 
organizations in a comprehensive manner as called for in 
United Nations Security Council Resolution 1810 regarding the 
role of regional and intergovernmental organizations.  End 
summary. 
 
¶3.  (SBU) Background for Post only.  Per refs B and C, 
Washington concurs that Vienna efforts to promote States, 
implementation of resolution 1540 can complement and multiply 
overall nonproliferation efforts ) leading by example with 
an organizational structure (particularly in the OSCE) that 
is largely homogenous in its support for resolution 1540.  A 
comprehensive geographic and regional approach can increase 
cooperation between the 1540 Committee and the OSCE, 
consistent with the OSCE Ministerial Statements addressing 
resolution 1540, as well as resolution 1810 that extended the 
work of the Committee established pursuant to resolution 
¶1540.  (Comment.  Resolution 1810 was co-sponsored by Russia, 
UK, France, and Croatia along with the United States and 
China.  End comment.) Washington views the synergy in Vienna 
essential to building on cooperation going forward in other 
regions and we expect to introduce a similar approach through 
such regional bodies as the ASEAN Regional Forum (ARF) and 
Organization of American States (OAS), and eventually into 
regions such as Africa and the Middle East.  Moreover, this 
approach complements European Union Stability Instrument 
funding that intends to focus on geographic areas outside 
Europe in 2009 and 2010 for possible centers of 
nonproliferation capacity-building.  In outlining this 
strategy, Post should consider as supportive partners the 
European Union as well as others who are currently on or 
recently served on the Security Council 1540 Committee (e.g., 
Germany, Denmark, Norway, Sweden, Slovakia, and Japan).  End 
background for Post only. 
 
OBJECTIVES 
 
¶4.  (SBU) Washington requests Post pursue the following 
objectives to ensure that REFTEL views from USOSCE and UNVIE 
are integrated into both the Permanent Council (PC) and the 
Forum for Security Cooperation (FSC) decisions for the OSCE 
Ministerial Council meeting in December.  (Note.  Post is 
USOSCE lead in cooperation with UNVIE.  Once the OSCE UNSCR 
 
STATE 00104535  002 OF 005 
 
 
1540 Strategy Paper is circulated in Vienna, Washington will 
forward a copy to USUN for parallel coordination with 1540 
Committee members who are also in the OSCE.  End note.) 
 
-- Post should circulate in the PC Security Committee the 
nonpaper in para 5 (OSCE UNSCR 1540 Strategy Paper) as the 
framework for the OSCE in cooperation with IAEA and UNODC to 
significantly incorporate the issue of capacity-building to 
enhance implementation of resolution 1540 into its own 
discussions and activities on a regular basis.  (Note.  Per 
Ref A, elements have been previously shared with UK and 
France, as well as OSCE Secretariat staff and the IAEA and 
UNODC. Washington will also provide a PowerPoint Presentation 
to aid in discussions as requested by Post, and to seek 
co-sponsors.  More detailed background on UNSCR 1540 can be 
found on the State Department website.  End note.) 
 
-- Post should discuss the paper in the PC Security Committee 
with the aim of gaining support for an OSCE Ministerial 
Decision that will further enhance OSCE pS implementation of 
UNSCR 1540 in 2009.  The points in the paper could serve as 
the basis for such a Decision. 
 
-- Regarding funding as noted in REFTEL, at this point we are 
only looking for staff support of one person ) the OSCE 
Secretariat expressed the need for additional resources ) 
which might be valid after the OSCE spends 2009 focusing on 
the three broad operative objectives in the OSCE Strategy 
Paper. 
 
-- Washington is willing to consider a secondment to the OSCE 
Action Against Terrorism Unit (ATU), but Post should inform 
the OSCE Secretariat and interested delegations that the 
secondment would likely be for the duration of resolution 
1810 which emphasizes regional cooperation and implementation 
through April 2011. 
 
-- In discussion in Washington, the ATU Head thinks France 
would be a useful country for the secondment position and the 
UK delegation offered to consider extra-budgetary funding. 
Both options should be explored by Post. 
 
¶5.  (U) Text of OSCE UNSCR 1540 Strategy to circulate as a 
food-for-thought at the next opportunity in the Permanent 
Council Security Committee.  Begin text: 
 
OSCE Strategy Paper 
 
Vienna Intergovernmental Organizations (IGO,s) should create 
a geographic center of excellence by leveraging institutional 
capacity already in place to further support for the full 
implementation of United Nations Security Council Resolution 
¶1540.  The 1540 Committee (hereafter the Committee) has 
stressed the importance of regional implementation of UNSCR 
1540 (2004) in resolutions 1673 (2006) and 1810 (2008) and 
welcomes the opportunity to strengthen its dialogue with the 
OSCE, UNODC, and IAEA. 
 
It is our view that the Vienna IGO,s efforts to promote 
States, implementation of resolution 1540 can complement and 
multiply overall efforts ) leading by example with an 
organizational structure in the OSCE that is largely 
homogenous in its support for resolution 1540.  A 
comprehensive geographic and regional approach can increase 
cooperation between the Committee, consistent with the OSCE 
Ministerial Statements already addressing resolution 1540. 
 
In accordance with the new mandate under Security Council 
resolution 1810 (2008), activities to facilitate the delivery 
of technical assistance to States that need it will represent 
a high priority for the Committee.  The OSCE in cooperation 
with IAEA and UNODC can significantly incorporate the issue 
 
STATE 00104535  003 OF 005 
 
 
of capacity-building to enhance implementation of resolution 
1540 into its own discussions and activities on a regular 
basis. 
 
For 2009 the OSCE participating States have three immediate 
areas that provide regional coherence toward implementation: 
 
¶1.  The Committee agreed in paragraph 4 of resolution 1810, 
to "encourage all States to prepare on a voluntary basis 
summary implementation plans, with the assistance of the 1540 
Committee as appropriate, mapping out their priorities and 
plans for implementing the key provisions of resolution 1540 
(2004), and to submit those plans to the 1540 Committee." 
The OSCE Ministerial Statements provide support for a follow 
up comprehensive information exchange in cooperation with 
other Vienna IGO,s as a next step. 
 
¶2.    Consistent with paragraph 5 of resolution 1810, which 
"urges States ... to inform the Committee as appropriate of 
areas in which they are able to provide assistance," the 
Committee would welcome any new information the OSCE 
participating States (as well as Partner States) might wish 
to provide on their technical assistance programs.  The 
Committee would be pleased to post such information in the 
technical assistance portion of its website 
(http://www.un.org/sc/1540/), which contains information 
States have supplied to the Committee concerning the 
technical assistance they can offer to promote implementation 
of resolution 1540.  The OSCE could also draw members, 
attention to the Committee's technical assistance template, 
which is also posted on the Committee's website. 
 
¶3.    Consistent with paragraph 2 of resolution 1810, which 
calls upon States to submit such reports, the Committee would 
be grateful if the OSCE could continue to assist the 
Committee's efforts to promote States, reporting, while at 
the same time focusing on ways to help promote States, 
implementation of resolution 1540. To promote implementation, 
the OSCE should consider shifting to a broader Vienna-based 
cross-dimensional strategy centered in the PC Security 
Committee which provides oversight to the Action Against 
Terrorism Unit (ATU) and Border Monitoring Group that 
complement the 1540 Committee's nonproliferation agenda as 
part of the United Nations Counter-Terrorism Strategy.  The 
PC Security Committee dialogue could include, inter alia: 
 
-- OSCE Field Operations which could be instrumental in 
assisting participating States in a number of practical, 
programmatic areas. 
 
-- The OSCE working together with partner organizations, such 
as IAEA, UNDOC, NATO, OPCW, INTERPOL, etc. 
 
-- Hosting regional 1540 implementation technical assistance 
and training workshops at the OSCE Academy in Central Asia. 
 
End text. 
 
¶6.  (U)  Following are talking points to be used as 
introductory background for discussion ) more detailed 
talking points will accompany para 4 PowerPoint presentation. 
 
 
-- The Bottom Line moving forward with UNSCR 1540: There are 
some tough tasks ahead which require decisive action by all 
States to assure that WMD proliferation can be prevented 
effectively. 
 
-- These tasks require substantive political decisions and 
the adoption - and enforcement - of appropriate effective 
laws and regulations changing or replacing existing rules and 
practices. 
 
STATE 00104535  004 OF 005 
 
 
 
-- They concern a variety of tasks, such as prohibiting the 
illegal manufacture, acquisition, possession, transport, 
transfer and use of items addressed in the 1540 Resolution, 
to take and enforce domestic controls to account and secure 
related items, to assure physical protection, border 
controls, effective national export and trans-shipment 
controls, etc. 
-- The Resolution is clear: Verbal support and encouragement 
to implement relevant multilateral treaties and arrangements 
is good - but not enough to assure effective implementation 
of the Resolution which requires immediate and persistent 
efforts of all States and of the international bodies 
concerned. 
-- If we are serious about combating non-proliferation we 
have to make best use of all available means -- including all 
relevant OSCE bodies in close cooperation with IAEA, UNODC, 
NATO, OPCW, Interpol, etc. )- to significantly shift the 
organizational structure of Vienna to incorporate this 21st 
century threat into its DAILY work. 
-- To promote implementation, the OSCE should consider 
shifting to a broader Vienna-based cross-dimensional strategy 
centered in the PC Security Committee which provides 
oversight to the Action Against Terrorism Unit (ATU) and 
Border Monitoring Group that complement the 1540 Committee's 
nonproliferation agenda as part of the United Nations 
Counter-Terrorism Strategy. 
 
If raised questions: 
 
-- Is there a further Role for the OSCE in implementing UNSCR 
1540 with IAEA and UNODC? 
-- Can the OSCE provide added value and thereby make a useful 
contribution to implementing UNSCR 1540? 
-- These are very pertinent question as duplication of 
nonproliferation efforts between the 1540 Committee of the 
Security Council and specialized multilateral arrangements 
which contribute to non-proliferation has to be avoided. 
-- The text contains the following relevant elements: 
-- The need to enhance coordination of efforts on national, 
subregional, regional and international levels  (number 10 of 
the preamble). 
-- The urgent need for all States to take additional 
effective measures to prevent the proliferation of WMDs 
(number 12 of the preamble). 
-- The invitation to States in a position to do so to offer 
assistance as appropriate in response to specific requests to 
the States lacking the legal and regulatory infrastructure, 
implementation experience and/or resources for fulfilling 
UNSCR 1540 provisions8 (Operative Paragraph (OP) 7 of the 
Resolution)). 
-- The &call upon all States to promote dialogue and 
cooperation on non-proliferation.8 (OP 9 of the Resolution). 
-- The &call upon all States to take cooperative action to 
prevent illicit trafficking in nuclear, chemical or 
biological weapons, their means of delivery, and related 
materials.8 (OP 10 of the Resolution). 
-- The Committee's report outlining efforts since 2006 was 
completed in July 2008 and notes: 
-- OSCE efforts to complement UN activities in this field are 
welcome. 
-- Institutional relationships are important - with the OSCE 
serving as a further model that could be followed by other - 
less active organizations. 
-- Drawing from the report of the 1540 Committee: 
-- Reporting by states, although a national responsibility, 
differs substantially and there is little expert level 
dialogue back to the Committee by any large regional grouping 
aside from political endorsements. 
-- The OSCE, through its focal points in the PC, FSC, and 
Secretariat, could inform the UN after an internal review on 
the offers and requests for assistance. 
 
STATE 00104535  005 OF 005 
 
 
-- As the Committee is not going to provide assistance 
directly - both a regional and bilateral basis is encouraged 
and this could be tied in with UNODC and IAEA. 
-- The Committee would welcome any information on 
1540-related training events or workshops that OSCE, IAEA, 
and UNODC members are organizing so we can be sure that the 
outreach events the Committee is planning with the UN Office 
of Disarmament Affairs do not fall at the same time and are 
otherwise well coordinated. 
 
¶7.  (U) Reporting deadline.  Post is requested to respond NLT 
October 15 -- to include its views on whether the OSCE UNSCR 
1540 Strategy paper can be used as the basis for a 
Ministerial Decision that increases the Permanent Council 
Security Committee activities to focus on nonproliferation 
vis--vis UNSCR 1540 in 2009. 
 
POINT OF CONTACT 
 
¶8.  (U) Please contact U.S. 1540 Coordinator Tom Wuchte at 
(202) 736-4275 for any further background. 
RICE