VZCZCXRO9621
PP RUEHSK
DE RUEHC #4933/01 0170305
ZNR UUUUU ZZH
P 170256Z JAN 09
FM SECSTATE WASHDC
TO RUEHVEN/USMISSION USOSCE PRIORITY 7177
INFO RUEKJCS/SECDEF WASHINGTON DC PRIORITY
RUEHNO/USMISSION USNATO PRIORITY 3505
RHMFISS/JOINT STAFF WASHINGTON DC PRIORITY
RUEAIIA/CIA WASHINGTON DC PRIORITY 2663
CONVENTIONAL ARMED FORCES IN EUROPE COLLECTIVE PRIORITY

UNCLAS SECTION 01 OF 03 STATE 004933 
 
SIPDIS,  SENSITIVE 
 
E.O. 12958: N/A 
TAGS: OSCE PARM PREL KCFE
SUBJECT: CFE: JCG OPENING OF SESSION GUIDANCE AND 
STATEMENT FOR JANUARY 20, 2009 
 
REF: (A) 08 USOSCE 315: CFE/JCG: END-OF-ROUND, FALL 2008 
(B) 08 USOSCE 321: CORRECTED COPY: CFE/CSBM: ANNUAL 
EXCHANGE OF INFORMATION FOR 2009 (C) 08 STATE 6076: CFE: 
JCG GUIDANCE - JANUARY 2008 (D) 08 STATE 12563: CFE/JCG: 
CONTRIBUTING TO NATO'S CFE GAME PLAN 
 
¶1. (SBU) As the Winter 2009 Joint Consultative Group 
(JCG) session opens, Russia's ongoing CFE "suspension," 
which began on December 12, 2007, will continue to 
dominate discussion.  We also expect calls by Russia to 
use the JCG as a primary venue to negotiate at least 
some aspects of the CFE impasse, despite the fact that 
Moscow has not yet taken a decision to work seriously 
toward resolution of key issues.  We anticipate that the 
U.S. will continue to coordinate NATO policy on CFE at 
the HLTF and to engage Russia bilaterally on the 
Parallel Actions Package.  The JCG should continue to 
serve as the key venue for addressing CFE compliance and 
implementation issues, including those compliance 
failures associated with Russia's "suspension," as well 
as compliance issues associated with other CFE States 
Parties (as detailed in the Condition 5 Report.)  We do 
not regard the JCG as an appropriate venue for solving 
the political issues at the core of the Russian 
suspension, or working on the Parallel Actions Package. 
Nor do we have confidence that the Russian JCG 
representative is or would be empowered to manage these 
hard issues.  Throughout the session, the U.S. 
Delegation in Vienna should continue to follow standing 
guidance (reftels C and D) and respond in accordance 
with U.S. policy as required to play down any Russian 
rhetoric in the JCG or other Vienna fora.  In doing so, 
Delegation should seek to: 
 
-- actively raise (in the JCG or bilaterally as 
appropriate per ref C) and report on all instances of 
noncompliance with CFE Treaty obligations by Russia and 
other States Parties (i.e. Azerbaijan with its 
increasing overages in holdings, despite previous 
assurances that older equipment would be drawn down once 
modernized equipment was in place and secure.); 
 
-- emphasize the benefits of the CFE regime and the 
importance of ALL States Parties implementing the CFE 
Treaty fully; 
 
-- stress the continued interest of the U.S. and its 
Allies in creating the conditions that will result in 
the ratification of the adapted CFE Treaty; and 
 
-- resist unhelpful efforts by Russia and possibly 
others to use the JCG to discuss and/or negotiate 
elements of the Parallel Actions Package, thereby 
complicating efforts to resolve the CFE impasse. 
 
¶2. (SBU) The following statement is provided for 
delivery at the JCG Opening of Session Plenary on 20 
January 2009.  U.S. Representative may provide advance 
copies to NATO Allies in the JCG-T and to others as 
appropriate. 
 
Begin Text ----------- 
 
Mr. Chairman, 
 
As we embark on a new year, the United States would like 
to express our continued commitment to the Treaty on 
Conventional Armed Forces in Europe (CFE) and our 
resolve to work cooperatively to create the conditions 
that would allow the Adapted CFE Treaty to enter into 
force.  We hope that all CFE States Parties share both 
this commitment and resolve, especially at a time when 
the CFE Treaty is at risk. 
 
Russia's unilateral "suspension" of its implementation 
of CFE Treaty obligations as of December 2007, for which 
neither the CFE Treaty nor customary international law 
provides a basis, together with its military actions in 
Georgia, have raised very serious concerns about 
Moscow's commitment to cooperative approaches to 
security and to the CFE regime.  Indeed, Russia's 
deployment of forces in Abkhazia and South Ossetia and 
recognition of these regions of Georgia as independent 
 
STATE 00004933  002 OF 003 
 
 
countries are inconsistent with core CFE principles, and 
only serve to complicate prospects for progress on 
fulfillment of Russia's Istanbul commitments with 
respect to Georgia as well as CFE more broadly. 
 
Russia's actions damage both the Treaty and the near- 
term prospects for ratification of the Adapted CFE 
Treaty by all 30 States Parties, and also have the 
potential to undermine the essential trust and security 
the CFE regime has provided for 15 years.  The 
limitations and the transparency provided by the CFE 
regime are not available through other instruments. 
That is a key reason why the CFE Treaty remains of such 
significant value to the security of Europe. 
 
 
Mr. Chairman, 
 
We need to work together to preserve the benefits of the 
CFE regime, which has important security benefits for 
all of Europe. 
 
Along with our NATO Allies, the United States has 
continued to implement the Treaty, despite Russia's 
unilateral actions and inflexibility in addressing the 
concerns of all CFE States Parties.  We have done so to 
demonstrate our commitment to the fulfillment of 
international agreements as well as the importance of 
cooperative security and the confidence that stems from 
military transparency and the resulting predictability. 
 
Efforts are continuing outside this body on a way 
forward that balances the concerns of all CFE States 
Parties, preserves the principles of the Treaty, and 
creates the conditions for entry into force of the 
Adapted CFE Treaty.  Russia's flexibility on key issues 
and willingness to engage constructively, rather than 
act unilaterally, will be critical for resolving the CFE 
impasse. 
 
In the meantime, it is important for the JCG to make its 
contribution to restoring vitality to the CFE regime by 
continuing to facilitate implementation of Treaty 
obligations by all States Parties and to address CFE 
compliance issues.  The Russian Federation's continuing 
failure to participate in CFE data exchanges and the 
inspection regime obviously demands our most immediate 
attention. 
 
The United States notes Russia's failure to participate 
in the Annual Exchange of CFE Information that took 
place on December 15, 2008 and its failure to provide 
its annual data valid as of January 1, 2009.  This is in 
addition to Russia's failure at the previous data 
exchange to provide its annual data valid as of January 
1, 2008; failure to provide its supplemental flank data 
valid as of July 1, 2008; failure to provide required 
quarterly additional information on Kushchevskaya in 
2008; failure to provide required notifications to 
update annual data; and failure to participate in the 
CFE inspection regime since December 12, 2007, rejecting 
over two dozen requests.  As recently as January 8, 
2009, the Russian Federation refused yet another request 
by the United States to conduct a CFE inspection. 
 
The Russian Federation's single page of aggregated 
information is not a substitute for the highly detailed 
and comprehensive CFE data exchanged under the Treaty's 
provisions.  As the state with the largest armed forces 
and most TLE stationed in Europe, Russia's failure to 
provide the detailed annual information and 
notifications required by the CFE Treaty degrades the 
effectiveness of this key arms control treaty throughout 
the Area of Application. 
 
 
Mr. Chairman, 
 
The United States of America calls on the Russian 
Federation to meet its Treaty obligations fully. 
 
As we have repeatedly stated, the United States firmly 
believes in the principles that bring us to this forum, 
and in the continuing value of the CFE Treaty.  The 
future of CFE depends on the compliance and cooperation 
of all of its States Parties.  We call for renewed 
commitment and resolve, and we call for full compliance 
with the obligations of the CFE Treaty in order to focus 
 
STATE 00004933  003 OF 003 
 
 
our efforts in the JCG productively during 2009. 
 
Thank you, Mr. Chairman. 
 
We ask that this statement be appended to the Journal of 
the Day. 
 
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RICE