VZCZCXRO3953
PP RUEHSK
DE RUEHVEN #0010/01 0231734
ZNR UUUUU ZZH
P 231734Z JAN 09
FM USMISSION USOSCE
TO RUEHC/SECSTATE WASHDC PRIORITY 6162
INFO RUCNCFE/CONVENTIONAL ARMED FORCES IN EUROPE
RUEAIIA/CIA WASHDC
RUEKJCS/DIA WASHDC
RUEKJCS/SECDEF WASHDC
RUEASWA/DTRA ALEX WASHINGTON DC//OSAE
RUESDT/DTRA-OSES DARMSTADT GE
RHMFISS/CDR USEUCOM VAIHINGEN GE
RUEKJCS/JOINT STAFF WASHDC//J5-DDPMA-IN/CAC/DDPMA-E//
RUEAHQA/HQ USAF WASHINGTON DC//XONP//

UNCLAS SECTION 01 OF 03 USOSCE 000010 
 
SENSITIVE 
SIPDIS 
 
STATE FOR VCI/CCA, EUR/RPM 
NSC FOR MIKE HAYES 
JCS FOR J5 NORWOOD 
OSD FOR ISA (PERENYI) 
 
E.O. 12958: N/A 
TAGS: KCFE OSCE PARM PREL
SUBJECT: CFE/JCG: 20 JANUARY PLENARY--RESTATING POSITIONS 
 
REF: STATE 004933 
 
Sensitive but Unclassified; please protect accordingly.  Not 
for Internet. 
 
¶1.  (SBU) Summary:  The Joint Consultative Group convened its 
opening plenary of 2009 on 20 January.  In response to the 
U.S. opening statement, Russia objected strenuously to any 
wrong-doing on its part and tried to place all responsibility 
for a way forward on CFE at our doorstep.  Russia indignantly 
insisted it would not "fragment" the parallel actions package 
by ending its "suspension."  It also called again for 
accelerating the pace of negotiations by meeting more often, 
supported by dealing with some issues in Vienna.  Germany 
offered a lengthy statement taking stock of finding a way 
forward.  Italy and the U.S. called out Russia on CFE 
inspection refusals and were supported by a number of Allies. 
 
 
¶2. (SBU) As is an annual rite, several Allies made brief 
statements preserving their positions on disputes in the 
context of the December 2008 data exchange:  Spain and the UK 
over Gibraltar; and Turkey and Greece over certain islands. 
Also, Azerbaijan, Armenia and Russia went three rounds with 
dueling accusations around Azeri concerns about Russian CFE 
Treaty-limited equipment transshipped through Armenia into 
Nagorno-Karabakh.   Meanwhile, at the first OSCE Permanent 
Council meeting on January 15, several Allies had expressed 
support for the CFE Treaty and the parallel action plan as a 
way out of the impasse, calling on Russia to end its 
"suspension."  All are patiently awaiting next steps from the 
incoming U.S. team.  End Summary. 
 
2008 -- "lost year..." 
----------------- 
 
¶3.  (SBU) At the 20 January plenary meeting of the Joint 
Consultative Group (JCG) 2009 winter session, the U.S. 
(Neighbour) kicked off the meeting  with the presentation of 
the U.S. opening of round statement (text reftel, also see 
Journal).  Allies had welcomed receipt of courtesy copies of 
the U.S. statement at the JCG-T meeting the day prior. 
Russia (Ulyanov) responded swiftly and predictably, rejecting 
all U.S. accusations of non-compliance addressed to Russia in 
the U.S. statement.  Ulyanov claimed that all parties 
understand the reasons for the crisis: Washington,s alleged 
refusal to implement the Istanbul Commitments, failure to 
ratify the a/CFE, and the fact that the U.S. coerced its 
Allies to support this approach.  Further, Russia,s 
so-called noncompliance with the Treaty is actually required 
by Russian legislation, and Russia was forced to take this 
step.  There will be no inspections in Russia or Russian data 
provided until a solution is found to this problem.  Russia 
indignantly insisted it would not "break apart" the parallel 
actions package by ending its "suspension."  Ulyanov also 
called again for accelerating the pace of bilateral talks on 
the parallel package by meeting more often supported by 
negotiating some issues in Vienna. 
 
¶4.  (SBU) Ulyanov continued that the U.S. seems to be 
committed to the CFE Treaty based on its words, a positive 
signal.  Russia intends to cooperate actively to restore 
vitality to the Treaty.  It is premature to bury the Treaty. 
There is serious and active work to do - it is not sufficient 
to imitate such efforts with words only.  2008 was lost to 
this cause thanks to the U.S.  Russia calls on all, 
especially the U.S. partner, to engage in real work.  Russia 
hopes the passive nature of 2008 dialogue is overcome - if 
all are successful, it could lead to restoring the full 
Treaty. 
 
¶5. (SBU) Germany (Richter) began its statement by 
highlighting the first meeting of 2009 as an opportunity to 
take stock and mull over the key elements of:  cooperation, 
predictability, confidence and stability.  We cannot overlook 
the security concerns of others, we need to take into account 
the practical concerns.  There is a need for discretion on 
when to hold back, avoid new arms races, especially close to 
 
USOSCE 00000010  002 OF 003 
 
 
borders.  Only comprehensive cooperation between states can 
cope with massive changes since the end of the Cold War, 
including the enlargement of NATO.  At the beginning of 2009 
- reality is sobering given the positions just heard from the 
U.S. and Russia.  Ten years after the significant signature 
of the a/CFE it is still not in force. 
 
¶6. (SBU) Germany is concerned about the ongoing impasse and 
crisis in the JCG, and agreed with Russia that 2008 was a 
"lost" year.  Germany acknowledges the need for a new 
beginning in arms control to counter future erosion of 
European security architecture.  It will play its part by 
hosting high-ranking experts in early summer per Foreign 
Minister Steinmeier,s pending invitation.   Germany believes 
events in Georgia last year showed us that conflicts with 
conventional equipment are not a thing of the past.  We need 
to build on the agreements we have.  2009 could be a historic 
year of decisions.  Conventional arms control needs the 
priority it deserves.  Without the Steinmeier meeting, there 
is a risk the crisis will be ongoing.  Germany will try to 
come up with something constructive on the basis of the 
parallel action package.  Germany also hopes the JCG can play 
a role in such dialogue.  (See Journal) 
 
Compliance:  2009 Inspection refusals begin 
---------------------- 
 
¶7. (SBU) Italy announced that its notified CFE inspection in 
Russia on 13 January was refused by Russia on 7 January. 
Italy remains convinced of the fundamental importance of CFE, 
and urged Russia to accept inspections in the spirit of 
cooperation.  (See Journal) The U.S. supported Italy,s 
announcement, and followed with a similar statement of our 
own concerning Russia,s refusal on 8 January of our 
inspection planned for 12 January.  (See Journal)  Romania 
led a chorus of Allies (Turkey, UK, France, Netherlands, and 
Portugal) in support of the Italian and U.S. statements, 
expressing concern with Russia,s continued non-compliance 
with the Treaty. 
 
¶8. (SBU) Ulyanov disingenuously admitted having difficulty in 
working with NATO colleagues on this and a whole host of 
other issues.  If NATO states endorse the parallel actions 
package, then object to refused inspections, that would not 
be in line with reality.  How can NATO states insist that 
Russia accept inspections when that is not consistent with 
the parallel actions package?  Russia understands that it 
should resume receiving inspections only after the package 
has been mutually agreed.  NATO should work out a clear 
position and stick with it. 
 
¶9. (SBU) The UK (Gare) and U.S. (Neighbour) swiftly countered 
that reaching agreement on the package is certainly not a 
precondition to Russia,s receiving inspections.  Further, if 
Russia returned to compliance it would greatly help on many 
issues.   Neighbour added that Russia had exacerbated the 
impasse though its unilateral "suspension," a step which made 
everything harder and had wide-ranging negative 
ramifications. 
 
¶10.  (SBU) Seeking the last word, Ulyanov again said Russia 
is against any attempts to "fragment" the package.  There are 
no grounds for Russia to resume inspections since none of the 
reasons that caused its suspension in the first place have 
been addressed yet.  The only path to resumption runs through 
dialogue and willingness to compromise.  Russia understands 
if partners are not yet ready.  Russia will wait - when the 
time is right we will begin the negotiating process.  Russia 
will be gratified when the U.S. grasps the fact that it all 
hinges on U.S. readiness to engage. 
 
¶11. (SBU) Comment:  The Russian rhetoric at this opening 
meeting was familiar, and there were no new substantive 
elements raised.  Russia continues to place all 
responsibility for a way forward at our doorstep.  At the 
January 19 JCG-T, USDel had briefed Allies verbally on the 
results of the December A/S Fried and Russia MFA Antonov 
meeting, noting further discussion was expected in January on 
 
USOSCE 00000010  003 OF 003 
 
 
when the next bilateral would take place.  Allied support for 
active engagement on the basis of the parallel actions 
package remains high, and continued on the eve of the new 
Administration.  Clearly, all are patiently awaiting next 
steps from the incoming team.  End Comment. 
 
Proverbial Data Exchange Statements 
----------------------- 
 
¶12. (SBU) Spain and the UK exchanged statements, as has been 
done in previous years, regarding information the UK reports 
on its equipment located in Gibraltar.  Spain emphasized that 
it has not altered its position since 1992 on the status of 
the dispute over control of the territory.  The UK recalled 
that neither had its position changed as previously noted, 
and that information on its forces in Gibraltar was submitted 
per CFE Treaty data exchange obligations.  (see Journal for 
both statements). 
 
¶13. (SBU) Turkey also made a statement regarding the practice 
of Greece, since the signing of the Treaty, to include 
information in its data exchange for its military forces 
present on certain islands.  Turkey considers this a breach 
of Greece,s obligation to demilitarize such islands. 
Implementation of CFE data exchange requirements does not 
prejudice the obligations of other agreements according to 
the a/CFE Treaty signed on 15 November 1999.  (See Journal) 
 
¶14. (SBU) Greece replied by saying the Turkish statement 
introduces again a well known issue that has no basis in 
international law.  The Turkish comments have no relevance to 
present discussion.  Greece has repeatedly replied to the 
Turkish statement previously in the JCG and other places. 
Greece implements all its obligations and encourages all 
others to do the same.  (See Journal) 
 
Azeri-Armenia-Russia round robin 
-------------------- 
 
¶15. (SBU) Azerbaijan made a lengthy statement regarding a 
chart disseminated through the media on a large number of 
weapons and ammunition shipped by Russia through Armenia into 
N-K.  Azerbaijan distributed an unclassified document to OSCE 
delegations describing the issue and with the chart in 
English and Russian (see SEC.DEL/14/09 and 14/09/Add 1 of 16 
January).  In this JCG meeting, Azerbaijan focused its 
remarks on the numbers of CFE Treaty-limited types of 
equipment with respect to CFE data exchange information 
provided in December 2008, including battle tanks, armored 
combat vehicles (ACVs), and artillery over 100 mm. 
 
¶16. (SBU) Armenia disputed the authenticity of the document 
in question and denied any wrong-doing claiming this was yet 
another propaganda stunt by Armenia to unsettle the Minsk 
Group peace process.  Russia also challenged the validity of 
the document and claimed no wrong-doing.  (see Journal for 
Azeri and Armenian statements).  Septel will report fuller 
details on this exchange. 
SCOTT