VZCZCXRO1373
OO RUEHSK
DE RUEHC #3053/01 1182257
ZNR UUUUU ZZH
O P 282238Z APR 09
FM SECSTATE WASHDC
TO RUEHNO/USMISSION USNATO IMMEDIATE 7178
INFO CONVENTIONAL ARMED FORCES IN EUROPE COLLECTIVE PRIORITY
RUEKJCS/SECDEF WASHINGTON DC PRIORITY
RHMFISS/JOINT STAFF WASHINGTON DC PRIORITY
RUEAIIA/CIA WASHINGTON DC PRIORITY 6493

UNCLAS SECTION 01 OF 02 STATE 043053 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: KCFE PARM PREL NATO
SUBJECT: HLTF: SHARING RUSSIAN PAPER ON CFE 
 
¶1. (U)  This is an action cable. 
 
¶2.  (SBU)  Mission is requested ask the IS to deliver to 
delegations promptly on Thursday, April 30, a copy of the 
paper contained in paper 3 below along with the following 
explanatory remarks : 
 
-- Following up on discussions during the April 28 HLTF 
meeting, we would like to provide a copy of the translation 
of the paper provided by Russian Security and Disarmament 
Director Antonov on April 24 to Assistant Secretary 
Gottemoeller. 
 
-- We look forward to working with Allies to develop a 
coordinated response and believe the HLTF "away day" at the 
end of May will provide an excellent opportunity to discuss 
Russia's position and the non-paper in detail. 
 
¶3.  (U)  Begin translation of Russian paper (note internal 
numbering): 
 
Restoration of the Viability of the CFE Treaty:  A Way 
Forward (Aide-Memoire) 
 
The Russian-U.S. draft of the "package solution," on which 
Russia and the United States have been working for over a 
year, bringing in their proposals on ways to resolve existing 
problems, could become the basis for a comprehensive document 
on restoring the viability of the control regime for 
conventional weapons in Europe. For this purpose, however, it 
needs a thorough and thoughtful revision. 
 
The main flaw of the draft as it now stands is that contrary 
to the concept of "parallel actions" on which it is based, it 
provides for specific Russian actions in exchange for rather 
vague promises on the part of NATO, whose fulfillment is not 
at all guaranteed. 
 
It is necessary to ensure the balanced nature of the draft, 
which should provide for "parallel" or rather, counter 
actions by the interested parties. Absolutely every aspect 
that causes or may cause disagreements must be resolved 
properly, not in the indefinite future, but directly within 
the framework of the "package," and in such a way as to 
preclude the possibility of diverse interpretations and the 
breakdown of the agreements that have been reached. We are 
certain that all States Parties to the CFE Treaty are 
interested in reaching an agreement precisely on such a clear 
and explicit document, which will make it possible to 
overcome existing differences and ensure the long-term and 
effective functioning of the treaty regime in the interest of 
all States Parties. 
 
Specifically, the following things are required in order to 
achieve this goal. 
¶1. The most reliable guarantees possible for ratification of 
the Agreement on Adaptation within the agreed time frame, 
including the submission of the instruments of ratification 
to the depositary. 
¶2. Inasmuch as ratification is within the purview of the 
parliaments, and the executive authorities cannot guarantee 
it, we ought to make clear provision for temporary 
application of the adapted CFE Treaty. Let us remind you that 
the Russian approach provides for a two-stage scenario: 
during the first six months the States Parties would be 
guided by the political obligation to act in accordance with 
the objective and goals of the adapted CFE Treaty, complying 
with the ceilings and then, unless the Agreement on 
Adaptation has entered into force by that time, its temporary 
application would begin. 
¶3. A sine qua non for reaching a "package" agreement is 
abolition of discriminatory territorial subceilings for the 
Russian Federation, which are totally unjustified when a 
number of countries in the flank region are joining NATO, and 
which are hindering the fight against terrorism. If any of 
our partners feels a need for additional confidence-building 
measures (reciprocal, of course) in the context of abolishing 
subceilings, the Russian side is willing to carefully study 
appropriate proposals. 
¶4.  Agreement must be reached on reduced levels of armaments 
for the NATO member states; such levels would enter into 
force on the date on which the temporary application of the 
adapted CFE Treaty begins. Relevant indices must become an 
annex to the "package." 
 
STATE 00043053  002 OF 002 
 
 
¶5. It is also imperative that the specific conditions for the 
accession of new NATO members to the CFE Treaty become an 
annex to the "package solution." 
¶6. There is no need to postpone agreement on a definition of 
"existing combat forces." It must also be appended to the 
draft. 
¶7. The Russian side deems it essential within the framework 
of the "package" to decide that immediately after the entry 
into force of the adapted CFE Treaty the States Parties will 
begin talks on its further updating. This decision could also 
contain a sample list of issues that they would like to 
consider at those talks. 
¶8. It would be necessary as early as this stage to agree on 
and append to the "package" the draft of a decision approving 
and supporting the continuation of the current peacekeeping 
operation under the Russian-Moldovan Agreement of 1992. After 
the "package" is agreed upon, the draft of this decision 
would be submitted by the CFE Treaty States Parties for 
approval by the Permanent Council of the OSCE. 
¶9. In regard to regional aspects, the Russian side is 
prepared within the framework of the "package," provided that 
it be made truly balanced, to consider some 
transparency-related issues. This pertains both to Moldova 
and to the situation in the Transcaucasus, taking into 
account the actual situation in the respective regions. 
¶10. The draft "package solution" revised with consideration 
of the foregoing could be approved at the new extraordinary 
conference of the CFE Treaty States Parties in the form of 
its final document. 
¶11. The Russian side will put the CFE Treaty back in effect 
upon the entry into force of the Agreement on Adaptation of 
the CFE or at the beginning of its temporary application as 
stipulated in the "package solution." After agreement is 
reached on the "package solution" and taking into account its 
content, the Russian side would explore the possibility of 
implementing on a bilateral basis, as a goodwill gesture, 
reciprocal transparency measures in the CFE area of 
application during the period preceding the start of 
temporary application/entry into force of the Agreement on 
Adaptation. 
¶12. In view of the considerable amount of work ahead of us, 
the Russian side reaffirms its willingness to step up efforts 
to revise the draft "package solution." It is necessary to 
continue the Russia-U.S. dialogue on the level of federal 
government representatives, and to bolster it with daily work 
on the specific content of the "package" at the level of the 
Russian and U.S. delegations in Vienna. The Russian side is 
also willing to become actively involved in bringing other 
States Parties into this dialogue, including in the JCG 
format. 
 
End translation of Russian paper 
CLINTON