VZCZCXRO4059
OO RUEHTRO
DE RUEHC #6723/01 2032314
ZNR UUUUU ZZH
O P 222257Z JUL 09
FM SECSTATE WASHDC
TO RUEHBJ/AMEMBASSY BEIJING IMMEDIATE 9340
RUEHMO/AMEMBASSY MOSCOW IMMEDIATE 2121
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UNCLAS SECTION 01 OF 03 STATE 076723 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PARM PREL AORC KPAO PTER UNSC RU CM
SUBJECT: DEMARCHE TO RUSSIA -- COMPREHENSIVE REVIEW 
PARTICIPATION 
 
REF: A. STATE 75607 
     ¶B. IGO LIST 
 
SENSITIVE BUT UNCLASSIFIED -- PLEASE PROTECT ACCORDINGLY 
 
¶1.  (U) This is an action cable for Moscow and Beijing. See 
paras 5 and 6 below for Moscow and para 7 for Beijing. 
 
¶2.  (SBU) Summary/Action Request:  Russia's UN delegation has 
been resisting efforts by USUN and friendly delegations to 
include the G8 Global Partnership, Australia Group and 
Organization Internationale de la Francophonie on the list of 
international organizations 
(IGOs) invited to the 1540 Committee's Comprehensive Review 
(scheduled for September 30 - October 2).  Russia's 
opposition is joined to a lesser extent by China regarding 
participation of the Missile Technology Control Regime 
(MTCR).  USUN has discussed at senior levels and has informed 
interested delegations of our interest in approaching Moscow. 
 The purpose of the demarche is to welcome the broadest 
participation and note to Russia that 
rather than establishing criteria for each and every 
organization, we have consistently applied a view that "all 
are welcome" to support the broad obligations of United 
Nations Security Council Resolution 1540 (UNSCR 1540). 
Consultations in New York with France, Austria, Australia, 
UK, Italy, and Mexico, per Ref A, resulted in the 
recommendation that each country conduct its own demarche to 
Russia separately.  More broadly, we want to gain Russian 
support for fall discussions that demonstrate our partnership 
on this issue at the highest levels.  (Note.  The full IGO 
list will be sent SEPTEL.  Both Austria and United States 
recommended several additional groups which did not receive 
objection and the unresolved areas are all marked with an 
asterisk on the IGO list with which USUN is already familiar. 
 End note.)  End summary. 
 
------------------------------ 
OBJECTIVES FOR ENGAGING RUSSIA 
------------------------------ 
 
¶3.  (SBU) Washington requests Embassy Moscow to deliver a 
demarche to Russia on the Comprehensive Review and to inform 
counterpart Embassies representing France, Austria, 
Australia, UK, Italy, and Mexico that we are doing so as 
coordinated in New York.  The objectives of this demarche are 
to: 
 
-- Express our disagreement with Russia's position related to 
the remaining 3 IGOs, and its desire to revisit a past 
decision regarding IGO participation. 
 
-- Reiterate our commitment to secure the broadest 
participation in the Comprehensive Review, as well as 
participation in implementation of UNSCR 1540. 
 
-- Indicate to Russia that we do not support establishing a 
vetting process for IGOs and regional organizations that may 
be interested in supporting UNSCR 1540. 
 
-- Reiterate our commitment to gaining Russian cooperation 
and demonstrate our partnership on this issue at the highest 
levels. 
 
¶4.  (U) Reporting deadline.  Moscow is requested to deliver 
the demarche by July 24 and report results NLT July 27, 2009. 
 
¶5.  (U) Embassy Moscow may draw from the below points, the 
 
STATE 00076723  002 OF 003 
 
 
SEPTEL IGO list, and non-paper text in para 6 to appropriate 
host government officials.  Post may leave the non-paper 
behind with host government officials. (Note: USUN was 
advised by the Russian UN mission that delivery of this 
demarche at the level of Anatoly Antonov -- Director of the 
Russian MFA Department of Security and Disarmament (DVBR) 
and/or Sergey Ryabkov -- Deputy Foreign Minister, would be 
the most effective approach.  End Note.) 
 
Begin points. 
 
-- The United States appreciates U.S.-Russia cooperation on 
nonproliferation and efforts to prevent the spread of WMD to 
non-state actors through implementation of UNSCR 1540, as 
reinforced by joint statements by Presidents Obama and 
Medvedev on both April 1 and July 6. 
 
-- We are committed to supporting the participation of the 
remaining three intergovernmental organizations in the 1540 
Comprehensive Review ) with their inclusion, we are ready to 
finalize this list. 
 
-- The 1540 Committee has engaged with regional and 
intergovernmental organizations worldwide throughout the past 
five years on a variety of issues relating to their 
implementation of resolution 1540. 
 
-- On December 17, 2007, the Committee agreed to an original 
list that included the Australia Group as well as 
Organisation Internationale de la Francophonie. 
 
-- More broadly, the addition of the G8 Global Partnership is 
consistent with our ongoing G8 Summit agreements. 
 
-- It would be an unhelpful precedent to revisit previous 
consensus agreements in the Committee, or to weaken the 
Committee's agreement to work with other organizations as 
broadly as possible. 
 
-- We seek to be inclusive.  All are welcome to contribute in 
an open and 
transparent process; this will serve the Committee well in 
the future.  Establishing criteria to determine which 
regional or intergovernmental organizations are eligible 
to participate will ultimately lead to a less transparent and 
less inclusive process. 
 
¶6.  (U) Begin non-paper: 
 
The results of outreach and initiatives since the adoption of 
UNSCR 1540 have demonstrated international commitment to the 
non-proliferation goals of the resolution, and we 
are committed to developing the broadest ideas for the 
Comprehensive Review.  We aim to build capacity and encourage 
further implementation of resolution 1540 while 
recognizing a "one size fits all" approach is not suitable 
for the various requirements unique to each state.  We 
appreciate Russia's commitment to working "together to 
strengthen the ability of other nations to carry out their 
weapons of mass destruction non-proliferation obligations 
under UNSCR 1540," as noted in President Medvedev,s and 
President Obama,s joint statement of July 6. 
 
We hope we can develop a review process that will better 
equip the Committee to pursue practical, concrete measures to 
enhance Member States' ability to implement the resolution, 
while recognizing that the pace of implementation will 
require a longer strategic timeline 
than originally envisioned following adoption of UNSCR 1540 
in 2004.  An effective review, approximately five years after 
adoption of the resolution should recognize that both the UN 
Security Council and the many regional, intergovernmental, 
and nongovernmental organizations working to promote 
 
STATE 00076723  003 OF 003 
 
 
implementation of resolution 1540 need a longer timeframe in 
which to do so.  The greater the involvement of regional and 
intergovernmental organizations, and the entities that 
complement their activities, the more the international 
community will be able to build even greater nonproliferation 
capacity to implement UNSCR 1540 and reap the resolution's 
benefits. 
 
It has always been our intention to conduct an open review in 
an effort to be transparent.  The Committee has engaged with 
regional and intergovernmental organizations 
worldwide throughout the past five years on a variety of 
issues relating to implementation of UNSCR 1540.  On December 
17, 2007, the Committee agreed to an original list for the 
Comprehensive Review that included the Australia Group as 
well as the Organisation Internationale de la Francophonie. 
We believe revisiting previous consensus agreements would set 
an unhelpful precedent.  More broadly, we believe the 
addition of the G8 Global Partnership to the review is 
consistent with our ongoing G8 Summit agreements and the 
Committee's letter to the G8 Japanese Presidency in August 
¶2008. 
 
Lastly, we seek to be inclusive as possible.  All are welcome 
to contribute in an open and 
transparent process; this will serve the Committee well in 
the future.  Establishing criteria to determine which 
regional or intergovernmental organizations are eligible to 
participate will ultimately lead to a less transparent and 
less effective process.  We ask Russia to welcome all the 
organizations previously agreed, the new additions, and also 
support further additions if suggested. 
 
End non-paper text. 
 
¶7.  (SBU) For Beijing.  Washington understands that Beijing 
would not object to Missile 
Technology Control Regime (MTCR) participation in the 
Comprehensive Review and would appreciate confirmation from 
Post.  Washington requests Embassy Beijing follow 
up with Chinese MFA on its position regarding the MTCR,s 
participation in the 
Comprehensive Review.  Post facilitated a meeting June 30 
before the start of the ASEAN Regional Forum (ARF) 
Intersessional Meeting and delivered a similar message to 
this demarche. 
 
¶8.  (U) Further questions or information on UNSCR 1540 can be 
directed to Tom Wuchte, U.S. 1540 Coordinator.  Department 
appreciates Post's assistance. 
CLINTON