VZCZCXRO8057
PP RUEHMJ
DE RUEHC #1952/01 2461638
ZNR UUUUU ZZH
P R 031620Z SEP 09
FM SECSTATE WASHDC
TO RUEHMJ/AMEMBASSY MAJURO PRIORITY 6822
INFO RUEKJCS/SECDEF WASHINGTON DC
RHMFISS/JOINT STAFF WASHINGTON DC

UNCLAS SECTION 01 OF 02 STATE 091952 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: MARR PGOV PARM RM
SUBJECT: CONCERNS ON MARSHALL ISLANDS RATIFICATION OF THE 
OTTAWA CONVENTION 
 
¶1.  (SBU) ACTION REQUEST:  Post may draw on the talking 
points in paragraph 4 to respond to the Government of the 
Republic of the Marshall Island's request for the U.S. 
position on its potential ratification of the Ottawa 
Convention. 
 
¶2.  (SBU) Background:  On December 2, 1997, PM and EAP 
representatives (including then PM/PDAS Eric Newsom) met 
with representatives from the Republic of Palau, the 
Republic of the Marshall Islands (RMI), and the Federated 
States of Micronesia at the latter three's request to 
discuss their potential signature/ratification of the 
Ottawa Convention banning anti-personnel landmines (APL). 
While noting that adherence to the Convention is up to 
each state based on its assessment of its own national 
interest, U.S. representatives noted that the U.S. would 
not adhere to the Ottawa Convention and that adherence by 
the other three states could conflict with defense 
provisions of the respective bilateral Compacts of Free 
Association (COFA).  According to the 2008 Landmine 
Monitor, RMI signed the Ottawa Convention on December 4, 
1997, but attended no further meetings of the States 
Parties until the June 2008 intersessional meetings.  At 
this meeting, RMI explained that the Compact of Free 
Association with the United States complicated its 
ratification of the Convention.  The 2008 Landmine Monitor 
also noted that RMI participated in an August 2008 workshop 
on the aims of the Convention hosted by the Republic of 
Palau.  In June 2009, RMI made a formal inquiry to post 
for the U.S.'s position on its potential ratification 
of the Ottawa Convention (ref: Kimmel email June 25 2009). 
 
¶3.  (SBU) In 2007, the Republic of Palau ratified the 
Ottawa Convention after a long series of consultations 
with the United States.  The Government of Palau 
determined that the Ottawa Convention did not conflict 
with the Compact of Free Association because the GOP would 
not be in control of any area in which the United States 
might use landmines in the defense of Palau under the 
terms of the Compact.  Also the GOP stated that it would 
not enact its implementing legislation extraterritorially 
and therefore it would not apply to Palauan citizens 
serving in the U.S. armed forces.  The government of Palau 
notified the Government of the United States of these 
understandings and intentions in advance of ratification. 
 
End Background. 
 
¶4.  (SBU) The Ottawa Convention still conflicts with U.S. 
Landmine Policy and would therefore create conflicts with 
the U.S-RMI COFA as elaborated in the following talking 
points.  The Convention on Conventional Weapons Amended 
Mines Protocol (to which the United States is party) would 
be a better option for RMI. 
 
Talking Points: 
 
--We appreciate that the RMI has taken no further action 
to ratify the Ottawa Convention since signing the 
Convention in 1997. 
 
--The United States still is not in a position to adhere 
to the Ottawa Convention. 
 
-- Each state has to make its own decision based on the 
assessment of its national interests.  We do not oppose 
signature of the Convention by countries that are in a 
position to do so. 
 
--However, we recognize that the defense provisions of our 
Compact are unique, especially the U.S. commitment to 
defending the Republic of the Marshall Islands as if it 
were part of the United States. 
 
--Section 311 provides that the "Government of the United 
States has full authority and responsibility for security 
and defense matters in or relating to the Republic of the 
Marshall Islands." 
 
-- Section 312 provides that "Subject to the terms of any 
agreements negotiated in accordance with sections 321 and 
323, the Government of the United States may conduct 
within the lands, waters and airspace of the (RMI) the 
activities and operations necessary for the exercise of 
this authority and responsibility under this Title." 
 
STATE 00091952  002 OF 002 
 
 
 
--Section 313 provides that the "Government of the 
Republic of the Marshall Islands shall refrain from 
actions that the Government of the United States 
determines, after consultation with that Government, to be 
incompatible with its authority and responsibility for 
security and defense matters in or relating to the (RMI.)" 
 
--Adherence of RMI to the Ottawa Convention would 
contradict the provisions of sections 311- 313 of our 
Compact, as it is possible that the United States could 
determine that the use of Anti-Personnel Landmines could 
be necessary to fulfill its obligations to defend RMI. 
 
-- Section 321 of the COFA permits the United States to 
establish and use defense sites in RMI.  Accession to the 
Ottawa Convention would be problematic if the United 
States needed to store anti-personnel landmines at these 
sites. 
 
--Accession to the Ottawa Convention also affects the 
ability of citizens of RMI to serve in the U.S. armed 
forces under Compact section 341. 
 
--The United States is committed to eliminating the 
harmful impact of landmines.  To that end the USG has made 
a commitment to utilize only detectable mines and after 
2010, will only use mines with a self-deactivate, 
self-destruct mechanism.  We are also party to the 
Convention on Conventional Weapons, Amended Protocol II on 
Prohibitions or Restrictions on the Use of Mines, 
Booby-Traps and Other Devices (CCW AMP). 
 
--If the Government of RMI would like to join an 
international convention on landmines, the United States 
requests that the Government of RMI consider acceding to 
CCW AMP, rather than the Ottawa Convention in order to be 
more consistent with the Compact of Free Association. 
 
IF RAISED 
 
--If the Government of RMI is insistent on joining the 
Ottawa Convention, detailed consultations between the 
U.S. Government and the Government of RMI will be required 
so that both sides have a clear and complete understanding 
of the compatibility or incompatibility of the Compact and 
the Ottawa Convention. 
 
--The Government of the United States raised these same 
concerns with the Government of Palau in advance of their 
ratification of the Ottawa Convention. 
 
--As a result of our consultations, the Government of 
Palau provided certain assurances to the Government of the 
United States regarding their implementation of the 
Convention and how it would affect our relationship with 
them. 
 
--The Government of Palau judged that these assurances 
were adequate to put them in a position to ratify the 
Convention. 
 
End talking points. 
 
¶5.  (U) Please contact PM/WRA Katherine Baker at 
202-663-0104 for more information.  Please slug any 
follow-on cables to PM/WRA. 
CLINTON