VZCZCXRO9378
OO RUEHSK RUEHSL
DE RUEHC #2639/01 2472326
ZNR UUUUU ZZH
O P 042308Z SEP 09
FM SECSTATE WASHDC
TO RUEHVEN/USMISSION USOSCE IMMEDIATE 3281
INFO RUEKJCS/SECDEF WASHINGTON DC PRIORITY
RHMFISS/JOINT STAFF WASHINGTON DC PRIORITY
RUEAIIA/CIA WASHINGTON DC PRIORITY
CONVENTIONAL ARMED FORCES IN EUROPE COLLECTIVE PRIORITY

UNCLAS SECTION 01 OF 02 STATE 092639 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: KCFE PARM PREL
SUBJECT: CFE: JCG FALL 2009 OPENING OF SESSION GUIDANCE 
AND STATEMENT 
 
REF: (A)STATE 4933, (B)USNATO 309, (C)USOSCE 170, 
(D)USOSCE 171 
 
¶1. (SBU) Since Russia's "suspension" of the Treaty on 
Conventional Armed Forces in Europe (CFE) implementation 
in December 2007, the Alliance has used the Joint 
Consultative Group (JCG) to establish a clear record of 
Russian noncompliance while calling on Russia to return 
to full implementation.  Despite early concerns, others 
(e.g., Armenia, Azerbaijan) have not imitated the 
Russian "suspension;" and, when necessary, we have 
refuted Russian arguments with unified Allied positions. 
 
¶2. (SBU) As the Fall session opens, it is important to 
keep in mind that December will mark two years of 
Russian non-implementation of its CFE Treaty 
commitments.  The JCG should continue to serve as the 
key venue for addressing CFE Treaty compliance and 
implementation issues, including those compliance 
failures associated with Russia's "suspension," as well 
as compliance issues associated with Russia and other 
CFE States Parties (as detailed in the U.S. Condition 5 
Report).  Washington is interested in maintaining a 
single Alliance voice in support of our efforts, while 
cultivating an environment that does not undermine 
bilateral negotiations. 
 
¶3. (SBU) Guidance contained in ref A remains in force. 
USDel should continue to report all instances of 
noncompliance with CFE Treaty obligations by Russia and 
other States Parties.  In addition, USDel should 
bilaterally determine via meetings and informal contacts 
whether any positions have changed and report back to 
Washington.  At the same time, USDel should encourage 
Allies to maintain a businesslike approach to Russia's 
noncompliance, encouraging Russia to look forward. 
 
¶4. (SBU) In mid-July, Russia delivered a demarche in 
Washington, and, we understand, in other Allied 
capitals, asking a number of questions about provisional 
application of the adapted CFE Treaty (A/CFE).  At the 
end of last session, Russia brought these questions to 
the JCG and also provided comments in writing (ref C) on 
its views regarding the U.S. December 2008 legal 
analysis on Russia's right to invoke a moratorium on the 
CFE Treaty.  Washington is studying the Russian legal 
rejoinder and has not yet decided if any response is 
necessary. 
 
¶5. (SBU) As bilateral consultations with Russia on CFE 
continue, Washington is interested in maintaining a 
single Alliance voice in support of our efforts, and in 
cultivating an environment in the JCG that reinforces 
the NATO-endorsed positions regarding these 
negotiations.  To this end, USDel should stress the 
continued interest of the U.S. and its Allies in 
creating the conditions that will result in the 
ratification of the A/CFE.  In resisting unhelpful 
efforts by Russia and possibly others to use the JCG to 
discuss and/or negotiate elements of the Parallel 
Actions Package, USdel should emphasize that such 
diversions do not help efforts to resolve the CFE 
impasse. 
 
¶6. (SBU) As appropriate to respond to Russia's 
inquiries, USdel should: 
 
- Continue to reiterate that discussions about the 
Parallel Actions Package are being addressed elsewhere; 
efforts to duplicate that work in Vienna will not help 
efforts to resolve the CFE impasse. 
 
- Regarding allegations that NATO is in "gross 
violation" of the CFE Treaty, recall that NATO is not a 
State Party to the CFE Treaty and therefore cannot 
violate the Treaty.  In addition, NATO States Parties 
have indicated their willingness to discuss issues 
related to A/CFE, including the goal of achieving lower 
equipment ceilings and sub-ceilings where possible, once 
the adapted Treaty enters into force. 
 
¶7. (SBU) The following text is provided for delivery at 
the opening JCG plenary meeting on Sep 8.  U.S. rep may 
 
STATE 00092639  002 OF 002 
 
 
provide advance copies to NATO Allies and others as 
appropriate.  Begin text: 
 
Good morning, Mr. Chairman, 
 
As we return to begin a new session of the JCG, I wish 
to reassure you and our colleagues around the table of 
the continuing United States commitment to the CFE 
Treaty and our resolve to cooperate actively in creating 
the conditions necessary to permit the adapted Treaty to 
enter into force. 
 
Clearly we all feel the absence of the Russian 
Federation from Treaty implementation activities - other 
than the deliberations of this body.  Twenty-nine States 
Parties continue to participate faithfully in 
inspections and information exchanges, to the mutual 
security benefit of all.  In sharp contrast, Russia's 
"suspension" of these activities, now in its twenty- 
first month, leaves an ominous gap in the unique 
transparency and predictability afforded by the CFE 
Treaty regime.  We are approaching the second 
anniversary of Russian non-implementation of the CFE 
Treaty.  It is clear that a situation where all States 
Parties but one are implementing the CFE Treaty cannot 
continue indefinitely. 
 
The Russian government's continued participation in this 
body and its numerous and regular public statements of 
support all give indications of the value it places on 
the Treaty.  Thus it is all the more difficult to 
understand Russia's persistence in maintaining its 
"suspension". 
 
Last spring, senior representatives of our governments 
took the opportunity in a number of meetings to 
highlight the importance of the CFE Treaty regime. 
Efforts are continuing outside this body to preserve the 
principles of the Treaty and create the conditions for 
entry into force of the Adapted Treaty. 
 
Mr. Chairman, 
 
The United States of America calls on the Russian 
Federation to meet its CFE Treaty obligations in full. 
Our views on the Russian decision to cease 
implementation of the Treaty are well known. 
 
As we have repeatedly stated, the United States firmly 
believes in the principles that bring us here, 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 this body, what we can and must do is sustain the 
core functions the JCG is chartered to perform: oversee 
Treaty implementation; consider disputes; raise 
compliance issues; resolve ambiguities and technical 
questions; and consider means to enhance the viability 
and effectiveness of the Treaty.  Let's roll up our 
sleeves and reengage in these tasks.  Thank you for your 
attention. 
 
Mr. Chairman, I ask that this statement be attached to 
the Journal of the Day.  End text. 
CLINTON