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RHHMUNA/HQ USPACOM HONOLULU HI IMMEDIATE C O N F I D E N T I A L SECTION 01 OF 09 PARTO 032028
SIPDIS
E.O. 12958: DECL: 05/06/2019
TAGS:
KV, AF, PK
SUBJECT: (C) SECRETARY CLINTON'S MARCH 5, 2009, MEETING
WITH THE NORTH ATLANTIC COUNCIL FOREIGN MINISTERS
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1. (U) Classified by: Kenneth Merten, Deputy Executive
Secretary, S/ES, Department of State. Reason 1.4.(d)
2. (U) March 5, 2009; 9:00 a.m.; Brussels, Belgium.
3. (U) Participants:
U.S.
The Secretary
Ambassador Kurt Volker
EUR A/S Dan Fried
NSC Senior Director Liz Sherwood-Randall
Lieutenant General Paul Selva
NATO
Secretary General Jaap de Hoop Scheffer
Chairman of the Military Committee Admiral
NATO COUNTRIES
Albania (Invitee): FM Lulzim Basha
Belgium: FM Karel De Gucht
Bulgaria: FM Ivailo Kalfin
Canada: FM Lawrence Cannon
Croatia (Invitee): FM Gordan Jandrokovic
Czech Republic: FM Karel Schwarzenberg
Denmark: FM Dr. Per Stig Moller
Estonia: FM Urmas Paet
France: FM Bernard Kouchner
Germany: FM Dr. Frank-Walter Steinmeier
Greece: FM Dora Bakoyannis
Hungary: FM Dr. Kinga Goncz
Iceland: Ambassador Thorsteinn Ingolfsson
Italy: FM Franco Frattini
Latvia: FM Maris Riekstins
Lithuania: FM Vygaudas Usackas
Luxembourg: FM Jean Asselborn
Netherlands: FM Maxime Verhagen
Norway: FM Jonas Gahr Store
Poland: FM Radoslaw Sikorski
Portugal: FM Luis Amado
Romania: FM Cristian Diaconescu
Slovakia: FM Miroslav Lajcak
Slovenia: FM Samuel Zbogar
Spain: FM Miguel Angel Moratinos
Turkey: FM Ali Babacan
United Kingdom: FM David Miliband
SHAPE
Supreme Allied Commander Europe: General John Bantz
Craddock
Supreme Allied Commander Transformation: General James
Mattis
EU
High Representative Javier Solana
4. (C) SUMMARY: The North Atlantic Council at the level
of foreign ministers convened March 5, 2009, to discuss
NATO's operation in Afghanistan and define the Alliance's
future relationship with Russia. NATO Secretary General
Jaap de Hoop Scheffer added that the Declaration of
Alliance Security will be a third key priority at the
PARTO 00000028 002.2 OF 009
upcoming Strasbourg/Kehl Summit in April. The Secretary
stressed the U.S. commitment to "real dialogue" with
Allies and to giving first priority to collective defense
while also confronting new threats. France announced
that it would take a decision on March 17 on seeking
reintegration into NATO.
5. (C) Allies appreciated Washington's consultative
Afghanistan-Pakistan strategic review process, welcomed
the regional approach, and urged a comprehensive
"political surge." Discussion centered on how to assure
security and legitimacy of the Afghan government in the
May-August time frame after President Karzai's authority
expires. In a Ministers-only session after the main
plenary, most Allies expressed strong reservations about
a "big tent" formula for the pre-Summit Foreign
Ministers' meeting on Afghanistan, arguing in particular
the need for proper preparation of such an event. Most
favored using the "Bucharest formula" with NATO chairing
and organizing the meeting.
6. (C) The Secretary, supported by all Allies except
Lithuania, called for renewed Alliance engagement with
Russia via the NATO-Russia Council (NRC) while retaining
a commitment to discuss areas where we disagree with
Russian actions. Norway challenged Allies to empower the
Secretary to tell Russian FM Lavrov in Geneva on March 6
that NATO is ready to re-engage. A number of Allies
emphasized that the Balkans are in danger of being
forgotten. They called on the Alliance to remain
committed to finishing the job in the region and urged
caution about drawing down KFOR too quickly. END
SUMMARY.
---------------------------------
SUMMIT: CELEBRATION AND CHALLENGE
---------------------------------
7. (C) The Secretary General opened the meeting by
stating that the Strasbourg-Kehl Summit in April would be
a celebration. The Alliance looked forward to welcoming
President Obama and hopefully including Albania and
Croatia as new members. He emphasized that the Allies
also needed to use the Summit as an opportunity to show
determination to confront key challenges, in particular
in defining NATO's role and strategy in Afghanistan,
NATO's relations with Russia, and the Declaration on
Alliance Security. French FM Kouchner added that the
Summit would be a symbol of Franco-German and European
reconciliation, an entente for which he credited NATO.
-------------------------------------------
SECRETARY CALLS FOR REAL DIALOGUE AND UNITY
-------------------------------------------
8. (C) Secretary Clinton stressed the U.S. and
Administration commitment to restoring "real dialogue"
within the Alliance. The Secretary emphasized the
importance of not being trapped between false choices of
"hard" and "soft" power; the Allies need to be "smart,"
committed to using all tools available to ensure
Transatlantic security. The Secretary called collective
PARTO 00000028 003.2 OF 009
defense our "first and overriding priority" and said NATO
must also be prepared to confront new threats. She
called on the Alliance to be flexible, pragmatic, and
united around its shared principles in order to act
decisively and succeed against old and new threats.
-------------------------
FRENCH NATO REINTEGRATION
-------------------------
9. (C) German Foreign Minister Steinmeier called the
Secretary's remarks a "fresh impulse" to NATO and
welcomed the Administration's desire for Allied input.
French FM Kouchner added that the European Allies wanted
to respond to the U.S. by being responsible partners. FM
Kouchner said EU European Security and Defense Policy
(ESDP) and French reintegration into NATO were
"supporting strands" and called for better NATO-EU
cooperation. He expressed conviction that the
Transatlantic Alliance will be strengthened, and in that
regard, announced that President Sarkozy will make a
decision on French reintegration on March 17 "in full
respect" of NATO's rules.
--------------------------------------------- ---
AFGHAINSTAN: COMPREHENSIVE, INTEGRATED, APPROACH
--------------------------------------------- ---
10. (C) NATO Secretary General Jaap de Hoop Scheffer
(SYG) called for updating the agreed NATO political-
military strategy for Afghanistan taking into account the
evolution of the situation on the ground since last year.
He highlighted the need for forces, resources, and better
implementation to make the mission a success. The SYG
identified five immediate priorities: 1) supporting
Afghan presidential elections; 2) building up Afghan
National Security Forces; 3) implementing a whole-of-
international-community civil-military approach; 4)
addressing Afghanistan in a regional context; and 5)
reinforcing NATO cooperation with Pakistan.
11. (C) Secretary Clinton noted the ongoing U.S.
strategic review and the upcoming visit of Vice President
Biden (March 10). She underlined Washington's commitment
to consultation and listening to input during and beyond
the review. Ministers responded positively to this tone.
12. (C) The Secretary pointed out the need for better
coordination. Denmark and Romania emphasized an
integrated approach heavy with institutional and
personnel capacity building, anti-corruption measures,
and improving rule of law. Norwegian FM Store chided
Spain for promoting out-of-country training in Madrid of
Afghan officials rather than engaging them on the ground
(Spain worried that its soldiers were engaged in
protecting only themselves without venturing beyond "the
wire" of their Provincial Reconstruction Team). Store
said NATO needs a countrywide approach, not a piecemeal
one, and added that the international community must more
accurately track development assistance.
13. (C) UK FM Miliband called the international
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community's attention to "the critical period of the next
five years" under a new Afghan government. He cautioned
against over-focus on the months leading up to elections.
The Netherlands reminded Ministers that the Afghanistan
Compact will end in 2010. Miliband emphasized the need
to practice what we preach on "Afghanization," and said
NATO should emulate the Iraq model of a province by
province approach to transferring authority. He noted
lackluster reconciliation efforts to date. Germany
underscored the importance of Afghan ownership and
conditions-based transfer of responsibility. French FM
Kouchner added that the daily lives of Afghan people
needed to consistently improve. Bulgaria "urged realism"
and said the international community might need to
reconsider its ambitions.
----------------
REGIONAL CONTEXT
----------------
14. (C) The Secretary grouped Afghanistan and Pakistan as
a single strategic concern, and called the border area
between them the nerve center of global terrorism.
Germany and France echoed the U.S. designation of an
Afghanistan-Pakistan Special Representative with similar
appointments of their own. The Secretary said a long-
term solution will require a regionally focused,
integrated civil-military strategy with the participation
of all Allies, partners, and neighbors. Everyone except
Belgium welcomed the regional approach - FM De Gucht
worried about "stigmatizing" Pakistan vis-a-vis India.
The SYG noted that foreign ministers' decision on NATO's
future relationship with Russia would have implications
for Afghanistan on issues of regional stability and
counter-terrorism. Romania and Latvia proposed broader
regional engagement with Central Asian states.
---------------------------------
SUPPORTING AFGHAN ARMY AND POLICE
---------------------------------
15. (C) The SYG asked nations to support Afghan National
Security Force development, particularly the enlarged
Afghan army through contributions to the newly expanded
Afghan National Army Trust Fund. Secretary Clinton,
Danish FM Moller, and Norwegian FM Store said NATO should
step up its efforts in police development and continue
strengthening the army. In a change from the previous
Turkish position, FM Babacan called for NATO to do police
training. Germany and France urged increased NATO
commitments to police training. Steinmeier encouraged
additional bilateral police training commitments to the
Focused District Development program.
16. (C) Canada, supported by Poland, stressed a common
approach to security across Afghanistan without caveats
to give commanders maximum flexibility. Poland tied
future troop and financial contributions to more
equitable burden sharing. Canadian FM Cannon asked
nations to increase contributions of mentoring teams for
Afghan army and especially police units. Cannon and FM
Miliband said NATO should give more robust support to
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Afghan Minister of Interior Atmar and fulfill his
requests.
17. (C) Denmark and Turkey welcomed additional U.S. troop
contributions. Denmark was the only nation to mention
civilian casualties as a continued critical area of
focus, but acknowledged recent improvements in ISAF
procedures and responses when they do occur.
--------------------------------------------- -
ELECTIONS CREDIBILITY AND BRIDGE OF LEGITIMACY
--------------------------------------------- -
18. (C) The SYG, supported by Secretary Clinton and
others, called on nations to support the Afghan
Independent Election Commission's decision to uphold
August 20, 2009, as the presidential and provincial
council election date. He acknowledged the
constitutional dilemma of Karzai's authority expiring May
22. He asked NATO to fulfil elections support force
requirements.
19. (C) Allies unanimously agreed that credibility is the
most critical quality of upcoming elections, which should
produce a result that reflects the democratic will of the
people. Turkey asked that all political actors who
renounce violence be embraced and all ethnicities
represented in the electoral process. Denmark urged that
civilian and military contributions to elections
emphasize burden sharing and Alliance solidarity. Greece
noted a possible OSCE role in election support.
20. (C) Afghan FM Spanta phoned the SYG and a number of
nations to request that NATO support President Karzai's
continued tenure through the interim May-August period in
whatever form the government takes. Secretary Clinton
added that "we have a responsibility to work with the
Afghan government to help it build a bridge of
legitimacy" for Karzai during the interim period. Allies
urged collective diplomatic pressure on Afghanistan to
find an interim arrangement that is Afghan-owned, agreed
by Karzai and Parliament, and blessed by the Supreme
Court. All said the international community will have to
be careful to support an interim government without
prejudging election results, while permitting legitimacy
and security to prevail.
-----------------------------
NATO ENGAGEMENT WITH PAKISTAN
-----------------------------
21. (C) Danish FM Moller said NATO should encourage
practical military cooperation between Afghanistan and
Pakistan, and establish the NATO Contact Point Embassy in
Islamabad. Turkey, Canada, and Greece agreed on the
importance of improved military consultation with
Pakistan, but urged NATO to expand the relationship to
include political dialogue and potential Partnership.
Italy called for NATO to pay close attention to
Pakistan's economic and institutional crises, and divert
Islamabad's focus from a perceived Indian threat to the
"real threat" in its tribal areas.
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----------------------------------------
FORMAT OF PRE-SUMMIT AFGHANISTAN MEETING
----------------------------------------
22. (C) Secretary Clinton proposed holding an Afghanistan
meeting of Foreign Ministers on March 31, prior to the
NATO Summit, in a "big tent" formula including NATO
Allies, ISAF partners, financial contributors, transit
countries, international organizations, and Afghanistan's
neighbors. She said UN Secretary General Ban Ki-moon may
convene the meeting, with UN Special Representative of
the Secretary General Kai Eide chairing. Albania,
Bulgaria, Croatia, France, Greece, Hungary, Italy, The
Netherlands, Norway, Portugal, Slovakia, Slovenia, and
Spain supported the U.S. proposal for a pre-Summit
Ministerial, though in a private session many ministers
questioned the "big tent" format. Canada wanted an only-
ISAF meeting at the Heads of State and Government level
at the NATO Summit in April. Italy pointed out the
importance of including Iran to engage on anti-weapons
smuggling and counter-narcotics.
23. (C) Only France and Portugal stressed that a broader-
format meeting would "universalize" the Afghanistan
mission as an international community responsibility.
Other Allies had reservations about extending invitations
to a broader group at short notice, and said a larger
meeting must have clear goals, objectives, and outcomes.
A few ministers were confused whether this meeting would
be "on Afghanistan including Pakistan as an invitee" or
"an Af-Pak meeting," preferring the former.
---------------------------------
SUMMIT DECLARATION ON AFGHANSITAN
---------------------------------
24. (C) Allies supported a stand-alone NATO Summit
Declaration on Afghanistan. Denmark, Romania, Italy,
Slovenia, and Estonia said this statement should reaffirm
NATO's long-term commitment, show strengthening of the
integrated civilian-military effort, demonstrate the
importance of Afghan leadership, highlight international
community coordination, and showcase a concrete list of
deliverables. Estonia's FM suggested deliverables,
including the Afghan National Army Trust Fund expansion,
a new NATO police training framework, and improved
cooperation with Pakistan.
--------------------------------------
ANNOUNCED CONTRIBUTIONS TO AFGHANISTAN
--------------------------------------
25. (C) Foreign ministers announced the following
contributions to the effort in Afghanistan during their
interventions:
-- Lithuania promised additional deployments in Ghor
province during elections and Special Operations Forces
for Regional Command South.
-- Germany reiterated its commitment of 500-600 troops
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for the Elections Support Force (in Regional Command
North), promised to field a total of seven Operational
Maneuver and Liaison Teams, and said it is standing up an
engineering school in Mazar-i Sharif.
-- Romania was adding 135 soldiers to bring their total
commitment to nearly 1000 troops, and will consider
additional army and police training.
-- Italy was considering large increases in its police
training efforts and giving ISAF commanders greater
flexibility.
-- Albania will add a company to elections support.
-- Croatia will deploy two more mentoring teams (NFI) in
March, and was considering sending police trainers and
civilian and development assistance.
------------------
RE-ENGAGING RUSSIA
------------------
26. (C) The Secretary called on the Alliance to work with
Russia on issues of common interest, while also using our
NATO-Russia engagement to address frankly areas where we
disagree as well. She encouraged cooperation on
Afghanistan, counter-narcotics, counter-proliferation,
counter-terrorism, arms control, and the Iranian and
North Korean nuclear threats. The Secretary stressed,
however, that the Allies must never recognize Abkhazia or
South Ossetia as independent states, nor accept Russian
assertions of spheres of influence. She called on the
Allies to stand by our commitment to eventual membership
of Georgia and Ukraine in NATO.
27. (C) The Secretary said it was time to reactivate the
NATO-Russia Council (NRC), not as a reward for Russia but
as a mechanism for dialogue. All Allies, except
Lithuania, backed the Secretary's call and expressed
support for the U.S.-German non-paper on NATO and
Europe's East as a way forward. Norway challenged Allies
to empower the Secretary to tell Russian FM Lavrov in
Geneva on March 6 that NATO is ready to re-engage.
France, the Netherlands, and Turkey called for a NRC
Ministerial before June, and Romania said reengagement
must be part of a broader NATO Eastern policy that
includes collective defense and enlargement.
28. (C) Lithuanian FM Usackas expressed general support
for the U.S.-German proposals, but favored having Heads
of State and Government take the decision on reactivating
the NRC at the Summit in April. Germany, Italy, and
Luxembourg challenged Lithuania to reconsider. Germany
said it was time to reactivate, but also reform, the NRC
in order to foster substantive debate with Russia. Czech
FM Schwarzenberg proposed that Allies also work toward a
common internal understanding of what they want from the
NRC.
29. (C) Canada said that the Allies should deliver a
strong message to Russia on values and the military
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build-up in Georgia. British FM Miliband said restarting
the NRC was not a return to business as usual, and NATO
should be explicit about putting Georgia on the table in
the NRC. France, Greece, Italy, the Netherlands, and
Spain added that the Allies should use dialogue with
Russia to convey our shared convictions. Belgium,
Estonia, and Poland agreed but expressed skepticism about
the likelihood of serious engagement by Russia. Belgium,
supported by Latvia, said it was even more important to
have a serious discussion within NATO about energy
security.
30. (C) Greek FM Bakoyannis (Note: current OSCE Chairman
in Office. End Note.) said Allies should look for
multiple avenues for engaging Russia in dialogue and
emphasized the OSCE as a forum for discussing Russian
President Medvedev's European Security Treaty proposal.
Bulgaria, Estonia, and Hungary said the OSCE is the
primary forum for this discussion, but cautioned against
jeopardizing the current security architecture. Hungary
said NATO should also discuss the Medvedev proposal
internally, and Turkey said NATO should use the NRC to
influence Russia on this issue. In the end, after a
lengthy ministers-only session and substantial
negotiation in the corridors, Lithuania joined consensus
on a text that the SYG used with the press, resuming the
NATO-Russia Council, including at ministerial level,
while stressing we will also raise areas of disagreement
with Russia, including concerning Georgia.
------------------------------------
WESTERN BALKANS: UNFINISHED BUSINESS
------------------------------------
31. (C) The Secretary, backed by the Czech Republic,
Hungary, Norway, Slovakia, and Croatia, emphasized that
the Balkans are in danger of being forgotten and called
on the Alliance to remain committed to finishing the job
in the region. Czech FM Schwarzenberg, supported by
Albania and Slovenia, said NATO should send a strong
message of support to the Western Balkans at the Summit.
Hungary said NATO's commitment to the Western Balkans
should be included in the Declaration on Alliance
Security.
32. (C) Hungary warned that NATO's credibility was at
stake if it failed to admit Albania and Croatia as
members at the Summit, and Slovenian FM Zbogar said his
government was working hard to ensure ratification before
the Summit. Slovakian FM Lajcak said NATO needed a
unified approach to Bosnia. Hungary and Slovenia said
NATO should offer a Membership Action Plan (MAP) to
Montenegro at the Summit, and Hungary added that the
Alliance should send a positive message to Serbia.
--------------------------------------------- --
KOSOVO: DISCUSSION OF KFOR DOWNSIZING UNHELPFUL
--------------------------------------------- --
33. (C) The SYG, supported by Secretary Clinton,
reiterated that public speculation on downsizing KFOR is
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unhelpful. The Council will take a political decision on
this issue only after receiving military advice from
SACEUR, and the situation in Kosovo remains too fragile
for disengagement. The Czech Republic, France, Greece,
Hungary, Slovakia, Slovenia, Turkey, and Albania
reiterated that now is not the right time to downsize
KFOR, although French FM Kouchner added that KFOR should
move to a deterrent presence as soon as conditions
permitted.
34. (C) Germany and Denmark expressed optimism about the
situation in Kosovo, and Danish FM Moller called on the
Alliance to give thorough consideration to whether the
time was right for moving KFOR to deterrent presence.
The UK acknowledged the SYG's point, but pleaded for a
"private" plan to reconfigure KFOR. Spain said it does
not plan to withdraw its forces from KFOR, but would not
block consensus on moving to deterrent presence.
35. (C) Turkish FM Babacan said it planned to increase
its contribution to the EU Rule of Law Mission in Kosovo
(EULEX), called on EULEX to reach full operating
capability quickly, and said that KFOR should not serve
as a "static protection force" for EULEX. Hungary and
Slovenia said KFOR-EULEX cooperation was critical. The
Netherlands pledged to contribute 1 million euros to the
Kosovo Security Force (KSF) stand-up fund.
----------------------------
RAISING ARMS CONTROL PROFILE
----------------------------
36. (C) Germany, supported by the Netherlands and Norway,
called on the Alliance to give priority to arms control
and disarmament, saying the topic was important for
convincing younger Europeans of NATO's relevance. German
FM Steinmeier said reductions were feasible and should be
envisioned. He said more needs to be done on CFE and,
backed by Greece, called arms control an area where
renewed dialogue with Russia is key.
--------------------------------------------- -
NATO HQ REFORM: SYG ASKS FOR ALLIANCE SUPPORT
--------------------------------------------- -
37. (C) The U.S., Canada, Czech Republic, Denmark,
Iceland, Netherlands, Norway, Portugal, and the UK
supported SYG's NATO headquarters reform proposals, and
SYG called for HQ reform to be a deliverable for the
Summit. Greece, Romania, Spain, and Turkey stressed the
need to preserve consensus decision-making and protect
the role of the Military Committee.
---------------
MISSILE DEFENSE
---------------
38. (C) Czech FM Schwarzenberg said NATO should continue
to work on missile defense, calling it a key tool to
protect Allies "if diplomacy fails."
CLINTON
