112173 6/15/2007 9:03 07USNATO373 Mission USNATO CONFIDENTIAL//NOFORN VZCZCXRO6234 OO RUEHDBU RUEHFL RUEHLA RUEHMRE RUEHROV RUEHSR DE RUEHNO #0373/01 1660903 ZNY CCCCC ZZH O 150903Z JUN 07 FM USMISSION USNATO TO RUEHC/SECSTATE WASHDC IMMEDIATE 0964 RUEKJCS/SECDEF WASHINGTON DC IMMEDIATE INFO RUCNFUR/DARFUR COLLECTIVE PRIORITY RUEHZG/NATO EU COLLECTIVE PRIORITY RUCNOSC/ORG FOR SECURITY CO OP IN EUR COLLECTIVE PRIORITY RUEHAK/AMEMBASSY ANKARA PRIORITY 0371 RUEHTH/AMEMBASSY ATHENS PRIORITY 0133 RUEHGB/AMEMBASSY BAGHDAD PRIORITY 0292 RUEHBW/AMEMBASSY BELGRADE PRIORITY 1368 RUEHRL/AMEMBASSY BERLIN PRIORITY 0570 RUEHBM/AMEMBASSY BUCHAREST PRIORITY 2380 RUEHCP/AMEMBASSY COPENHAGEN PRIORITY 0485 RUEHBUL/AMEMBASSY KABUL PRIORITY 0609 RUEHKH/AMEMBASSY KHARTOUM PRIORITY 0172 RUEHLO/AMEMBASSY LONDON PRIORITY 0207 RUEHMD/AMEMBASSY MADRID PRIORITY 0630 RUEHNY/AMEMBASSY OSLO PRIORITY 0549 RUEHOT/AMEMBASSY OTTAWA PRIORITY 0466 RUEHFR/AMEMBASSY PARIS PRIORITY 0305 RUEHPG/AMEMBASSY PRAGUE PRIORITY 3955 RUEHRA/AMEMBASSY RIGA PRIORITY 7097 RUEHRO/AMEMBASSY ROME PRIORITY 0542 RUEHWR/AMEMBASSY WARSAW PRIORITY 4051 RUCNDT/USMISSION USUN NEW YORK PRIORITY 0416 C O N F I D E N T I A L SECTION 01 OF 06 USNATO 000373
E.O. 12958: DECL: 06/14/2017 TAGS: NATO, PREL, AF SUBJECT: NORTH ATLANTIC COUNCIL READOUT JUNE 13 2007
Classified By: DCM Richard G. Olson for reasons 1.4 (b) and (d)
1. (C) SUMMARY:
--Afghanistan: The SYG discussed civilian casualties and the need for ISAF to do more on OMLTs and equipment support to the ANA. The Chairman of the Military Committee (CMC) Henault briefed on "modestly positive" force generation conference. SHAPE DCOS for Operations Major General Wright noted first-ever Corps-level Afghan-led operation in RC-East. Norwegian PermRep informed NAC that his country would equip two ANA brigades with mortars, heavy machine guns, small arms, and ammo, plus training.
--Balkans: SYG to hold informal discussions with NATO PermReps on possible consequences in the event of UNSC,s failure to adopt a Kosovo resolution soon. The CMC noted SACEUR's concerns about the lack of political guidance for NATO operations.
--Darfur/Somalia: MG Wright noted NATO may receive a request to move the Rwandan and Nigerian battalions that would be part of the pending UN/AU "heavy support package" in Darfur. On Somalia, the SYG said he would report to the AU and the UN SYG that Allies had agreed in principle to NATO support for the AU Mission to Somalia (AMISOM). MG Wright assured PermReps that NATO is ready to provide assistance as required.
--Iraq: Gendarmerie Training Plan approved by the NAC. The outgoing Commander of NTM-I, General Dempsey, recognized by SYG for his service.
--Strategic Airlift Capability Initiative: ASG for Defense Investment Peter Flory stated that consensus had not been reached on issues concerning ownership and liability, despite a new U.S. proposal. Ambassador Nuland stressed the new proposal makes the agreement operationally identical to that of NATO's Helicopter Agency (NAHEMO) which the French and Germans had held up as a model. PermReps agreed to discuss the issue further in an informal meeting that afternoon.
--Review of the Peacetime Establishment of the NATO Command Structure: Despite Spanish and Italian statements that there was no point in discussing the issue at the June 14-15 Defense Ministerial because they were firmly opposed to the SYG,s compromise proposal, the SYG said he would still raise the issue with Ministers and in his bilateral meetings with Defense Ministers.
--Training Cooperation Initiative: The SYG and CMC Henault informed the NAC that the IMS will issue an agreed NTCI paper today under silence procedure to expire next week.
--Missile Defense: The SYG announced the Executive Working Group's (EWG) conclusions and recommendations on Missile Defense (C-M(2207)0051) had passed silence in the NAC.
--Improving the Implementation of the Agreed NRF Concept: Ambassador Nuland stated that U.S. contributions had saved the NRF to date, but if the NRF is not reformed it will be very difficult for the U.S. to continue to fill the NRF given the U.S. operations tempo. The Ambassador proposed reviewing the SRF and NRF in parallel processes rather than jointly, in order to address French and German concerns.
--Any Other Business: The Danish PermRep urged the PermReps to quickly finalize the Comprehensive Approach Action Plan.
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The UK PermRep suggested it be discussed during the Defense Ministerial, which the SYG agreed to, as he outlined the way forward after the ministerial.
2. (C) The SYG stated he would raise with Defense Ministers at the June 14-15 Ministerial the issue of civilian casualties, noting the press would raise it with him. In addition to the need to strengthen ISAF-OEF coordination, he reiterated the need to promptly investigate allegations of civilian casualties, and he urged Allies to implement the use of post-operation humanitarian relief funds in theater. The SYG expressed disappointment at significant shortfalls in NATO embedded training support (OMLTs) to the ANA, despite recent additional offers, as well as the lack of current offers to NATO,s ANA equipment support trust fund, which has resulted in several Allied pledges not moving to Afghanistan due to lack of transportation.
3. (C) CMC Henault provided a brief rundown of ISAF results from the June 12 force generation conference at SHAPE. Noting the results had been "modestly positive," he still pointed to significant shortfalls in ISAF,s CJSOR. Even with new OMLT offers, (5 from Canada, 3 from France, 1 from Poland, 1 from Italy, 1 from Romania, and 1 from Latvia), as the ANA increases in size under CSTC-A tutelage, NATO will have only filled 32 out of the 59 OMLTs that will be required by February 2008. ISAF still lacks strategic and operational reserve forces, and a significant mobility shortfall looms as U.S. helos are currently scheduled to leave Kandahar when the one-year bridging commitment expires in July 2007. Other significant shortfalls include the lack of PRTs and maneuver battalions in Nimroz and Dai Kundi provinces. The Czechs intend to establish a PRT in Logar, pending final governmental approval in Prague.
4. (C) New SHAPE Deputy Chief of Staff for Operations MG Rudy Wright told the NAC that more than 15 operations throughout the Regional Commands were ongoing in support of ISAF's pan-theater effort, Operation Now Ruz. Operation Adalat in RC-South continued as a full spectrum effort, he stated, with engagement of district and provincial leaders, and in close cooperation with the Afghan security forces. MG Wright cited Operation Maiwan in RC-East as the first Afghan-led Corps-level operation. The operation, which is targeting elements of the Taliban shadow government, involves one ANA brigade and one U.S. brigade.
5. (C) During discussion, the Norwegian PermRep informed the NAC that Norway had decided to provide an equipment package to the ANA consisting of mortars, heavy machine guns, small arms, and ammunition, plus necessary training, in quantities sufficient to equip two brigades.
6. (C) The SYG noted the ongoing difficulties at the UN associated with Russia's inflexibility toward a new UN Security Council Resolution for Kosovo. He noted the disappointment in the region following last week,s G-8 summit and updated the NAC on the June 12 meeting of Quint Political Directors saying that while Directors had explored next steps in the UN process, there was no certainty Russia would show more flexibility. The CMC and MG Wright provided
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an operational update on the security situation in Kosovo saying that further delays in the process could engender sympathy for and encouragement to Kosovo Albanian radicals, particularly SDM leader Albin Kurti. Wright noted that a unilateral declaration of independence was a possibility in the event there was no new resolution. Both CMC and Wright emphasized the need for political guidance related to both the transition period and new tasks associated with final status. CMC noted SACEUR,s concern that the lack of proper political guidance could set a negative precedent for other NATO missions where troops on the ground are forced to operate on an ad hoc basis.
7. (C) Ambassador Nuland, supported by the UK PermRep, emphasized that Quint Political Directors were strongly united on the need to accelerate work on a UN Security Council resolution. This conclusion argued for a strong statement in the upcoming Defense Minister's Communiqu supporting UN Special Envoy Ahtisaari,s Comprehensive Proposal and welcoming a new UN Security Council resolution. Anything less would only embolden Russia's inflexibility. The SYG, responding to the Dutch PermRep,s inquiry about the consequences of a failure to adopt a new UN Security Council resolution followed by Kosovo,s unilateral declaration of independence, said that while NATO would continue with contingency planning it was time to hold an informal discussion among PermReps on potential consequences.
8. (C) The SYG reported on recent diplomatic activity regarding Darfur, including an apparent agreement between the African Union and the UN over the structure of the "hybrid" force. The SYG cautioned that this agreement may limit the deployment of non-African troops. MG Wright noted the Spring 2007 AMIS troop rotation had been completed (the fourth that NATO has supported). In total, NATO has now airlifted more than 22,000 AMIS troops. Wright said the pending UN/AU "heavy support package" would include one Rwandan battalion and one Nigerian battalion, and that NATO may receive a request to move these units. The International Military Staff will send a representative to the AMIS partners group meeting in NYC next week, in part to coordinate these issues.
9. (C) The SYG noted Allies had agreed in principle to NATO support for the AU Mission to Somalia (AMISOM). He will send a note verbale to the AU confirming this, and is also in contact with UN SYG Ban Ki Moon. No specific request for airlift has yet been received from the AU. MG Wright assured PermReps that NATO is ready to provide assistance as required. CMC Gen Henault said NATO,s current mandate for supporting AMIS will expire at the end of June, and that for AMISOM will expire August 21.
10. (C) The SYG characterized yesterday's Council agreement to implement and commonly fund the Gendarmerie Training Plan as a welcome development for the joint Iraqi and NATO objective of Iraqis assuming responsibility for their own training. He also extended a warm welcome to incoming Commander of NTM-I, General Dubick, and recognized the excellent job General Dempsey has done in this role, and said that General Dempsey had been awarded the NATO Meritorious
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Strategic Airlift Capability Initiative
11. (C) The SYG noted Monday's coffee discussion on strategic lift, as well as SG (2007) 0393, which included a draft political directive and addressed legal issues related to the C-17 program. He said that if PermReps could not reach agreement he would raise the issue with Defense Minister at their ministerial. ASG for Defense Investment Peter Flory noted consensus has not yet been reached on issues concerning ownership and liability of the C-17s, despite a new proposal that would "somewhat" shift ownership of the planes from NATO to the NATO Airlift Management Organization (NAMO). The NATO legal advisor has provided new guidance, and Flory said Allies are working with PfP and SAC countries to reach agreement.
12. (C) The SYG asked PermReps if they feel a political declaration on strategic airlift is required. Ambassador Nuland said that, after analyzing both the NAMO model and the NATO Helicopter for the 1990s Management Organization (NAHEMO) model, it is clear that ownership provisions, contracting authority, and legal and financial responsibilities are nearly identical between the two. French Ambassador Duque said that, while France welcomes the purchase of aircraft by the international consortium, the "final ownership" of the planes is a cause for concern, and that France still had other "issues to be settled" (without going into details). The German PermRep said it is too early to make any decision based on the SYG,s suggestions, and called for further discussions after the ministerial. UK PermRep Eldon noted the strategic airlift initiative is an important potential deliverable for the Defense Ministerial, and asked for specifics of the remaining French concerns, adding there has already been four weeks of extensive discussions. He supported a political declaration, if needed to move the initiative forward.
13. (C) The Romanian PermRep said it would be "costly to prolong the process" and that his DefMin will come out in support of the initiative at the ministerial. The Italian PermRep, while stressing that airlift is a priority, said it may be too early for a final arrangement due to questions of ownership and liability. Both the Hungarian and Bulgarian Ambassadors supported a political declaration, if needed, and called for more "pragmatism." French PermRep Duque reiterated French concerns over ownership of the aircraft, but then dodged giving further details of French objections, saying these have already been explained at expert's meetings. Ambassador Nuland said the NAHEMO agreement had, in the 90's, provided sufficient guidance on ownership for four countries to procure helicopters. The SYG said he attaches great importance to the C-17 program, and will do what he can to facilitate an agreement. Ambassador Nuland asked the SYG to provide additional drafts documents for delegations to consider during further discussions during the afternoon of June 14.
14. (C) During the PermReps Coffee meeting following the NAC, France and Germany reiterated their concerns about NATO (or NAMO) ownership. Several other nations responded with their positions in support of the NAMO charter and its protection from liability for non-participants. The U.S. indicated this issue would be a topic for bilateral discussions with Germany and France.
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Review of the Peacetime Establishment of the NATO Command Structure
15. (C) The Spanish and Italian PermReps stated the issue was not ripe for consensus since they could not agree to the compromise proposal put forward by the SYG. They suggested there was no point to further discussion among PermReps that afternoon or among Defense Ministers at the June 14-15 Ministerial. The UK and German PermReps supported the SYG's proposal. The French PermRep said the review should also examine where savings could be realized, which is why France had suggested a high-level examination of the command structure, especially in the intelligence and training functions. The SYG said that even if the issue was not ripe for agreement at the Ministerial, he would still raise the issue at the Defense Ministerial and in his bilateral meetings with Ministers in an attempt to reach an agreement.
Training Cooperation Initiative
16. (C) The SYG and CMC Henault told NAC that IMS will issue an agreed NTCI paper today under silence procedure to expire next week. (NOTE: Even while CMC was informing the NAC about the silence procedure, France was working with the IMS to insert additional "key points overlooked" by their MC rep yesterday. The French have indicated privately that they will likely break at the end of silence period next week.)
17. (C) The SYG announced the Executive Working Group's conclusions and recommendations on Missile Defense (C-M(2207)0051) had passed silence in the NAC. The report will be given to Defense Ministers at the June 14-15 Ministerial and the EWG will submit a comprehensive report to the Council on missile defense taskings in advance of planned Ministerial meetings in February 2008.
Improving the Implementation of the Agreed NRF Concept
18. (C) The SYG pointed out that three countries had broken silence on the proposed text of a tasker seeking options to improve the NRF concept. He stressed it was unacceptable to allow ISAF to founder while other forces in the NRF or Strategic Reserve Force (SRF) were available. The June 12 NRF force generation conference had resulted in decreases in the number of forces pledged for NRF rotations 9 through 12. He said that doing nothing to change the NRF concept would lead Allies to question the existence of the NRF itself.
19. (C) Ambassador Nuland added that Allies should expect strong statements from Secretary Gates at the Ministerial on the Alliance's failure to make progress on this issue. U.S. contributions had saved the NRF to date, she said, and cautioned that if the NRF is not reformed it will be very difficult for the U.S. to continue to fill the NRF given the U.S. operations tempo. Frustration with the lack of progress on reform is what is driving the U.S. to consider only token contributions to the NRF. The Dutch PermRep said that if reform of the NRF is blocked, it will inevitably destroy the NRF.
20. (C) The French and German PermReps noted their main difficulty was with the link between the Strategic Reserve Forces (SRF) and the NRF. Ambassador Nuland suggested that, to address their concerns, a review of NATO's reserve force be conducted in parallel to the review of the NRF rather than
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done in a combined manner. In response to Nuland's request for clarification on France's objections to the part of the review related to 30 day deployments, France said 30 days was too long and they wanted the Military Committee (MC) to examine various options to determine which parts of the NRF could be deployed in less than 30 days. Several PermReps noted the 30 days was a maximum not a minimum time for deployment, so it could be much shorter. The UK PermRep and the SYG pointed out the MC had asked the NAC for guidance on how NRF deployments would be funded, so the NAC could not respond by sending a tasking back to the MC. Nuland pointed out that all the NAC was trying to do was task advice; no decisions were being made. In six months since Riga the NAC had not even been able to task advice. The SYG agreed to place the issue on the agenda for a PermReps coffee that afternoon.
AOB: Comprehensive Approach
21. (C) The Danish PermRep recognized that much progress had been made on the Comprehensive Approach but regretted that no full agreement had been reached yet. He acknowledged it could not be solved before the ministerial but hoped to preserve the momentum of negotiations and reach an agreement as soon as possible. The UK PermRep agreed and suggested that Defense Ministers discuss this topic, using a similar approach to the Oslo Foreign Ministerial. The SYG responded that he will raise Comprehensive Approach with Defense Ministers. Shortly after the ministerial, the SYG will take this topic up with Ambassadors in another forum to analyze and assess the Ministers, discussion. If, after this, no agreement is reached on the full Comprehensive Approach the SYG will task the SPC to identify the common ground reached so far and the issues remaining to be resolved and provide suggestions on how to move forward.