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Viewing cable 09MOSCOW833, SCO CONFERENCE ON AFGHANISTAN
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
09MOSCOW833 | 2009-04-02 08:38 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Moscow |
VZCZCXRO7303
PP RUEHDBU RUEHIK RUEHLN RUEHPOD RUEHPW RUEHSK RUEHVK RUEHYG
DE RUEHMO #0833/01 0920838
ZNR UUUUU ZZH
P 020838Z APR 09
FM AMEMBASSY MOSCOW
TO RUEHC/SECSTATE WASHDC PRIORITY 2670
INFO RUCNAFG/AFGHANISTAN COLLECTIVE
RUCNCIS/CIS COLLECTIVE
RUEHXD/MOSCOW POLITICAL COLLECTIVE
RUEHZG/NATO EU COLLECTIVE
UNCLAS SECTION 01 OF 05 MOSCOW 000833
SENSITIVE
SIPDIS
E.O. 12958: N/A
TAGS: PGOV PREL PTER SNAR UN AF RS ZK
SUBJECT: SCO CONFERENCE ON AFGHANISTAN
¶1. (SBU) Summary: The Shanghai Cooperation Organization's
(SCO) Special Conference on Afghanistan convened in Moscow
March 27 to discuss the impact of terrorism and narcotics
trafficking in Afghanistan on the country's neighbors, and
intensifying international efforts to address these
challenges. The event brought together SCO member states,
plus Afghanistan, Pakistan, India, Iran, Turkey, the G-8
countries, and representatives of the UN, EU, NATO, and other
international organizations, all of whom pledged various
forms of support, both real and rhetorical, to Afghanistan.
Participation by a U.S. delegation headed by SCA DAS Moon
marked the first formal U.S. engagement with the SCO,
undertaken to demonstrate U.S. support for international
efforts to assist Afghanistan. The Russian organizers left
no room in the formal proceedings for open discussion, and
each delegation gave prepared remarks that did not stray far
from the agenda. The event resulted in a statement by SCO
members to support Afghanistan, a plan of action by the SCO
and Afghanistan to combat terrorism, drug trafficking and
organized crime, and a general declaration agreed by all
attendees that acknowledged the key role of ISAF, among
others, to assist Afghanistan. Final agreement was
complicated by European objections to specifically recognize
the SCO as a forum for dialogue on Afghanistan, and Iran's
insistence on being singled out for its sacrifice in
combating Afghan drug trafficking. The conference appeared
to meet the Russian desire to convene an international event
on Afghanistan, and was deemed a success simply for being
held. End summary.
¶2. (SBU) The SCO Special Conference on Afghanistan, held in
Moscow on March 27, provided a forum for representatives of
SCO member states, Afghanistan, Pakistan, and observers such
as India, Iran, Turkey, the G-8, and international
organizations to present their views on stabilizing
Afghanistan and addressing the threats of terrorism and
narcotics trafficking to the country's neighbors. This was
the first such event held by the SCO, and was attended by
member states Russia, China, Kazakhstan, Kyrgyzstan, and
Tajikistan, with Uzbekistan declining to attend. Heads of
delegations gave statements that rarely strayed from the
agenda, highlighted their contributions to Afghanistan, and
avoided delving into controversial topics. SCO members and
Afghanistan agreed upon a joint statement and a separate plan
of action to combat terrorism and narcotics. All attendees
agreed upon a final declaration that welcomed the SCO
initiative, the efforts of the UN, NATO, and others to
address the threats of terrorism and drug trafficking, and
expressed the conviction of all to assist Afghanistan.
(Note: All three documents are available in English on the
Russian MFA website, http://www.mid.ru/brp 4.nsf/main eng.)
¶3. (SBU) The conference proceedings consisted of prepared
remarks given by representatives of the 32 delegations
present, including:
-- Russia: FM Sergey Lavrov opened the conference in his role
as Chairman, highlighting the need to take a comprehensive
approach to Afghan stabilization that includes tackling
extremists and drug trafficking. This requires strengthening
coordination between ISAF and Afghan security forces in order
to increase the latter's effectiveness. He called it "only
natural" that the SCO, which incorporates nearly all of
Afghanistan's neighbors, not remain aloof from collective
security efforts. Through joint work with Kabul, and not the
creation of "sanitary cordons," did the SCO and the
Collective Security Treaty Organization (CSTO) suggest
creating a security belt in the region. Russia supports
Afghan national reconciliation so long as individuals
renounce violence and "rupture ties" with Al-Qaeda. Lavrov
cited the CSTO's counter-narcotics program Operation Channel,
which Afghanistan joined and to which NATO and EU countries
are observers.
-- UN: SYG Ban Ki-moon painted a bleak picture of Afghans
living in despair and farmers turning to opium to feed their
families. Afghan terrorism and criminality transcended
borders and went to where law enforcement was weakest. Ban
saw positive signs that the international community was
responding to drug trafficking through establishment of the
Central Asian Regional Information and Coordination Center
(CARICC) in Almaty, a joint Afghanistan-Pakistan-Iran counter
drug operation, and the U.S. plan to send more troops to
Afghanistan, which would mean additional security for the
August Presidential election and more training for the Afghan
army and police.
-- Afghanistan: FM Rangin Spanta said the SCO could play a
key role in projects of mutual benefit to Afghanistan and
MOSCOW 00000833 002 OF 005
Central Asia, such as building roads, which would allow
Afghanistan to serve as a route for increased regional trade.
He called upon countries to reject the "zero sum game" in
the region and avoid using Afghanistan as a "tool for
conflicting policies." Stability in Afghanistan depended
upon the long term commitment of Afghanistan's partners and
the international community.
-- Kazakhstan: DFM Nurtai Abykaev expressed concern that the
global financial crisis would prevent donor countries from
meeting their obligations to Afghanistan. Kazakhstan
intended to double its financial commitment to Afghan
reconstruction and development. He called for strengthening
cooperation between the SCO and CSTO to combat narcotics
trafficking, and for expanding the CSTO's Operation Channel.
Kazakhstan would continue providing support to facilities in
Dushanbe and Bishkek for training Afghan and Central Asian
border guards and other officials. He welcomed ISAF's
contribution to combating drug trafficking and called upon
other international organizations to be involved in Afghan
development.
-- China: DFM Song Tao said Afghanistan was at a
"crossroads," an expression used in numerous presentations
during the conference. He stressed the need for the SCO and
international community to: 1) Support the leading role of
the UN in coordinating the reconstruction process; 2) Assist
the Afghan government in holding general elections, the
success of which would be a basis for stability; 3) Respect
the leading role of the Afghan government in managing the
nation's affairs, and step-up training for the Afghan
military and police so they can play a larger role in
maintaining security; 4) Give greater attention to
development, agriculture, education, healthcare and
infrastructure and increase the efficiency of the assistance
given; and 5) Improve regional cooperation mechanisms,
including the SCO. Tao said the SCO should tighten border
controls, involve Afghanistan in regional law enforcement
efforts, and strengthen real cooperation among member-states.
Chinese assistance to Afghanistan included $180 million in
economic aid, the cancellation of debts, technical training
for Afghans working in various fields, and assistance to the
Afghan army. China would convert to grants $75 million in
concessional loans already given to Kabul this year.
-- Kyrgyzstan: FM Kadyrbek Sarbaev cited the need to create a
security belt around Afghanistan to halt the flow of
narcotics. Kyrgyzstan had already seized 14 tons of
narcotics coming from Afghanistan, including 200 kilos in the
last two months. Bishkek supported new counter-narcotics
efforts under the aegis of the UN, and believed Afghanistan
needed to be invited more often to participate in regional
processes. The Kyrgyz President proposed Bishkek as a site
to establish an analytical center to discuss Afghanistan and
find solutions for the country's stabilization and
development.
-- Tajikistan: FM Hamrokhon Zarifi pledged support for the
Afghan people, who are not the source but the victim of
terrorism and narcotics trafficking. Tajikistan welcomes the
presence of Afghan entrepreneurs, seeks expanded trade, and
wants to cooperate on hydroelectric and irrigation projects.
He noted the particular importance of tightening border
controls with Afghanistan to Tajikistan, the SCO member with
the largest common border. Zarifi called for the creation of
a SCO center in Dushanbe to combat drug trafficking, and the
creation of a formal counter-terrorism structure within the
SCO.
-- Pakistan: FM Makhdoom Qureshi said that Pakistan had
keenly observed the SCO expand into a platform to promote
stability and economic cooperation in Central Asia, and cited
Russia and China for their productive roles in this endeavor.
Pakistan looks forward to full SCO membership, and until
that time, wants to expand cooperation on energy development
and investment promotion with SCO members. Pakistan also
wants to take part in regional counter-narcotics coordination
and expand cooperation of customs agencies. He cited the
tremendous sacrifices Pakistan has made as Afghanistan's
neighbor, including hosting the world's largest refugee
population. Pakistan's security is indivisible from
Afghanistan's, and Islamabad has reached a "new level of
trust" with Kabul, agreeing to cooperate closely on
counter-terrorism and narcotics efforts. Qureshi enumerated
several steps the SCO could take to assist Afghan stability:
1) Accept norms of international conduct and respect
territorial integrity; 2) Facilitate Afghan-led national
reconciliation; 3) Conduct the battle for hearts and minds in
a manner that respects local culture and traditions; 4)
MOSCOW 00000833 003 OF 005
Support a massive reconstruction plan that includes enhancing
the capacity of local security forces; and 5) Support
infrastructure and energy development to allow Afghanistan to
become a bridge for regional trade and development.
-- Turkey: FM Ali Babacan said that while the ultimate
solutions to Afghanistan's problems must come from the Afghan
people, Turkey was ready to play a role in helping win Afghan
hearts and minds by assisting the country's development.
Turkey was living up to its assistance pledges, providing
$200 million in aid for 550 development projects focusing on
healthcare, education and agriculture, and establishing its
own provisional reconstruction team. Turkey provided $100
million to train the Afghan army, funds for the police, and
trained 100 Afghan government officials in Turkey. He
highlighted Ankara's trilateral initiative that brought
together government, military, and intelligence officials
from Afghanistan, Pakistan, and Turkey to address regional
issues.
-- India: Special Envoy Satinder Lambah focused on helping
Afghanistan become a regional hub for trade and transport
through infrastructure development. India has already
pledged $1.2 billion in various forms of assistance to
Afghanistan. More must be done to help rural Afghans find
alternative crops to opium and raise public awareness of the
link between narcotics and extremists.
-- Iran: DFM Mohammad Ahundzadeh said that any action aimed
at strengthening stability in Afghanistan should be
considered support for peace and stability in the region. He
named several capitals, but did not mention Washington,
saying that any decision made by them to stop drug
trafficking and promote stability should be supported. The
nexus of drugs and terrorism was detrimental to achieving
security in the region. No country could accomplish this
alone, although Iran has achieved some success, typically
seizing three tons of opium daily and 1,000 tons annually.
Success in battling heavy narcotics had moved the trade
toward light narcotics. Terrorism does not differentiate
between rich or poor, guilty or not guilty; it is indifferent
to national borders. The international community must tackle
the root causes of terrorism, with the UN maintaining the
primary role through UNSCRs 1373 and 1390. After September
11th, Iran began extensive cooperation with its neighbors to
prevent terrorism and drug trafficking. Human trafficking,
trade in contraband, and poverty in the region contributed to
the difficulty in eradicating terrorism and drug trafficking.
Afghanistan, which has faced 20 years of hostility, suffers
most from these blights. There exists huge trade and human
potential in the region that must be harnessed. Security can
only be achieved if accompanied by economic development.
Iran, Afghanistan, Tajikistan, and Pakistan are particularly
interested in cooperating to develop trade and the region's
economic potential.
-- CSTO: Secretary General Nikolay Bordyuzha cited the large
number of international agencies active in Afghanistan and
the need to prevent unnecessary duplication of efforts. He
cited Russia and the U.S. for training customs and
counter-narcotics officials in Afghanistan. Kyrgyz and Tajik
drug enforcement agencies need technical assistance to
strengthen their potential. Countries throughout the region
need assistance to improve legislation to better fight
narcotics trafficking.
-- EU: Czech DFM Tomas Pojar cited EU donations to
Afghanistan totaling $8 billion from 2001-2010. EU
assistance is focused towards: 1) Training the Afghan army;
2) Promoting good governance and the rule of law, including
expanding EUPOL to 400 people; 3) Providing assistance and
possibly election monitors for the Afghan election; and 4)
Enhancing regional cooperation to stabilize Afghanistan.
-- UK: Special Representative for Afghanistan Sherard
Cowper-Coles said he was genuinely optimistic about the
future of Afghanistan when a gathering could be held that
brought together Russia, Iran, and others to reach a common
approach toward stabilizing the country. We all know what
needs to be done, and we all know that there are military and
non-military solutions. The UK is spending $4.7 billion
annually in Afghanistan, while the U.S. is spending
considerably more. Positive steps include the upcoming Hague
conference, the U.S. Afghanistan-Pakistan policy review, and
enhanced Afghan-Pakistan cooperation. He called upon all to
contribute in cash and in kind to support the Afghan
election, the credibility of which would help create a sense
of common purpose among the Afghan people. He cited the toll
of instability on people in the region, where three or four
MOSCOW 00000833 004 OF 005
Afghan police officers are killed every day, 4,600 Pakistanis
have died in terrorist attacks since 2001, and 3,000 Iranian
border guards have died attempting to interdict narcotics.
He closed by warning that if we don't hang together, then
surely we will hang separately.
-- U.S.: DAS Moon told the conference that the U.S. would
announce the results of the Afghanistan-Pakistan Strategic
Review later that day, and thanked U.S. allies, friends, and
especially Afghanistan and Pakistan, for their contributions
to this process. He highlighted the U.S. funding commitment
for the Afghan elections and urged others to donate. The
U.S. continues its support for the Afghan army and police,
but understands that the solution is not entirely military,
therefore, the international community must support building
good governance and expand the delivery of development
assistance. He urged support for two critical OSCE border
security projects planned for northern Afghanistan, and
ensuring that the UNSCR 1267 regime remained viable. The
intentional community needs to assist the Afghans to better
integrate counter-narcotics goals into security plans. The
contribution of UNODC deserves special praise, including its
initiative to advance counter-narcotics cooperation between
Afghanistan, Pakistan, and Iran. The focus of the
international community, as friends and partners of the
Afghans, should be on building their capabilities to manage
and sustain the efforts already underway.
Russia Appreciates U.S. Participation
-------------------------------------
¶4. (SBU) Russian DFM for Asia Aleksey Borodavkin closed the
conference by highlighting the SCO's important role in
combating terrorism, extremism, and drug trafficking. He
expressed hope that the conference participants would
continue the dialogue at the March 31 Hague conference in a
manner that would be "free from ideological overtones." In a
separate conversation with DAS Moon, Borodavkin expressed
appreciation for U.S. participation in the conference,
calling it a good first step in starting cooperation between
the SCO and U.S. Reaffirming the importance of cooperation
on Afghanistan to the Russia-U.S. relationship, he hoped that
the SCO conference's apparent success would help fine tune
the U.S. policy review on Afghanistan.
EU, Iran and China Differ on Declaration
----------------------------------------
¶5. (SBU) While the conference participants adopted a fairly
innocuous joint declaration, two issues prolonged the
declaration negotiation: several European countries'
objection to characterizing the SCO as "an appropriate forum"
for a wide dialogue on Afghanistan-related issues, and Iran's
insistence on language that would single out its "efforts and
sacrifice" in combating drug trafficking from Afghanistan.
In the first instance, EU members, particularly Germany and
the UK, expressed discomfort with agreeing to a qualitative
judgment of the SCO's capabilities when they were not members
of the organization. Their views met with firm opposition
from China, which resisted all alternatives. The final
declaration compromised by noting that the SCO was "one of
the appropriate fora" to discuss Afghanistan.
¶6. (SBU) In the second instance, the Iranian delegation
demanded that either Iran be singled out for praise, specific
reference to joint efforts by Afghanistan and Pakistan be
deleted, or the declaration not be approved. The Iranians
stood firm in the face of urgent appeals for reasonableness
from the Russian chair, Afghanistan, and China. Only Russian
behind-the-scenes intervention succeeded in reaching a
compromise by removing the entire paragraph on the importance
of joint actions between states to combat drug trafficking.
India, as an SCO observer country, served as a mediator in
the negotiating session, while Russia demonstrated
impartiality and flexibility as the chair.
By What Measure Success?
------------------------
¶7. (SBU) SCO members, Russian officials, and the Russian
press, declared the Moscow conference a success that would
enhance the role of the SCO in stabilizing Afghanistan.
Leading Russian daily Kommersant went so far as to declare
the success of the March 31 Afghanistan conference in The
Hague dependent upon the outcome of the Moscow conference.
Despite such self congratulations, a MFA official who was a
principal organizer of the meeting lamented that success was
measured by agreement upon three general statements and no
concrete results. By typical Russian metrics, simply holding
MOSCOW 00000833 005 OF 005
an international conference of this magnitude is considered a
diplomatic victory.
¶8. (U) DAS Moon has cleared this cable.
BEYRLE