| ID: 08COPENHAGEN335 Dokument dato: 2008-06-11 Release dato: 2011-01-09 07:31:00 Kilde: Embassy Copenhagen header:
UNCLAS SECTION 01 OF 05 COPENHAGEN 000335
SENSITIVE
SIPDIS
E.O. 12958: N/A
TAGS: PGOV, PREL, SENV, OVIP, PBTS, PHSA, KGHG, ENRG, ETRD,
EPET, EFIS, EWWT, MARR, DA, CA, NO, RS, XQ
SUBJECT: DEPUTY SECRETARY´S PARTICIPATION AT ARCTIC OCEAN
CONFERENCE IN GREENLAND
REF: COPENHAGEN 288
COPENHAGEN 00000335 001.2 OF 005
1. (SBU) Summary: Deputy Secretary Negroponte led the U.S.
delegation to the Arctic Ocean Conference hosted by the
Kingdom of Denmark and Greenland Home Rule Government in
Ilulissat, Greenland May 27-29. In closed discussions during
the conference and at a concluding press conference, all
participants stressed mutual interests in the Arctic Ocean.
In these and private bilateral meetings with the Danish,
Greenlandic, Norwegian, and Canadians (septels), the Deputy
Secretary emphasized USG engagement in the Arctic and
encouraged cooperative, pragmatic solutions to shared
problems in the face of changing conditions. He also sought
a common approach with the Danes and Norwegians on engagement
with Moscow.
2. (SBU) In an "Ilulissat Declaration" issued at the
conclusion of the conference, the five Arctic Ocean coastal
states affirmed their commitment to the law of the sea legal
framework and to the orderly settlement of any possible
overlapping claims in the Arctic. They also committed to
ensure the protection of the fragile marine environment of
the Arctic Ocean and to promote safety at sea. The
declaration included references to strengthening search and
rescue capabilities and capacity around the Arctic Ocean,
strengthening cooperation on the collection of scientific
data concerning the continental shelf and other scientific
research, and contributing to the work of the Arctic Council
and other relevant fora. End Summary.
3. (U) Background: The conference was a Danish initiative,
announced by FM Moeller last fall, in response to public
perceptions of a potentially dangerous "race in the Arctic"
between states with overlapping territorial claims in the
Arctic Ocean. In addition to the Deputy Secretary, the U.S.
delegation consisted of (U.S.) OES A/S Claudia McMurray,
Department Legal Advisor John Bellinger, Ambassador to
Denmark James Cain, D Special Assistant Edward Wittenstein,
and REO Hall (note taker). Danish FM Per Stig Moeller and
Greenland Home Rule (GHR) Premier Hans Enoksen were co-hosts;
GHR Minister for Finance and Foreign Affairs, Aleqa Hammond,
also participated for the Greenlandic delegation. Foreign
Minister Sergei Lavrov led the Russian delegation; Foreign
Minister Jonas Gahr Stoere led the Norwegian delegation;
Minister of Natural Resources Gary Lunn led the Canadian
delegation. The text of the "Ilulissat Declaration" is
available at http://www.um.dk/en.
Words from the Co-hosts
-----------------------
4. (U) The conference opened with welcoming remarks from FM
Moeller, who outlined the need for Arctic coastal states to
commit to an orderly and rules-based process to settle
territorial claims, and the mutual interest in cooperation on
issues to protect the Arctic region. Premier Enoksen
emphasized the need to involve Arctic residents in issues
affecting their livelihoods, a theme echoed throughout the
conference by GHR FM Hammond and Canadian Minister Lunn.
Expert Presentations Spark Questions
------------------------------------
5. (U) Following words of welcome, guest speakers made the
following presentations: on climate change affecting the
Arctic by Dr. Pal Prestrud, Director of the Center for
International Climate and Environmental Research (Oslo); on
issues relating to local inhabitants and indigenous
communities by Aqqaluk Lynge, Vice Chair of the Inuit
Circumpolar Council; and on commercial opportunities in the
Arctic by Sergey Frank, former Russian transport minister and
CEO of a Russian shipping company, Sovcomflots.
6. (U) Asked by FM Stoere about the state of Arctic
scientific research, Dr. Prestrud admitted that on key
issues, data was either short-term or lacking. Research
being conducted as part of International Polar Year (IPY)
would help, but needed follow-up. Stoere said Norway, as the
COPENHAGEN 00000335 002.2 OF 005
current chair of the Arctic Council, would convene a
sub-ministerial political meeting to discuss the results of
the Ilulissat conference. The Greenland Premier agreed such
a meeting was important, and urged that indigenous Arctic
residents have a voice at that meeting.
7. (U) Lynge emphasized colonial errors of the past
(including relocation of indigenous people from a community
near Thule AFB) and asserted that "all Inuit own the Arctic."
Asked by FM Moeller whether he was afraid of new
opportunities in the Arctic, Lynge replied "we are not afraid
of anything when we are included in the response." He cited
increased cooperation with U.S. researchers as positive and
concluded that "we need your assistance and you need our
(traditional) knowledge." Canadian minister Lunn lauded
Inuit cultural respect for the environment and said that
while continental shelf territorial claims could only be
handled by sovereign states, local and indigenous residents
of the Arctic should be involved in decision-making. FM
Lavrov asked Lynge whether existing Arctic institutions
needed to be modified. Lynge urged greater indigenous
participation in all Arctic institutions.
8. (U) Russian CEO Frank emphasized that commercial
opportunities for increased shipping in an increasingly
ice-free Arctic were not for the faint of heart, because
profit requires high up-front costs for specialized shipping
technologies. He urged Russian, Norwegian and Danish ship
builders to cooperate to prevent the industry from migrating
to lower-cost Asia.
Russians Defensive, Revive Dormant SAR Proposal
--------------------------------------------- --
9. (SBU) Though requested by FM Moeller to address "General
foreign and security policy issues/challenges in relation to
the Arctic Ocean," Russian FM Lavrov instead chose to
emphasize other themes in the afternoon session. On climate
change, he discounted human activity as a driver for global
warming in the Arctic, saying the issue requires further
study including evidence of cyclical warming there. FM
Moeller later volunteered his own view that sunspots play an
important role in global warming; FM Stoere countered that
the best scientific evidence on global warming is
incorporated in the IPCC report, and urged all to base their
policies on the precautionary principle.
10. (SBU) Lavrov downplayed international reaction to the
planting of a Russian flag on the North Pole sea bottom in
2007 as a misunderstanding, expressing Russian respect for
the UN Law of the Sea (UNCLOS) framework to resolve competing
territorial claims. On indigenous participation, Lavrov
claimed Russia listened "attentively" to concerns of
indigenous residents of the Russian Arctic, saying that
protection of indigenous rights is "integral" to Russian
Arctic policy.
11. SBU) Lavrov concluded by proposing the creation of an
Arctic search and rescue (SAR) organization, preferably with
a unified coordination of service. The Deputy Secretary
asked for clarification of the proposal, saying the U.S. came
to the conference prepared to support discussions about a
possible SAR agreement between the five states and perhaps
others. Lavrov responded that the Russian proposal had been
tabled in the Arctic Council several years ago, and would be
something for "our professionals to follow-up." FM Stoere
suggested that he, as Chairman of the Arctic Council, present
the issue in that forum; the Deputy Secretary, FM Lavrov and
FM Moeller voiced agreement. Premier Enoksen praised
potential cooperation on SAR and said Greenland and Iceland
had already had some discussions.
U.S. Promotes Dialogue and Science
----------------------------------
12. (SBU) The Deputy Secretary opened his discussion of
"Cooperation in relation to the Arctic Ocean" by noting that
while the U.S. is not a party of the UNCLOS, we treat it as a
COPENHAGEN 00000335 003.2 OF 005
matter of customary international law, and the Administration
is seeking Senate advice and consent to accession. He urged
participants to consider resolving existing maritime boundary
disputes in addition to new Arctic continental shelf claims.
To help to understand the science of the Arctic, the U.S. is
committed to such research and urges all states to be prompt
and responsive to requests for marine scientific research
within their exclusive economic zones, he said. Areas for
potential cooperation between the five and other interested
parties include SAR; oil and gas guidelines adopted by the
Arctic Council in 2002, which could be updated; as could
shipping guidelines in the International Maritime
Organization (IMO). FM Moeller thanked the Deputy Secretary
for his "promising remarks" on UNCLOS ratification, and
agreed upon the need for increased scientific research,
especially into the Gulf Stream and other ocean currents.
Canada "On Track" in North
--------------------------
13. (SBU) In his presentation on "Operational issues in
relation to the Arctic Ocean," minister Lunn noted the
importance to Canada of its "Northern Strategy" announced by
PM Harper. He highlighted Canadian support for IPY projects,
Canadian-Danish cooperation in mapping the continental shelf
(for which Canada has set aside Canadian $40 million over the
next four years), and said Canada was "on track" to submit
its claim to the UNCLOS commission by 2013. He emphasized
the need for Arctic coastal state cooperation, and listed
Canadian agreements with Denmark, the U.S., and Russia. On
Arctic shipping, Canada is considering making a voluntary
ship inspection system mandatory. FM Moeller quipped that
despite Denmark´s dispute with Canada over Hans Island
("which of course is Danish"), Denmark had found a way to
cooperate with Canada over the use of that site.
Norway Pushes Arctic Council Follow-up, More on Flag-Planting
--------------------------------------------- ----------------
14. (SBU) FM Stoere began his presentation on the theme of
"Protection of the marine environment in relation to the
Arctic Ocean" by citing growing threats to the Arctic
environment posed by oil shipping or rig accidents and
increased tourist cruises. While a legal "toolbox" currently
exists in the UNCLOS, it is not adequate, Stoere maintained.
Some in the Norwegian Parliament propose the creation of an
Arctic treaty, but he did not think that necessary. UNCLOS
allocates rights and obligations and the IMO regulates
shipping, so there is no lack of rules. Arctic coastal
states now need to set policies and implement them.
15. (SBU) Also important, Stoere said, was the need to
follow up in the Arctic Council, with more focus on policy
making He proposed that a deputy ministerial meeting be held
in the fall to report on Ilulissat outcomes, raise the SAR
proposal, revise oil and gas guidelines, and discuss
short-lived climate drivers such as soot and methane. Norway
also supports follow-up of IPY with further marine research.
In response, FM Moeller agreed that there was no need for
another Arctic policy forum or treaty. He urged the use of
the IMO for discussions of maritime safety. That said, he
said "we cannot exclude the possibility of follow-up meetings
of this group (of five)."
16. (SBU) Responding to a reference in FM Stoere´s
presentation of Russia´s flag-planting episode, Lavrov
emphasized that the action did not signify a claim to the
Pole. He cited the U.S. planting of a flag on the moon or
climbers planting their national flags on Everest as more
analogous to the Russian action. D encouraged cooperation in
the delimitation of the continental shelf; Lunn cited
Canadian cooperation with Denmark over Hans Island; and
Lavrov cited Russian cooperation with Norway. FM Moeller
summed up this discussion by observing that "planting a flag
does not mean ownership." Greenland FM Hammond praised
respect by the coastal states of UNCLOS and urged
strengthening of the IMO.
COPENHAGEN 00000335 004.2 OF 005
17. (SBU) FM Moeller wrapped up the conference discussion
period by soliciting and receiving agreement from
participants for the Ilulissat Declaration, which was then
made public. Moeller summed up action items, including
follow up with the Arctic Council and IMO, and the imperative
of considering impacts of policies on local Arctic
inhabitants. In his concluding remarks, Premier Enoksen
thanked all delegations for the spirit of unity apparent at
the conference. Signaling concern over U.S. listing of the
polar bear as a threatened species, Enoksen said indigenous
peoples ancestors had lived off Arctic animals for thousands
of years without ever threatening their extinction. He
thanked FM Moeller for his initiative in conceiving the
conference, and the Danish state for its support to
Greenland, expressing hope that the Danish state be a role
model to others for its treatment of its indigenous
population.
Press Probe in Vain for Conflict
--------------------------------
18. (U) At the concluding press conference, FM Moeller
declared that Denmark´s aims for the conference had been
fulfilled and described the joint commitment of participating
states to the legal framework of the UNCLOS. FM Stoere
announced his intention to convoke a meeting of all Arctic
Council members to share the results of the Ilulissat
conference, and emphasized the need for new policies on SAR.
The Deputy Secretary highlighted U.S. research initiatives
totaling $400 million annually for the past six years, the
need for unfettered research cooperation, and the importance
of SAR, shipping, environmental protection, commercial
fishing and adherence to the law of the sea. Minister Lunn
emphasized that the continental shelf delimitation would
follow an "orderly, rules-based process," not a "race," and
that the "peoples of the north need to be a part of the
solution." FM Lavrov emphasized Russia´s intention to
resolve issues through negotiation and complement the work of
the Arctic and Barents Euro-Arctic Councils. He announced
two initiatives: the creation of a Russian safety system
when implementing economic and infrastructure projects in the
Arctic, and the resurrection Russia´s SAR proposal in the
Arctic Council. FM Lavrov thanked Norway as Council
President, and pledged to "further strengthen scientific
cooperation with all our neighbors on the basis of rules as
part of the Law of the Sea."
19. (SBU) In the question and answer session that followed
opening statements, FM Lavrov dismissed as "hypothetical"
questions about possible joint territorial claims under
UNCLOS, saying "we have agreed we will follow rules and the
(UNCLOS) commission will decide based on the scientific
evidence." Later, in response to a question about why the UN
is not mentioned in the Declaration, FM Lavrov quipped "I
believe our colleagues (in the press) are very tired, since
they are raising non-existent issues." (Note: the UNCLOS is
not explicitly mentioned in the declaration, but rather "the
law of the sea" is mentioned, since the U.S. is not a yet a
party.)
20. (U) Asked why, given the unity emphasized by all
participants, there was a need to meet at all, FM Moeller
replied that he felt it was important to clarify shared views
and commitments to the rule of law as Arctic coastal states.
Moeller later said that "it would be strange if there were
not overlapping claims," for the commission to decide. The
Deputy Secretary emphasized the opportunity for cooperation
and collaboration on issues of common concern, including
safety at sea, scientific collaboration, and climate change.
Asked about the impact of the Ilulissat Declaration on other
states, FM Moeller said the Declaration applied only to the
five Arctic coastal states, which did not "substitute" for
the Arctic Council. FM Stoere said Norway favored an open
dialogue with other interested states on Arctic issues.
21. (U) Asked whether global warming was positive or
negative for the Arctic, FM Lavrov said the issue required
further research, but where opportunities arose, they should
COPENHAGEN 00000335 005.2 OF 005
be pursued. Lunn said there was no question warming is
affecting the peoples of the Arctic and states should do all
they could to help them mitigate and adapt to changes. FM
Moeller said warming had positive and negative effects,
including positive effects for Greenland, which gains more
access to resources through warming, but negative effects for
the rest of the world. He cited international efforts to
deal with the ozone hole as far back as 1992 as a model of
what can be done to address global warming. Premier Enoksen
listed examples of how warming is affecting Greenlanders in
both positive (e.g. the return of cod to Greenland´s waters,
longer growing season, access to previously ice-covered
mining resources) and negative (undermining infrastructure
including building foundations, landing strips) ways. He
concluded that climate change was cause for concern to
Greenland and the rest of the world, and it would be
important for Arctic peoples to have a voice on the issue.
FM Stoere cited the IPCC´s conclusions that greenhouse gas
emissions be curbed and expressed hope for an agreement at
the 2009 climate summit in Copenhagen.
22. (SBU) The Deputy Secretary said the effects of climate
change on the Arctic (increased navigation, tourism, and oil
and gas exploration) had been the subject of discussion at
the conference. The U.S. was committed to participating in
UN negotiations addressing ways to mitigate climate change
and was prepared to make binding commitments in those talks,
provided other nations do so as well. He also highlighted
the President´s Major Economies Process and the upcoming G8
meeting in Japan.
23. (U) In response to a question about whether the
Greenland Home Rule government would be invited to subsequent
meetings held outside Greenland, FM Lavrov simply thanked the
Danish government for organizing the conference and inviting
Russia to participate. The Deputy Secretary said it had been
very valuable to hear directly the perspective of the Premier
and FM Hammond, and noted that they made interventions on
virtually every subject discussed at the conference. Asked
if the Ilulissat Declaration would change U.S. and Canadian
disagreement over the Northwest Passage, Lunn said that was a
different issue.
24. (U) Asked if the "race for the Arctic" had ended in
Ilulissat, FM Moeller gave an emphatic "Yes," and minister
Lunn called out "it never started!," concluding the exchange
with the press.
Comment
-------
25. (SBU) The conference achieved FM Moeller´s declared
aims, and went largely according to plan. Conference
outcomes were never in doubt, with the Ilulissat Declaration
negotiated beforehand between all participants. FM Lavrov
seemed keen to downplay Russian flag-planting and earn Russia
credit for its search and rescue proposal. Stoere´s
announcement of a fall Arctic Council meeting to brief on
Ilulissat will presumably help allay concerns of Council
members not invited to the conference (Iceland, Sweden and
Finland). Beyond that, no follow-up meeting of the five
coastal states was planned, although FM Moeller left that
door open.
26. (U) The Deputy Secretary´s party reviewed this cable.
CAIN
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