C O N F I D E N T I A L STATE 088235 SIPDIS E.O. 12958: DECL: 08/13/2018 TAGS: OSCE, PREL, PBTS, GG, RS SUBJECT: TFGG01: ACTION REQUEST: DEMARCHE TO GAIN SUPPORT FOR ADDITIONAL OSCE MONITORS IN GEORGIA REF: A. 85678 B. 86108 Classified By: EUR DAS David Merkel for reasons 1.4 (b) and (d) NIACT Immediate Precedence because action required in advance of OSCE deliberations August 18. 1. (U) This is an action request; see paragraphs 2-3. 2. (C) On August 14, Organization for Security and Cooperation in Europe (OSCE) participating states were unable to reach consensus on a Finnish Chairman-in-Office (CiO) Draft Decision (DD) to increase the number of Military Monitoring Officers (MMOs) for the OSCE's Mission to Georgia by up to 100 (there are currently eight MMOs). Russia remains the lone holdout to reaching agreement, having agreed "in principle" to increasing the number of MMOs, but calling for clear delineation of MMO responsibilities and urging the deployment of officers throughout Georgia -- not just in the zone of conflict. Russia claimed that Moscow was studying the proposal. Although there are some indications that Russia will be prepared to accept the Mission, we are concerned that the conditions Moscow may attach to its instructions for August 18 will be tantamount to delaying tactics. We therefore believe it is useful to and seek to put pressure on Russia to agree to the DD as is, or present suitable modified text immediately. The Finnish Chair has begun informal consultations and will likely convene a special Permanent Council meeting next week for a decision to be taken, assuming that Russia can be persuaded to go along. 3. (SBU) Begin points: ------------------------------- For Moscow, Paris, and Helsinki ------------------------------- -- Events on the ground in Georgia urgently require MMO efforts to provide a clear and objective picture of the humanitarian situation and prevent further deterioration of relations among all ethnic groups. -- It is important that we uphold our mutual principles and commitments and act now. OSCE decision to increase the number of monitors is a critical first step to reducing tensions. -- The United States will lend assistance and resources to support increasing MMOs. We welcome your government's efforts to provide funding, equipment and personnel to support MMOs. --------------- For Moscow Only --------------- -- Welcome your agreement in principle to support increasing the number of Military Monitoring Officers (MMOs) in Georgia by up to 100. -- Urge you to join consensus and accept the Draft Decision (DD) as is, or with as few changes as possible. -- Concerned however that some of the conditions you may attach to your approval may have the practical effect of only delaying much-needed OSCE efforts. -- Believe current MMO mandate is adequate to implement the DD. -- OSCE participating States can discuss details of modalities and parameters of MMO functions once a DD is adopted. -- Critical that we agree to an increase in MMOs now to avert further deterioration of situation. -- Important to support the efforts of the OSCE Chairman-in-Office in working with all sides to manage this crisis. --------- For Paris --------- -- The United States strongly supports France's efforts, as President of the European Union, to broker an agreement that will end this conflict and preserve Georgia's territorial integrity. -- At OSCE, our first priority is to ensure that Russia will allow an expanded monitoring mission to go forward on the ground. -- While we have received some indications that Moscow will instruct its delegation to support an OSCE mission, we are concerned that the conditions Russia may attempt to attach to the decision will only lead to further delay. -- Request your support to get Moscow to agree to the OSCE decision with minimal or no modification. -- We welcome France's willingness to provide 5 monitors. We would appreciate your efforts to encourage other EU member states to follow your lead. -- Regarding the mission itself, our preference is to use the term "Mission Monitoring Officers" instead of "Military Monitoring Officers" in order to provide greater flexibility in the functions of the MMOs in the implementation of the OSCE decision. We have suggested to the Finnish CiO to change the text of the Draft Decision to reflect this, and would encourage you to do likewise. ------------ For Helsinki ------------ -- Deeply appreciative of proactive Finnish CiO leadership and mediation role to help reach a cease-fire. -- At OSCE, our first priority is to ensure that Russia will allow an expanded monitoring mission to go forward on the ground. -- While we have received some indications that Moscow will instruct its delegation to support an OSCE mission, we are concerned that the conditions Russia may attempt to attach to the decision will only lead to further delay. -- Appreciate your efforts to get Moscow to agree to the OSCE decision with minimal or no modification. We are demarching Moscow, and encouraging France on behalf of the EU Presidency to do likewise. -- Regarding the mission itself, our preference is to use the term "Mission Monitoring Officers" instead of "Military Monitoring Officers" in order to provide greater flexibility in the functions of the MMOs in the implementation of the OSCE decision. Suggest the Finnish CiO change the text of the Draft Decision to reflect this. -- Regarding FM Stubb's request for immediate assistance for the deployment of Armored Personnel Carriers (or similar protective vehicles) to Georgia to support the movement of MMOs, our understanding is that Germany and Ukraine will provide approximately fifteen vehicles; the U.S. is actively exploring airlift options. The USG needs a formal request in writing from the Finnish CiO to act upon the lift request. -- Urge Finnish CiO to push the OSCE Secretariat to develop credible, operational plans to deploy MMOs and rapidly implement the decision, once adopted. Recommend working with the Border Unit staff on ideas for making the best use of MMOs. -- If Russia continues to delay or block a decision, Finnish CiO should consider consulting with OSCE High Commissioner on National Minorities (former Norwegian Foreign Minister Knut Vollebaek, based in Copenhagen) about possibility of deploying HCNM observers to Georgia on an urgent basis as a way of getting additional eyes on the ground. (Note: HCNM mandate does not require "consensus at 56" for action.) RICE