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### Viewing cable 08UNVIEVIENNA634, GETTING THE MOST OUT OF PARIS PACT

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
08UNVIEVIENNA634 | 2008-12-02 15:43 | 2011-04-28 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | UNVIE

`

    VZCZCXYZ0000
    OO RUEHWEB

    DE RUEHUNV #0634/01 3371543
    ZNR UUUUU ZZH
    O 021543Z DEC 08
    FM USMISSION UNVIE VIENNA
    TO RUEHC/SECSTATE WASHDC IMMEDIATE 8759
    INFO RUCNDT/USMISSION USUN NEW YORK 1411
    RUEKJCS/SECDEF WASHDC
    RUEHBUL/AMEMBASSY KABUL 0242
    RUEHOT/AMEMBASSY OTTAWA 0583
    RUEHIL/AMEMBASSY ISLAMABAD 0211
    RUEHVEN/USMISSION USOSCE 0262
    RUEHNO/USMISSION USNATO 0069
    RHMFIUU/HQ USCENTCOM MACDILL AFB FL
    RUEHNA/DEA WASHDC

` `

    UNCLAS UNVIE VIENNA 000634

    SECSTATE PASS TO AFGHANISTAN COLLECTIVE

    SENSITIVE

    SIPDIS

    E.O. 12958: N/A
    TAGS: SNAR KCRM PREL AF IR CA PK UN

    SUBJECT:  GETTING THE MOST OUT OF PARIS PACT

    REF:  A. STATE 118430,  B. TSAI-CLINE EMAIL 10/31/08
      ¶C. STATE 102413

    -------
    SUMMARY
    -------

    ¶1.  (SBU) The upcoming December 15-16 annual meeting of the Paris
    Pact Consultative Group is a venue for USDEL to advance USG
    counternarcotics objectives in Afghanistan by expressing support the
    UNODC's "Rainbow Strategy." Specifically, the U.S. can use this
    forum to encourage donor contribution to the thus far solely
    U.S.-funded Good Performers' Initiative, as a way to increase the
    number of poppy-free provinces in Afghanistan.  Secondly, we can
    encourage the expansion of the border control programs in the
    Rainbow Strategy, to countries which span the trafficking route from
    Afghanistan to Europe.  The USG should also consider increasing its
    financial contributions to reward the UNODC's successful Operation
    TARCET to interdict precursor chemicals and to permit TARCET's
    continuation beyond its one-year timeframe.  Lastly, the U.S. should
    consider using the forum to start engaging Iran, which is both a
    transshipment and consumption country of Afghan opium.  While the 56
    Paris Pact members are united in their commitment to fight the
    Afghan narcotics problem, they look to the U.S. for leadership and
    we should use this venue to promote our plans for getting to that
    overarching objective.  END SUMMARY.

    ----------
    BACKGROUND
    ----------

    ¶2. (U) Launched in May 2003, the Paris Pact, comprising 56
    "government partners" and several international organizations, is
    intended to tackle the drug problem in Afghanistan through regional
    cooperation.  On the operational level, this has translated into
    cooperation in border control measures, in interdiction of precursor
    chemicals, and in the push to make Afghan provinces opium-free.
    Three annual expert-level roundtables produce recommendations which,
    when implemented, advance these broad goals.  In its early days, the
    Paris Pact defined its priorities as improving regional cooperation
    in West and Central Asia, strengthening border control in the same
    region and establishing legal and institutional frameworks in key
    countries.  Over the years, UNODC, working with the Pact members,
    has refined these priorities and articulated them in greater detail
    in what came to be known in 2007 as the "Rainbow Strategy,"
    consisting of seven action "outlines" described in seven papers of
    rainbow colors.

    ¶3. (U) Among other objectives, the Rainbow Strategy aims to improve
    management of Afghanistan's border with its immediate neighbors
    Iran, Pakistan, and Turkmenistan, strengthen border control in
    transit countries in Central Asia and around the Caspian Sea, and in
    East Africa (the Green, Yellow and Violet papers).  In addition, the
    Strategy defines measures to stem the flow of precursor chemicals
    for the manufacture of heroin in Afghanistan (the Red Paper), to
    disrupt the laundering of drug money (the Orange Paper), and to
    prevent/reduce drug addiction and the spread of HIV/AIDS in
    Afghanistan and the region (the Indigo Paper).  Arguably, the road
    map to make Afghanistan opium poppy-free (the Blue Paper) provides
    the chapeau for a chain of actions that, if completely successful,
    could render the other six unnecessary.

    ---------------------------
    PROMOTING OPIUM POPPY-FREE
    ROADMAP THROUGH THE GOOD
    PERFORMERS' INITIATIVE
    ---------------------------

    ¶4. (SBU) Financial incentives have been a key factor in increasing
    the number of poppy-free provinces in Afghanistan.  Of Afghanistan's
    34 provinces, two were poppy free in 2004, six in 2005 and 2006, 13
    in 2007, and 18 in 2008.  The Afghan government has dispensed funds
    from its Good Performers' Initiative (GPI) to reward provinces for
    reducing or stopping poppy cultivation, such as in the case of
    Nangahar, which became poppy-free in 2008.  Currently the United
    States is the only donor to this Initiative, contributing $28
    million in 2008. Canada, a Paris Pact partner, and the largest donor
    to UNODC's Afghanistan activities, may be persuaded to contribute to
    the GPI.

    ¶5. (SBU) Canada gave Cdn$27 million to UNODC for its Afghanistan
    programs over the two years 2007-2009.  The Canadian government has
    approved another Cdn$25 million for the same purpose for the two
    years starting April 1, 2009.  Canada's particular interest in
    Afghanistan is border security.  For 2009-2011, it will add Kandahar
    as a focus.  On the margins of the December 15-16 Paris Pact
    meeting, USDEL should meet with the Canadian delegation to explore
    the possibility of Canadian contribution to the GPI.   On December
    16, Canada will co-chair agenda item IV "The Paris Pact Initiative:
    Implementation of Paris Pact Recommendations for Afghanistan and
    Neighboring Countries."  UNODC's Rainbow Strategy will be discussed
    under this item, and the "Opium Poppy-free Roadmap" is one of the
    sub-topics.  USDEL interventions under this topic could usefully
    include a call for contributions to the GPI.

    --------------------------
    EXPANDING BORDER CONTROL:
    GO WEST, AND SOUTHWEST
    --------------------------

    ¶6. (SBU) Afghan heroin and morphine for western Europe go through
    Central Asia, Turkey and the Balkans and Eastern Europe, and more
    circuitously through East Africa via the Levant/Arabian peninsula.
    According to UNODC's 2008 World Drug Report, Near and Middle
    East/South-West Asia together accounted for 60% of the seizures of
    heroin and morphine in the world in 2006, and southeast and east
    Europe another 14%.  These seizures indicate the magnitude of the
    heroin trafficking through these regions.  The scant amount (0.1%)
    seized in East Africa in 2006 is less a measure of the problem than
    a reflection of the inadequate capacity of the East African
    countries to fight drug trafficking.

    ¶7. (U) The Paris Pact has broadened its early focus on controlling
    the border between Afghanistan and its immediate neighbors (Iran,
    Pakistan, and the Central Asian states) to include countries west of
    Central Asia.  Working within the Paris Pact framework, UNODC first
    established operational measures, such as mobile interdiction teams,
    border liaison offices, and the Central Asian Regional Information
    and Coordination Center, or CARICC.  In 2007 it added a border
    initiative for Turkmenistan and the Caspian Sea region.  In 2008 it
    held an expert round table for the Black Sea region on both
    counternarcotics enforcement and drug demand reduction.  Also in
    2008, with the advocacy and support of the United States, Paris Pact
    held its first round table outside Eurasia, in Nairobi, Kenya.  That
    roundtable sought to analyze, among other issues, the trafficking of
    Afghan opiates to and through East Africa, and to identify priority
    actions to address this problem.

    ¶8. (SBU) The United States should encourage this push for border
    management and other counternarcotics actions moving westwards and
    southwards.  Fighting Afghan heroin trafficking therefore should
    involve many countries that lie between Afghanistan and the western
    Europe on the trafficking route.  Given the excellent law
    enforcement and counternarcotics infrastructure and abundant
    resources in Europe (e.g., EC, EUROPOL), we think U.S. resources may
    be better utilized on such efforts in East Africa, where the
    Europeans have displayed less enthusiasm.  USDEL may wish to
    intervene accordingly under Agenda item I.a. (presentation on the
    Black Sea roundtable) and I.b. (presentation on the East Africa
    roundtable) on December 15.

    ----------------------
    REWARD SUCCESS IN
    INTERDICTING PRECURSOR
    CHEMICALS
    -----------------------

    ¶9. (U) UNODC, with the cooperation of a number of Paris Pact
    partners (United States, Australia, Canada, France, Germany, Italy,
    Russia, and the U.K.) helped Afghanistan and the surrounding
    countries to launch Operation TARCET in late 2007-early 2008.
    TARCET aims to disrupt the flow of precursor chemicals (acetic
    anhydride and others) into Afghanistan, which is needed to convert
    opium into heroin.  TARCET (the Red Paper of the Rainbow Strategy)
    trains law enforcement officers in detection techniques and
    methodology and promotes information/intelligence sharing among the
    countries.  The results have been impressive -- with seizures in
    2008 of 19 tonnes of acetic anhydride, and over 20 tonnes of other
    chemicals in Iran, Pakistan, Kyrgyzstan and Uzbekistan.

    ¶10. (SBU) Signaling the importance of fighting the flow of precursor
    chemicals into Afghanistan, the UN Security Council passed
    Resolution 1817 in June 2008, a resolution also adopted by the
    Ministerial meeting on Afghanistan convened in Paris in June.  The
    UNSC resolution, "welcomes" the TARCET initiative, and "invites" the
    international community to provide financial and technical
    assistance and support to the relevant countries and to UNODC to
    help them fight the traffic in precursor chemicals.  Recently the
    USG contributed more than $370,000 to UNODC for such purpose (Ref
    C).  Further financial support will enable Operation TARCET to
    continue beyond its one-year time-frame.

    -------------
    ENGAGING IRAN
    -------------

    ¶11.  (SBU) Within the Paris Pact framework, UNODC launched in Vienna
    in June 2007 the Triangular/Trilateral Initiative to enhance border
    cooperation among Afghanistan, Pakistan, and Iran. In a second
    meeting in Tehran in May 2008, the parties agreed to follow-on steps
    including border liaison offices, cross-border telecommunication
    links, information and intelligence sharing, and a common policy
    towards sea and land trade.  Combating counternarcotics remains a
    priority for the Iranian regime because of its domestic drug abuse
    problem and the violence in southeast Iran related to the drug
    trade.  Our UNODC and diplomatic colleagues argue that Iran has made
    laudatory efforts to combat the problem through comprehensive drug
    treatment and border-control programs.  The U.K. already works
    closely with Iran on counternarcotics cooperation and Iran has
    requested repeatedly additional aid from the U.K. and others,
    including in nuclear-related discussions with the EU-3.

    ¶12. (SBU) Earlier, UNODC floated the idea of holding one of the
    three 2009 roundtables in Iran, provided Iran would agree to invite
    all Paris Pact members (Refs A and B).  Recently UNODC's Paris Pact
    Coordinator told Counselor that it had approached the Iranian
    Mission in Vienna, which  refused to provide such a guarantee.
    (NOTE:  Ref A also instructed Mission not to support such a
    roundtable in Tehran. END NOTE.) If USG policy towards Iran should
    change to permit contact with Iran, USDEL could find many
    opportunities around the expert-level roundtables -- to be held
    elsewhere -- to open an informal dialogue with Iran on technical
    counternarcotics issues.  UNODC maintains a small field office in
    Tehran, and claims to be the only UN entity in Iran still
    constructively engaged with the government.

    -------
    COMMENT
    -------

    ¶13. (SBU) The Paris Pact is a large and diverse group of countries
    united in their commitment to fight the Afghan drug problem. While
    the overarching goal is the same for all, the tactics for getting
    vary among member states.  The USG should use the December Paris
    Pact meeting to promote our plans of getting to that goal (e.g., the
    GPI), to advance our particular interests (e.g., East Africa) and to
    engage a long-standing nemesis, if our policy should change to
    permit such contact.  End Comment.

    SCHULTE

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