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### Viewing cable 04MONTREAL1464, EU Additionality at ICAO: EC Efforts to obtain

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04MONTREAL1464 | 2004-11-12 20:01 | 2011-04-28 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Consulate Montreal

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    This record is a partial extract of the original cable. The full text of the original cable is not available.

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    UNCLAS SECTION 01 OF 03 MONTREAL 001464

    SIPDIS

    SENSITIVE

    FOR IO, EUR and L (JGergin)
    FROM US MISSION TO ICAO

    E.O. 12958:  N/A
    TAGS: AORC EAIR EU ICAO
    SUBJECT:   EU Additionality at ICAO:  EC Efforts to obtain
    Observer Status

    ¶1.  (U) Summary and action request.  As Department is aware,
    for some time the European Union has been talking with high
    level officials of the International Civil Aviation
    Organization about its desire to have an enhanced and
    permanent presence at ICAO.  Of 36 current Council members,
    8 are from Europe.  ICAO Council President Assad Kotaite has
    told US Permanent Representative Ambassador Stimpson that
    Rule 33 of the Council's Rules of Procedure would permit the
    Council to invite the EC to observe and participate in
    Council meetings on a regular basis when issues are
    discussed over which the EC has competence.  When asked, US
    Mission has explained US policy against EU additionality.
    Mission reading of Council Rules raises a number of
    questions and Post requests guidance from L per para 11
    below.   Kotaite also said that the Air Navigation
    Commission's Rules of Procedure would permit similar
    participation.

    ¶2.  (SBU) US Mission has obtained a copy of a letter from
    Kotaite to EC Vice-President Loyola de Palacio containing
    his interpretation of Council and Commission rules.  The
    letter states that there would be "no legal obstacle for a
    delegation of the Commission to ICAO to be established in
    Montreal to represent the interests of the EC."  Text of
    letter is contained in para 13 below.   EC tried to obtain
    diplomatic status through its bilateral mission in Ottawa
    and was turned down.  Meanwhile, the EC continues to look
    for office space at ICAO, and, we understand, hopes to have
    its presence at ICAO established by early Spring. Canadian
    PermRep's personal belief is that some of the Rules of
    Procedure, which were written by Kotaite and increase his
    powers, including the right to invite observers to Council,
    are inconsistent with the Chicago Convention and should
    undergo review.  The Canadian outlined his personal three-
    point strategy.  He recommends high-level bilateral
    (US/Canada) discussions in the near future, and a strong and
    immediate response in opposition should Kotaite
    "accommodate" the EC in a way that bypasses Council
    approval.  End summary and action request.

    ¶3.  (SBU) ICAO Council President Assad Kotaite called on
    Amb. Stimpson on Nov. 3.  Among other things, the two
    discussed the EC's request for a more active role at ICAO
    through permanent observer status (with the right to speak).

    ¶4.  (U) Background.  The Chicago Convention does not provide
    for "Observer" status. The Council's Rules of Procedure --
    which were written by Council President Kotaite -- allow the
    Council to invite observers on matters of interest to them.
    Kotaite has a list of organizations from which he chooses to
    send invitations as he feels appropriate (Council members
    sometimes suggest additional observers from Kotaite's list
    for a particular meeting, but getting new entities on that
    list has proven difficult.)  In addition, anyone from the
    public may observe a Council meeting so long as the meeting
    has not been declared "closed" due to the sensitive nature
    of the issue under discussion.  End background.

    ¶5.  (U) Kotaite told Ambassador Stimpson that Rule 33 (Rules
    of Procedure for the Council, Doc 7559/6, Sixth Edition,
    1999) would allow the EU to be represented at and
    participate in Council meetings when issues over which it
    has competence are discussed.  The Ambassador reiterated the
    US's strong opposition to EU additionality at ICAO.

    ¶6.   (SBU) Alternate US Rep met with Canadian Permanent
    Representative, Ambassador Alain Dupuis on Nov. 9.   Dupuis
    said that the EC had been actively seeking representation at
    ICAO, while President Kotaite had been actively pursuing a
    means to accommodate them.  When he (Dupuis) was Deputy
    Chief of Protocol, the EC had approached him with the
    proposal that it use its bilateral agreement with Canada as
    the basis for obtaining diplomatic status for an EC
    representative to ICAO.  Dupuis responded that under that
    scenario, the EC would have to put its representative in
    Ottawa where s/he would work primarily on bilateral issues,
    and would have to drive on a daily basis to Montreal to
    observe (but not speak at) Council meetings. Otherwise, the
    EC rep would have to be accredited under the ICAO-GOC Host
    Country Agreement.  At the September 2004 Assembly,
    spokesperson on EC Participation in ICAO Ludolf van Hasselt
    said that he was looking for property in Montreal.  Dupuis
    told him he should clear up the bilateral vs. host country
    agreement matters before the EC buys anything to set up an
    office.
    ¶7.  (SBU)  Stressing that the GOC had not yet formulated its
    strategy to deal with potential EC additionality at ICAO,
    Dupuis outlined his own thoughts for a three step approach.
    First there would need to be an EU-wide decision with
    agreement from all member states on EC representation
    throughout the UN system.  Once that decision is
    communicated to ICAO's Secretary General, the second step
    would be Council discussion of the EC's request, where
    Canada would speak as a Council member (as opposed to Host
    Country).  The Council could refer the matter to the Legal
    Committee for review, which "could take years."   Once the
    Council approves the request, it would instruct the
    Government of Canada to accredit the EC under the Host
    Country Agreement (which Canada would "rubber stamp.").
    Dupuis said it was important to delay Council approval at
    least until after the next Assembly (September 2007).
    Dupuis stressed that while we would likely have a number of
    allies from the developing world and perhaps could even
    enlist one or more large EU member countries, one had to be
    extremely careful in how this was handled.  For example,
    developing countries might see the logic of having the EC
    represented at the Air Transport Committee, and once the EC
    is "in," might side with the Europeans on strengthening
    ICAO's air transport functions at the expense of safety and
    security.  Ottawa, he said, wants to be sure that all
    potential ramifications are examined, not only for ICAO but
    for the entire UN system.

    ¶8.  (SBU)  When asked about the President's possible use of
    the Rules of Procedure (ROP)  to  "accommodate" the EC and
    circumvent Council debate, Dupuis said that the Council had
    long been acting beyond the authority granted to it in the
    Chicago Convention.  The ROP, written by Kotaite and which
    grant him tremendous powers, need review.  A general review
    could be conducted at any time; but a review targeted at the
    EC should come only after EC observer status has been
    brought to the Council for discussion.

    ¶9. (U) US Mission's reading of the Council's Rules of
    Procedure raises questions.  Rules 32 and 33 deal with
    Observers.  Rule 32, which would not apply to the EC, three
    times explicitly authorizes "participation" by certain
    observers.  It states,  "Any Contracting State may
    participate without a vote in the consideration by the
    Council and by its Committees and Commissions of any
    question which especially affects its interests (Article 53
    of the Convention).  The President may invite such
    participation where he considers that the condition of
    special interest is fulfilled.  If a contracting State
    requests permission to participate on the grounds of special
    interest, the President may approve the request if he finds
    that the condition of special interest is fulfilled;
    otherwise, he shall refer the request to the Council for
    final decision."

    ¶10.  (U) In stark contrast, Rule 33, which could apply to
    the EC, is silent on the right to participate.  It states,
    inter alia, "a) The Council may invite non-Contracting
    States and international organizations or other bodies to be
    represented at any of its meetings by one or more
    Observers."  Nonetheless, the definitions section of the
    Rules of Procedure appears to build in the right of an
    Observer to "participate" in Council discussion.  It defines
    Observer as "a person representing a Contracting State not
    represented on the Council, a non-Contracting State, an
    international organization or other body, designated and
    authorized by his State or organization to participate in
    one or more of the meetings of the Council without the right
    to vote or to move or second motions or amendments, under
    such further conditions as the Council may determine and
    holding credentials as evidence of his appointment."
    Comment:  In a body such as the Council, where there are no
    votes (except elections) and most decisions are reached by
    consensus, the right to speak is tantamount to a right to
    vote.  End Comment.

    ¶11.   (U) Action Request:  Mission requests Department's
    reading of whether Rule 33, as currently written, would
    allow an EC representative to speak at Council and Committee
    meetings.

    ¶12. (U) Regarding the Air Navigation Commission, its rules
    permit interested non-members to attend.  Some, such as
    IFALPA (the international pilot's union), actually have an
    assigned seat at the table.  The number of "observers"
    continues to grow, and, given the size of the room, may need
    to be limited in the future.  Increasingly, observers have
    been given the floor to make statements or ask questions,
    which is hampering the effectiveness of the Commission.

    ¶13.  (SBU)  Following is  the text of the October 27 letter
    from Kotaite to de Palacio, which the US Mission was given
    in confidence:

    I wish to refer to the letter dated 22 April 2004 from Mr.
    Seamus Brennan, Minister for Transport of Ireland, in his
    capacity of President of the Council of the European Union,
    and to the conversations between myself and Mr. Ludolf
    Wihelmy van Hasselt, Representative of the European
    Commission on the subject of a more effective participation
    of the European Community in the work of ICAO.

    As you know, the ICAO Council decided in 1989 to include the
    European Community in the list of organizations which may be
    invited to participate in suitable ICAO meetings as
    observer.

    The ICAO Council is a permanent body composed of thirty-six
    States elected by the Assembly.  The Council holds
    approximately three sessions per year.

    Under Rule 33 of its Rules of Procedures, the Council may
    invite an international organization to be represented at
    any of its meetings by one or more observers.  In addition
    to ad hoc requests from the European Community, should the
    latter desire to send an observer to Council meetings, on a
    regular basis, it could indicate the subjects of interest to
    it among the items included in the work programme of the
    Council for the following session, for decision by the
    Council on representation at such meetings; the Council
    adopts at the end of each session its provisional work
    programme for the next session.

    Concerning the Air Navigation Commission, Article 56 of the
    Convention on International Civil Aviation provides that it
    is composed of fifteen members appointed by the Council for
    a period of three years from among persons nominated by
    Contracting States.  Under the applicable Rules of Procedure
    (Doc 8229-AN/876/2), an international organization may be
    invited by the Commission, with the approval of the
    President of the Council, to participate in one or more
    meetings of the Commission.

    Certain international organizations which are on the
    aforementioned ICAO list have established resident
    delegation offices in Montreal.  From ICAO standpoint, there
    would be no legal obstacle for a delegation of the
    Commission to ICAO to be established in Montreal to
    represent the interests of the European Community.

    I trust that the enhanced cooperation between ICAO and the
    European Community will further contribute to achieving the
    aims and objectives of the Convention on International Civil
    Aviation.  Yours sincerely,    Assad Kotaite  End Text.

    ¶14.  (U) US Mission will continue to follow this matter
    closely and will report significant developments.

    Stimpson/Allen

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