US embassy cable - 04ROME1425

C O N F I D E N T I A L  ROME 001425 
 
SIPDIS 
 
 
DEPT. FOR P. IO & EUR 
 
E.O. 12958: DECL: 04/09/2014 
TAGS: KUNR, PREL, GM, JA, FR, RS, IT, UNSC 
SUBJECT: ITALY: NO WAY TO UNSC "REFORM" 
 
REF: A. 03 ROME 02636 
 
     B. ROME 00548 
     C. A/S HOLMES REMARKS TO CFR 10/21/03 
 
Classified By: POL M/C T. Countryman for reasons 1.5 (b) and (d). 
 
1. (U) This cable contains an action request for IO: please 
see summary and paragraph 9. 
 
2. (C)  Summary.  Italy is very concerned that a new UN 
reform push in New York will end with Italy frozen out of an 
expanded UNSC that includes both Germany and Japan.  Italians 
fear that SYG Annan and the panel of eminent persons, 
mandated to study UN reform, are inclined to push for UNSC 
expansion due to lobbying efforts from Germany, Japan, France 
and Russia.  The Italians believe U.S. support for a 
permanent German seat would effectively reward one of the 
strongest opponents to U.S. Iraq policy and punish one of our 
staunchest supporters. As such, it would send the wrong 
message to those nations that support the U.S.  Embassy has 
encouraged the Italians to focus on positive principles for 
institutional reform rather than solely a 'negative' position 
on UNSC reform.  Although UNSC expansion may not occur due to 
the same zero-sum dynamics that prevented UNSC expansion in 
the 1990s, SYG Annan and the panel may present a detailed, 
fast-track proposal that could result in changes.  Action 
request:  Arguing against UNSC expansion will be a dominant 
theme in GOI discussions with us, beginning with FM 
Frattini's April 20 visit to Washington. To prepare 
accordingly, embassy requests inclusion in any internal USG 
discussion of UN reform as well as information on the SYG's 
and panel's plans.  Embassy welcomes points for the Italians. 
 End summary. 
 
3. (C)  The GOI is making a full court press to make sure the 
U.S. understands how strongly it feels about UN "reform". 
Their primary concern is that reform will result in the 
expansion of the UNSC rather than in the improvement of how 
the UN functions.  Italians fear that SYG Annan and the panel 
of eminent persons, mandated to study UN reform and review 
how the UN can better deal with important issues, will be 
more inclined to propose changes for the UNSC than to analyze 
issues related to the functioning of the institution.  They 
note that there is pressure and lobbying from both the 
Japanese and the Germans, citing a 1 million dollar Japanese 
donation to the panel and active statements by Chancellor 
Shroeder and FM Fischer (related to internal political 
problems with the social democrats) as well as apparent 
endorsement by France and Russia of a permanent German seat. 
 
 
Why do the Italians Care? 
--------------------------------------------- ----- 
 
4. (C)  Germany's addition to the UNSC as a permanent member 
would be an "unthinkable disaster" for Italian foreign 
policy.  Italy has always put up with the condescension of 
London and Paris but found comfort in being in the same 
position in New York as Germany.  Italians can't resist the 
sports metaphor:  Germany being promoted to the big leagues 
while Italy is left behind in the minors would come as a 
terrible political blow both domestically and internationally. 
 
5. (C)  Italians also fear that UNSC expansion would 
emasculate the G-8.  With six of the eight members having 
permanent UNSC seats, they believe there would be less reason 
to maintain the G-8 as a functioning institution since 
important decisions would end up being made in New York. They 
tell us Canada shares this concern. 
 
6. (C)  Italy's strong support for the UN and its desire to 
remain an important player within the institution reflects 
strong Italian public support for the UN and also a clear 
consciousness that Italy has to punch above its weight and 
participate, at times, beyond its means.  Italy is a leading 
participant in UN missions and provides substantial funding 
to the UN.  By its tally, Italy is currently the second 
largest troop contributor to UN PKOs and the fifth largest 
donor.  The Italians are neither ready nor willing to risk 
losing the gradually increasing stature that they have 
recently gained through their active efforts in the UN and 
 
international affairs. 
 
 
Does the US Care/Should we? 
--------------------------------------------- ------ 
 
7. (C)  The Italians believe the U.S. should be equally 
concerned about UNSC expansion, especially if it results in a 
permanent seat for Germany.  On the internal front, 
government contacts argue that rewarding Germany with a seat 
on the UNSC after its strong opposition to Iraq would reward 
critics of the Berlusconi government who have argued and will 
now be able to prove that Berlusconi has gotten nothing in 
return for his support of the U.S.  Internationally, they 
believe, rewarding Germany at this time would represent a 
slap in the face to those governments who have supported the 
U.S.  Italian officials with experience at the UN argue that 
an expanded UNSC is inevitably less effective and less 
supportive of the U.S.  They add that inclusion of such 
permanent members as Germany, Japan, India or Brazil, would 
not help the U.S. advance its interests in the council. 
 
 
Embassy Comment 
------------------------------ 
 
8. (C)  Italy realizes that being 'against reform of the 
UNSC', is a hard argument to make.  Embassy has listened 
carefully to the Italian argument and has encouraged them to 
make clear that UNSC expansion is only one small aspect of 
'reform'.  As A/S Holmes outlined in remarks before the 
Council of Foreign Relations (ref c), Embassy has suggested 
that the Italians embrace our definition of reform by 
focusing on the following principles; responsibility, 
credibility, accountability, effectiveness and freedom - 
which, if adhered to, will do far more than a shuffling of 
chairs. 
 
9. (C)  We are aware (and have argued to Italian officials) 
that this issue has been under discussion for over eight 
years and that, due to the zero-sum dynamic among potential 
permanent members, consensus on expansion will always be 
difficult.  From our perch here, it's more difficult to 
evaluate the Italians' concern that the panel may generate 
its own momentum or at least, under the SYG's proposal, 
produce a detailed 'take-it-or-leave-it', fast-track proposal 
on UNSC expansion which could attract a consensus. End 
comment. 
 
 
Action Request 
----------------------------- 
 
10. (C)  The Italians are very concerned with this issue and 
kick it to the top of virtually every discussion (as G-8 
Political Director Davies learned during his February GME 
discussions)(ref b).   We must be prepared to discuss UN 
reform with Italian counterparts at all levels - including FM 
Frattini in two weeks.  Due to the intense focus on this 
issue, we request inclusion in internal USG dialogue 
regarding UN reform - specifically UNSC expansion - and 
information on the SYG's panel of eminent persons charged 
with reviewing UN reform and any plans or strategies they may 
have regarding UNSC expansion.  Points detailing our current 
position on UNSC reform, releasable to the GOI, would be 
extremely helpful.  End action request. 
 
Visit Rome's Classified Website: 
http://www.state.sgov.gov/p/eur/rome/index.cf m 
 
SEMBLER 
 
 
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 2004ROME01425 - Classification: CONFIDENTIAL