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Speech of Ambassador Christopher Westdal
presented at the PIR Centre's "Global Partnership Conference",
Moscow, 23 April 2004 The elimination of chemical weapons has especial meaning at this time of year - for Canada in particular. It was against Allied troops -- including thousands of Canadians- that the first modern use of Chemical Weapons occurred in April 1915. Though nearly a century has passed since the horrors of chemical weapons were first experienced by Canadians on the battlefields of Ypres, the terrible images of those days - soldiers gasping in vain for breath, suffocating to death, wounded and blinded men waiting in long lines to be given medical assistance - all these images incited in Canada and in other countries a visceral loathing of chemical weapons. Throughout the intervening decades, Canada has done its part to help put the chemical weapons genie back in its bottle. Eighty years ago, with the Geneva Protocol, we helped ban its use. When we saw that wasn't enough, we committed ourselves to prohibit chemical weapons entirely - through the Chemical Weapons Convention (CWC). A decade after Canada signed on to that Convention and vowed to contribute to the effective prohibition and destruction of chemical weapons, we realized an urgent need - based on the rabid desire of terrorists to lay their hands on these and other weapons of mass destruction - to animate and extend our commitment. This we did at the G8 Summit in Kananskis in June two years ago, where, under a Canadian Presidency, the Global Partnership was launched. As is well known, G8 leaders undertook at the Kananaskis Summit to raise $20 billion (US) to fund cooperation projects, initially in Russia, with a view to preventing the terrorist acquisition of weapons and materials of mass destruction and/or their related expertise. For its part, Canada has committed up to $1bn Canadian dollars (approximately US $750 million at current exchange rates) over the next ten years to the Global Partnership. Like all members of the Global Partnership, Canada is moving quickly to implement its commitments and to develop concrete projects in all four priority areas identified at Kananaskis - including chemical weapons destruction. We are currently focussing our attention and funding on the construction of the chemical weapons destruction facility at Shchuch'ye in the Kurgan Oblast. Though Shchuch'ye is but one of seven chemical weapons storage depots in Russia, and though it houses less than 1/7th of the country's total chemical weapons reserve by volume, it appears particularly dangerous when viewed through the Global Partnership's counter-terrorism lens. Shchuch'ye's arsenal, after all, contains 5400 metric tonnes of deadly nerve agent stored in some 1.9 million shells. These shells pose a particular risk since they are both rugged and portable - who has not seen that famous picture of US Senator Lugar with an 85 mm chemical weapon-capable artillery shell in his briefcase? These two characteristics - ruggedness and portability - make Shchuch'ye's weapons a particularly attractive target for terrorists. As an initial project under the Global Partnership, Canada is contributing up to $33 million (approximately US25 million) for construction of an 18km railway connecting the chemical weapons storage depot near Planovy to the destruction facility at Shchuch'ye. The rail spur is required to safely and securely transport the chemical munitions from storage to destruction. It will also likely be used to transport an additional 2 million nerve agent-filled artillery shells from the Kizner chemical weapon depot. Reaction mass from nerve agents neutralised at other sites may also travel on the line. But owing to the current absence of an appropriate Canada-Russia legal agreement, Canada is contributing the funds for this Project through the United Kingdom's bilateral agreement with Russia. On 19 November 2003, Canada and the United Kingdom signed a Memorandum of Understanding for the contribution, under which the United Kingdom will be responsible for implementing the Project, in consultation with Canada. Let me add that we view our close cooperation and collaboration with the United Kingdom as a model of cooperation, in keeping with the spirit and the purpose of the Global Partnership. Regrettably, though five months have passed since the conclusion of the Canada-UK MoU, we have yet to begin work on the railway owing to a procedural impasse with the Russian Munitions Agency. Though both Canada and the United Kingdom are anxious to get on with the project, as are we know our Russian Partners, we can not move forward until this procedural matter, which concerns contracting procedures, has been resolved. Too much is at stake for us to do otherwise. At such an early stage in our Global Partnership programming, Canada can not afford to take a step that could invite criticism from our own audit authorities and jeopardize future funding. We remain optimistic, however, that this procedural impasse will be overcome and that work on the railway at Shchuch'ye will soon commence. At present Canada, in cooperation with the UK and the Munitions Agency, is working to identify future projects at Shchuch'ye. With all nations that have committed funds at Shchuch'ye -- including Russia, the United States, the UK, the EU, Norway and the Czech Republic -- our goal is to complete the chemical weapon destruction facility and to commence destruction as soon as practicable. I stress "as soon as practicable" -- not as soon as possible. This is an important distinction. In building a facility to destroy some of the most deadly substances on earth, the health and welfare of the workforce, local population and the environment must not be compromised -- quality, safety and security are of paramount concern. Construction and start-up targets must thus be realistic and realizable, based on what is achievable not simply what is desirable. Additional funding would of course expedite the chemical weapons destruction process. And in this regard Russia -- which is responsible for meeting the costs of its destruction activities under the Convention -- will have to fund more. The current level of Russian funding for chemical weapon destruction, though significant, is not enough. Far greater investments will be required by Moscow if Russia is to accomplish destruction of its entire Chemical weapon arsenal in a timely fashion. And if we donors are to manage our own assistance programs effectively, we require a clear statement from Russia regarding anticipated multi-year funding levels. On a related note, Russia must accommodate the legal and regulatory needs of those countries assisting with its destruction effort. The taxpayers of donor countries are providing very substantial funds, and they have a right to ensure that the funds are well spent. Before Canada can commit and spend funds on a specific chemical weapons destruction project, we require extensive information from the Russian authorities. Delays in providing such information or in responding to such pro forma matters as the exchange of Diplomatic Notes inevitably results in delays in project implementation. Donors must shoulder some responsibility as well. We need to find creative ways to work with Russia in order to ensure that projects are developed and proceed as quickly as practicable. And of course we need to do so taking account of Russian priorities, and ensuring full compliance with Russian laws. Though we still have a long way to go before ridding the world of chemical weapons, we must not underestimate how far we have already come. Make no mistake - this is a good news story - an extraordinarily good news story. Together we can ensure a safe arrival at our destination. |
