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Viewing cable 06USUNNEWYORK1441, LORD CARLILE SEEKS U.S. VIEWS ON DEFINING TERRORISM

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Reference ID Created Released Classification Origin
06USUNNEWYORK1441 2006-08-02 13:44 2011-08-25 00:00 UNCLASSIFIED USUN New York
VZCZCXYZ0016
PP RUEHWEB

DE RUCNDT #1441/01 2141344
ZNR UUUUU ZZH
P 021344Z AUG 06
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC PRIORITY 9720
INFO RUEHLO/AMEMBASSY LONDON PRIORITY 1037
UNCLAS USUN NEW YORK 001441 
 
SIPDIS 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PREL PTER PGOV UNSC KTFN UNGA UK
SUBJECT: LORD CARLILE SEEKS U.S. VIEWS ON DEFINING TERRORISM 
 
1.  This is an action request; please see para 9. 
 
2.  In a videoteleconference with USUN LegalOff, Department 
attorneys, and UKUN legal advisers on July 31, Lord Alex 
Carlile of Berriew Q.C., the UK,s independent reviewer of 
the Terrorist Act, sought U.S. views on the negotiations of 
the Comprehensive Convention on International Terrorism 
(CCIT), whether U.S. law treats as terrorists domestic groups 
that use violence to achieve political ends, and the efficacy 
and scope of the UN Security Council,s al Qa,ida/Taliban 
sanctions.  Carlile is visiting New York to gather 
information for a report he is preparing on the definition of 
terrorism in UK law.  Through meetings with legal advisers 
from UN missions and others, he said he hoped to discern 
whether the UN could achieve progress in reaching an 
internationally acceptable definition of terrorism. 
 
3.  As the independent reviewer of the UK,s terrorism 
legislation, Carlile provides annual reports on the &working 
and functionality8 of the UK,s counterterrorism law, and he 
is preparing a special report on how UK law defines 
terrorism.  The UK has a broad definition of terrorism in 
section 1 of the Terrorist Act of 2000, as amended in 2006, 
and its law includes other definitions relating to terrorism 
financing and to the international counterterrorism 
conventions and protocols to which the UK is a party.  He 
noted that he thought the reference to "criminal acts" from 
UN Security Council Resolution 1566 (2004) might help the OIC 
to overcome concerns about the perceived overbreadth of the 
CCIT provisions. 
 
4.  Carlile questioned whether language in UNSCR 1566 might 
provide the basis for the UN to define terrorism and thus 
conclude the negotiations of the CCIT.  (Note:  Operative 
paragraph 3 of UNSCR 1566 &(r)ecalls that criminal acts, 
including against civilians, committed with the intent to 
cause death or serious bodily injury, or taking of hostages, 
with the purpose to provoke a state of terror in the general 
public or in a group of persons or particular persons, 
intimidate a population or compel a government or an 
international organization to do or to abstain from doing any 
act, which constitute offences within the scope of and as 
defined in the international conventions and protocols 
relating to terrorism, are under no circumstances justifiable 
by considerations of a political, philosophical, ideological, 
racial, ethnic, religious or other similar nature (8  End 
Note.)  Citing his earlier meeting with the Pakistan 
Mission,s legal adviser, Carlile said he thought the key 
obstacle to concluding negotiations of the CCIT was the 
difference in how the OIC countries and others wanted to 
address self-determination. 
 
5.  Department lawyers responded that resolution 1566 had 
been negotiated in a different context, that Article 2 of the 
draft CCIT already referred to acts that are &unlawful and 
intentional,8 and that Article 18 of the draft CCIT 
reflected language the OIC had accepted in the Convention for 
the Suppression of Terrorist Bombings, the amendments to the 
Convention on the Physical Protection of Nuclear Material, 
and the Convention for the Suppression of Nuclear Terrorism. 
Department lawyers cautioned against proposing new language 
on self-determination that would have the effect of 
undermining the object and purpose of the treaty.  Carlile 
seemed to understand the point, but expressed skepticism 
that, on this view, there was any chance of concluding the 
CCIT negotiations. 
 
6.  Carlile also asked whether the United States had concerns 
about using U.S. terrorism laws to prosecute domestic groups 
that use violence for political ends.  In the UK, some are 
concerned that using anti-terrorism laws to prosecute violent 
animal rights activists lends those groups credibility. 
Department lawyers explained that the State Department's 
principal focus in terrorism is international terrorism 
rather than domestic environmental terrorism, indicating that 
the relevant legal regimes are largely separate. 
 
7.  Carlile then expressed some skepticism about the 1267 
sanctions regime, asking why the 1267 Committee's sanctions 
list was not broader and asking for statistics to quantify 
the impact of freezing terrorists, assets.  He questioned 
whether concerns about sharing intelligence prevented the 
United States or other states from proposing more names for 
designation.  Department lawyers explained U.S. domestic 
procedures for designating terrorists, stressing the U.S. aim 
to add as many individuals and entities designated under U.S. 
procedures to the 1267 Committee's sanctions list as 
possible, notwithstanding information sharing issues that 
arise from time to time.  Carlile also argued that because 
terrorist acts required little financing, freezing assets 
would not counter terrorism. 
 
8.  Department lawyers stressed the importance of having a 
 
legal regime that worked to prevent terrorist acts before 
they happened, and pointed out the preventive value of 
financial and other sanctions.  On the margins of the meeting 
USUN agreed to try to provide relevant data, including a copy 
of the Treasury Department Office of Foreign Assets Control's 
annual report to Congress on assets freezes, if available, 
and noted that because freezing assets and bank accounts 
helps prevent terrorists from transferring funds, focusing on 
amounts frozen does not necessarily illustrate the impact of 
such sanctions.  Citing high rates of remittances from the UK 
to Bangladesh, Carlile expressed skepticism, arguing that the 
energy expended on freezing assets could be better sent 
tracking remittances to ensure that they are not provided to 
front companies or others who finance terrorists. 
 
9.  USUN requests that Department provide any additional data 
that USUN or EmbLondon could provide to Carlile. 
BOLTON