C O N F I D E N T I A L SECTION 01 OF 02 HARARE 003959

SIPDIS

DEPT FOR A/S RICE AND PDAS POWELL

USUN FOR HOLBROOKE

NSC FOR GAYLE SMITH

E.O. 12958: DECL: 07/18/2010
TAGS: PREL PGOV MOPS BY TX SF
SUBJECT: FOREIGN MINISTER ZUMA SHARES VIEWS ON BURUNDI WITH
SPECIAL ENVOY WOLPE
CONFIDENTIAL


PAGE 02 HARARE 03959 01 OF 02 190954Z

CLASSIFIED BY SPECIAL ENVOY HOWARD WOLPE FOR REASONS 1.5
(B) AND (D).


1. (C) SUMMARY. SPECIAL ENVOY HOWARD WOLPE SHARED WITH SOUTH
AFRICA'S FOREIGN MINISTER DR. NKOSAZANA DLAMINI-ZUMA JULY 17
USG CONCERNS ABOUT ACHIEVING A SUSTAINABLE PEACE IN BURUNDI.
HE RELATED THE CONTENT OF HIS DISCUSSIONS IN CAPE TOWN WITH
FACILITATOR NELSON MANDELA AND HIS WORD OF CAUTION TO MANDELA
ABOUT THE DANGER POSED BY ARRIVING AT A PEACE AGREEMENT BEFORE
THE PARTIES HAD ATTAINED SUFFICIENT OWNERSHIP OF THE AGREEMENT.
MOREOVER, WOLPE OBSERVED, GAPS REMAINED ON CORE ISSUES.
FOREIGN MINISTER ZUMA EXPRESSED SATISFACTION OVER MANDELA'S
DECISION TO PUSH BACK THE JULY 20 DATE HE HAD SET FOR SIGNING
A BURUNDI PEACE ACCORD. ALTHOUGH MANDELA HAS ANNOUNCED A NEW
SIGNING DATE OF AUGUST 28, ZUMA IS CONFIDENT HE WILL ADJUST
THAT DATE IF HE SEES A PROBLEM DEVELOPING. ZUMA EXPRESSED
RESERVATIONS ABOUT THE FEASIBILITY OF MANDELA'S VISION OF A
UN BODYGUARD CONTINGENT TO PROTECT LEADERS OF THE 19 BURUNDI
POLITICAL PARTIES. SHE HAS ADVISED MANDELA TO REVIEW THE UN
CHARTER TO SEE IF THE PROPOSAL WOULD EVEN FIT THE CHARTER.
ALTERNATIVELY, THE PROPOSAL COULD BE TAKEN FOR ACTION TO THE
BODY OF GREAT LAKES PRESIDENTS, CHAIRED BY MUSEVENI, RATHER
THAN TO THE UN ZUMA PRAISED MANDELA FOR THE PROGRESS HE HAS
MADE IN THE BURUNDI PEACE PROCESS AND ENCOURAGED SPECIAL ENVOY
WOLPE TO CONTINUE DIALOGUE WITH MANDELA. MANDELA IS CORRECT,
ZUMA ASSERTS, TO PUSH THE ARUSHA PROCESS ALONG, BUT HE SHOULD
ALSO BE MORE PATIENT. SHE WAS PLEASED TO HEAR THAT THE U.S.
HAS DEPOSITED THE USD 500,000 PLEDGED IN SUPPORT OF THE ARUSHA
PROCESS AND THAT IT WILL PROVIDE AN ADDITIONAL USD 500,000.
ZUMA SUGGESTED THAT ONCE A DRAFT PEACE ACCORD IS ACHIEVED,
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PAGE 03 HARARE 03959 01 OF 02 190954Z
EACH PARTY SHOULD BE ENCOURAGED TO PUT ON PAPER ITS THOUGHTS

ABOUT THE DRAFT SO THAT THE FACILITATION TEAM CAN SEE WHERE
THE DIFFERENCES ARE AND WORK OUT A TIMELY SUSTAINABLE
COMPROMISE. SHE EXPLAINED THAT IT IS THE PARTIES THAT MUST
LIVE WITH THE FINAL ACCORD, AS IT WILL SHAPE THEIR LIVES AND
THEIR COUNTRY'S FUTURE. END SUMMARY.


2. (C) GREAT LAKES SPECIAL ENVOY HOWARD WOLPE MET 7/17 IN
PRETORIA WITH SOUTH AFRICA'S FOREIGN MINISTER NKOSAZANA
DLAMINI-ZUMA AT HER HOME ON THE PRESIDENTIAL COMPOUND.
AMBASSADOR LEWIS, DEPUTY SPECIAL ENVOY JAMES YELLIN,
SPECIAL ADVISOR JOHN PRENDERGAST, AND POL COUNSELOR
(NOTETAKER) ACCOMPANIED. JERRY MATSILA, DEPARTMENT OF
FOREIGN AFFAIRS (DFA) ACTING DEPUTY DIRECTOR GENERAL FOR
AMERICAS, SAT IN ON THE SOUTH AFRICAN SIDE. SEPTELS REVIEW
DISCUSSIONS ON THE DRC AND CANDIDACY FOR THE UN SECURITY
SEAT CURRENTLY HELD BY NAMIBIA.

--------------
CONVEYING APPRECIATION YET CAUTION
--------------


3. (C) WOLPE INITIATED WITH A BRIEF OF HIS MEETING JULY 16
WITH DFA DEPUTY DIRECTOR GENERAL FOR AFRICA, WELILE NHLAPO,
AND THE MORNING OF JULY 17 IN CAPE TOWN WITH FACILITATOR
NELSON MANDELA (BOTH MEETINGS REPORTED SEPTELS). WOLPE SAID
HE CONVEYED TO MANDELA U.S. APPRECIATION FOR THE PROGRESS THAT
HAD BEEN ACHIEVED TO DATE IN THE QUEST FOR A SUSTAINABLE
BURUNDI PEACE. AT THE SAME TIME, HE CAUTIONED OF THE DANGER
POSED BY ARRIVING AT AN AGREEMENT BEFORE THE PARTIES HAD
ATTAINED SUFFICIENT OWNERSHIP OF THE AGREEMENT. WOLPE SAID
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PAGE 04 HARARE 03959 01 OF 02 190954Z
HE HAD ALSO POINTED OUT THAT WHILE THE PARTIES CONCURRED IN
SOME AREAS, GAPS REMAINED ON CORE ISSUES. HIS THEME EXPRESSED
TO BOTH NHLAPO AND MANDELA HAD BEEN THE IMPORTANCE OF
"SUSTAINABILITY" OF A PEACE ACCORD.


4. (C) THERE WAS ALSO DANGER, WOLPE SAID, IN SIGNING A PEACE
AGREEMENT BEFORE A CEASE-FIRE WAS IN PLACE. WOLPE SAID MANDELA
HAD BEEN ATTENTIVE TO THIS POINT AND HAD SPOKEN OF THE NEED FOR
A PUBLIC DECLARATION BY THE REBELS IN ADVANCE OF AN AGREEMENT,
COMMITTING TO A CEASE-FIRE THAT WOULD BECOME EFFECTIVE WITH
THE SIGNING OF THE AGREEMENT. MANDELA HAD ALSO ACKNOWLEDGED,
WOLPE SAID, THAT THE ISSUE OF TRANSITIONAL LEADERSHIP OF BURUNDI
WAS STILL NOT RESOLVED. IN ADDITION, OTHER COMPLICATED
QUESTIONS REMAINED UNRESOLVED, SUCH AS, WHO IS A "POLITICAL
PRISONER". STILL, WOLPE SAID, MANDELA HAD NOW, CONTRARY TO AN
EARLIER DECLARATION, RECOGNIZED THE IMPRACTICABILITY OF
IMMEDIATELY MOVING THE PEACE PROCESS TO BURUNDI. HE WILL
INSTEAD OPEN A FACILITATOR'S OFFICE IN BUJUMBURA TO ASSIST
IN PREPARING FOR THE TRANSITION. WHILE MANDELA AGREES THAT
SIGNING OF AN AGREEMENT CANNOT OCCUR ON JULY 20, HE HAS NOW
ANNOUNCED THAT HE EXPECTS TO CONCLUDE SUCH AN AGREEMENT ON
AUGUST 28. ZUMA RESPONDED THAT SHE WAS GLAD THAT THE JULY 20
SIGNING DATE HAD BEEN MOVED AND ADDED, SUBSEQUENTLY, THAT
"EVEN IF HE HAS ANNOUNCED SIGNING ON AUGUST 28, HE WILL

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ACTION AF-00

INFO LOG-00 AID-00 CIAE-00 COME-00 DODE-00 SRPP-00 EAP-00
EB-00 EUR-00 VC-00 H-01 TEDE-00 INR-00 IO-00
L-00 AC-01 NEA-00 NSAE-00 NSCE-00 OIC-02 OMB-01
PA-00 PM-00 PRS-00 ACE-00 P-00 SP-00 SSO-00
SS-00 TRSE-00 T-00 USIE-00 PMB-00 DRL-02 G-00
SAS-00 /007W
-------------- 6FE58A 190955Z /22
O 190905Z JUL 00
FM AMEMBASSY HARARE
TO SECSTATE WASHDC IMMEDIATE 6649
NSC WASHDC IMMEDIATE
INFO SOUTHERN AFRICAN DEVELOPMENT COMMUNITY
RWANDA COLLECTIVE
USMISSION USUN NEW YORK

C O N F I D E N T I A L SECTION 02 OF 02 HARARE 003959

SIPDIS

DEPT FOR A/S RICE AND PDAS POWELL

USUN FOR HOLBROOKE

NSC FOR GAYLE SMITH

E.O. 12958: DECL: 07/18/2010
TAGS: PREL PGOV MOPS BY TX SF
SUBJECT: FOREIGN MINISTER ZUMA SHARES VIEWS ON BURUNDI WITH
SPECIAL ENVOY WOLPE
CONFIDENTIAL

PAGE 02 HARARE 03959 02 OF 02 190955Z

ADJUST THAT IF HE SEES A PROBLEM."

--------------
UN OR COUNTRY BODYGUARD CONTINGENT
--------------


5. (C) WOLPE ALSO SHARED WITH ZUMA MANDELA'S VISION OF A
UN BODYGUARD CONTINGENT THAT WOULD OFFER PROTECTION FOR
ALL LEADERS OF THE 19 PARTIES AT ARUSHA. IF THIS WERE NOT
FEASIBLE, MANDELA HAD TOLD WOLPE, THEN A COUNTRY COULD BE
ASKED TO ASSUME THAT RESPONSIBILITY, ALTHOUGH NOT SOUTH
AFRICA IN ORDER TO AVOID THE APPEARANCE THAT HE, AS A SOUTH
AFRICAN, WAS PROMOTING A ROLE FOR SOUTH AFRICA.


6. (C) ZUMA SAID SHE HAD SPOKEN BRIEFLY, NOT EXTENSIVELY,
WITH MANDELA AND HE HAD MENTIONED TO HER ALL THE ELEMENTS
WOLPE HAD RAISED, INCLUDING SIGNING AN AGREEMENT ON JULY 20.
ALL INDICATIONS WERE, SHE CONTINUED, THAT A SIGNING ON THAT
DATE WOULD NOT BE POSSIBLE; SHE WELCOMED THE NEWS THAT
MANDELA HAD MOVED UP THE PROSPECTIVE SIGNING DATE. ON THE
MATTER OF UN BODYGUARDS, ZUMA SAID SHE HAD ADVISED MANDELA
TO LOOK AT THE UN CHARTER TO SEE IF SUCH A PROPOSAL WOULD FIT.
IF THE INTENT IS TO OFFER PROTECTION FOR A FEW INDIVIDUALS,
PERHAPS THIS COULD BE TAKEN UP BY THE BODY OF GREAT LAKES
PRESIDENTS, CHAIRED BY PRESIDENT MUSEVENI, RATHER THAN BY
THE UN. MANDELA WILL DISCUSS THE ISSUE WITH THE OTHER
PRESIDENTS AT THE ARUSHA MEETING ON JULY 19, ZUMA SAID.
MANDELA HAD FEARED, ZUMA CONTINUED, THAT INDIVIDUAL
NEGOTIATORS MIGHT BE KILLED BY THOSE WHO QUESTIONED THEIR
LEGITIMACY TO NEGOTIATE ON BEHALF OF OTHERS. SHE NOTED
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PAGE 03 HARARE 03959 02 OF 02 190955Z
THAT MANY OF THESE NEGOTIATORS REPRESENTED THEMSELVES ONLY.
ZUMA REMARKED THAT MANDELA "HAS DONE VERY WELL AND IS
LEARNING ABOUT BURUNDI AS HE GOES ALONG. HE STARTED LATE,
BUT HAS BEEN BRIEFED. EVEN GOING TO BURUNDI HAS OPENED
HIS EYES AND HE IS ABLE TO TALK WITH BURUNDIANS OF ALL
PERSUASION." SHE SURMISED THAT MANDELA BENEFITED BY
INTERACTION WITH OTHERS ON THE ISSUES. "IT IS IMPORTANT,"
SHE ADVISED WOLPE, "THAT YOU KEEP A DIALOGUE GOING WITH HIM."

--------------
STRUCTURING A SUSTAINABLE PEACE DOCUMENT
--------------


7. (C) WOLPE EXPRESSED TO ZUMA HIS CONCERN THAT IT MIGHT
TAKE UNTIL THE END OF THE YEAR TO REACH A SUSTAINABLE ACCORD.
BOTH NHLAPO AND DON MATTEO ZUPPI BELIEVE THAT THE AGREEMENT
DOCUMENT NEEDS TO BE DIGESTED BY THE PARTIES. THERE WILL BE
DIFFICULTIES ON THE LARGER ISSUES, EVEN ON THE PROPOSAL OF A
50-50 SPLIT OF REPRESENTATION IN THE BURUNDI ARMY. AT SOME
POINT, WOLPE SAID, THE FIVE OR SIX KEY PLAYERS WILL NEED
TO BE BROUGHT TOGETHER TO RESOLVE ALL REMAINING ISSUES.


8. (C) ZUMA SUGGESTED THAT ONCE THE DOCUMENT IS RECEIVED,
EACH PARTY SHOULD BE ASKED TO PUT HIS THOUGHTS ABOUT THE
DOCUMENT ON PAPER SO THAT THE FACILITATION TEAM CAN SEE
WHERE THE DIFFERENCES ARE AND WORK OUT A SUSTAINABLE
COMPROMISE. ZUMA EXPLAINED THAT THE PARTIES "HAVE TO LIVE
WITH" THE FINAL PEACE AGREEMENT. "IT WILL AFFECT THEIR LIVES.
IT HAS TO SHAPE THE FUTURE OF THEIR COUNTRY. SUSTAINABILITY
MEANS LIVING WITH IT AND YOU HAVE TO BE SURE THEY CAN LIVE
WITH IT." SHE CONTINUED: "I THINK HE (MANDELA) IS RIGHT TO
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PAGE 04 HARARE 03959 02 OF 02 190955Z
PUSH THE PROCESS TO MOVE, BUT HE SHOULD FACILITATE AGREEMENT.
HE SHOULD BE JUST A LITTLE BIT PATIENT." HOWEVER, SHE ADDED
THAT SHE THOUGHT MANDELA'S ACTIONS WERE INTENDED PRIMARILY
TO PUSH THE PARTIES ALONG.


9. (C) WOLPE ALSO ADVISED ZUMA THAT THE USD 500,000 PLEDGED
BY THE U.S. IN SUPPORT OF THE ARUSHA PROCESS HAS BEEN
DEPOSITED AND AN ADDITIONAL USD 500,000 WILL FOLLOW. ZUMA
EXPRESSED SATISFACTION WITH THIS NEWS. SHE ADDED THAT
MANDELA HAS ACTUALLY DONE VERY WELL. LAST YEAR, BEFORE
NYERERE DIED, MUCH DISCUSSION ABOUT BURUNDI HAD TAKEN PLACE
BUT THOSE TALKS HAD NOT INCLUDED THE REBELS. WOLPE SECONDED
ZUMA'S OBSERVATION, ADDING THAT THERE HAD BEEN NO DISCUSSION
ON CORE ISSUES UNTIL MANDELA BECAME FACILITATOR. ZUMA AGAIN
EXPRESSED THE NEED FOR PATIENCE "SO THAT THE GOOD WORK IS
SUSTAINED" AND INDICATED HER INTENTION TO TALK TO MANDELA
WHEN HE RETURNED FROM ARUSHA AFTER HIS MEETINGS ON JULY 20.
IRVING

CONFIDENTIAL

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