UNDP RESREP AND AMBASSADOR CONSULT WITH

C O N F I D E N T I A L SECTION 01 OF 03 HARARE 006321

SIPDIS

LONDON FOR GURNEY
PARIS FOR BISA WILLIAMS
CONFIDENTIAL

PAGE 02 HARARE 06321 01 OF 03 111147Z
NSC FOR SENIOR AFRICA DIRECTOR GAYLE SMITH
PASS USTR FOR ROSA WHITAKER

E.O. 12958: DECL: 10/09/2010
TAGS: PREL PINR EAGR ZI
SUBJECT: UNDP RESREP AND AMBASSADOR CONSULT WITH
MINISTRY OF FOREIGN AFFAIRS PERMANENT SECRETARY ON STEPS
TO DEFUSE TENSIONS IN ZIMBABWE

REF: (A) HARARE 6282, (B) HARARE 6281

CLASSIFIED BY AMBASSADOR TOM MCDONALD FOR REASONS 1.5
(B) AND (D) .


1. (C) SUMMARY: AMBASSADOR MCDONALD, THE UNITED NATIONS
DEVELOPMENT PROGRAM RESIDENT REPRESENTATIVE, VICTOR
ANGELO, AND DCM (NOTE TAKER) CALLED ON MINISTRY OF
FOREIGN AFFAIRS PERMANENT SECRETARY WILLARD CHIWEWE ON
NOVEMBER 8 TO EXPLORE WAYS THE DONOR COMMUNITY COULD
ASSIST IN DEFUSING TENSIONS IN ZIMBABWE. THE PERMANENT
SECRETARY, BY TURNS CHOLERIC AND ELATED, WELCOMED THE

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INITIATIVE. ADMITTING HE WAS CAUGHT UNPREPARED TO GIVE
VETTED GOVERNMENT POSITIONS, CHIWEWE NEVERTHELESS SAID
THAT FIRST THE FIRST ORDER OF BUSINESS WOULD BE TO
PRESENT TO PRESIDENT MUGABE THE UNITED NATIONS AND
UNITED NATIONS DEVELOPMENT PROGRAM (UN/UNDP) MISSION
REPORT ON THE ZIMBABWEAN FAST TRACK LAND REFORM
PROGRAM'S TECHNICAL DEFICIENCIES. THE GOVERNMENT OF
ZIMBABWE WOULD THEN INVITE DONORS WHO WISHED TO SUPPORT
THE LAND REFORM PROGRAM WITHOUT CONDITIONS TO DO SO.
THE SENIOR ZIMBABWEAN OFFICIAL ALSO ASKED FOR ASSISTANCE
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IN ELIMINATING THE INTERNATIONAL COMMUNITY'S "SIEGE"
AGAINST HIS COUNTRY AND PRESIDENT, A STATE OF AFFAIRS
THAT FOSTERED INSECURITY AND WAR TALK. IN TURN, HE
OFFERED TO APPROACH PRESIDENT MUGABE TO ADVISE HIM TO
ADDRESS THE INTERNATIONAL COMMUNITY'S CONCERNS ABOUT
RULE OF LAW AND HUMAN RIGHTS ABUSES ON THE COMMERCIAL
FARMS. WE ARE CHARY ABOUT HOW FAR WE CAN TAKE THIS
ENTERPRISE, AND CHIWEWE SO FAR IS AN UNTESTED VEHICLE OF
UNKNOWN RELIABILITY. BUT THE FACT THAT HE TOLD US HIS
GOVERNMENT'S PRINCIPAL CONCERNS MAKES US CAUTIOUSLY
HOPEFUL THAT THE ZIMBABWEANS MIGHT BE READY TO ENGAGE IN
REAL AND LESS CONFRONTATIONAL DIALOGUE. END SUMMARY.


2. (C) ON NOVEMBER 8 AMBASSADOR MCDONALD, UNDP RESIDENT
REPRESENTATIVE VICTOR ANGELO AND DCM CALLED ON MINISTRY
OF FOREIGN AFFAIRS PERMANENT SECRETARY WILLARD CHIWEWE,
WHO WAS ACCOMPANIED BY THREE MINISTRY OF FOREIGN AFFAIRS
OFFICIALS WHO REMAINED SILENT THROUGHOUT THE DISCUSSION.
ANGELO LED OFF SAYING THAT IT WAS OUR COMMON PURPOSE TO
BE OF HELP AND WERE THUS SEEKING THE PERMANENT
SECRETARY'S ADVICE ON HOW CERTAIN KEY AMBASSADORS MIGHT

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CONTRIBUTE TO ZIMBABWEANS FINDING A SOLUTION TO THEIR
OWN PROBLEMS. THE UNDP CHIEF WANTED TO KNOW HOW TO
PROMOTE GREATER DISCUSSION AMONG KEY STAKEHOLDERS WITH A
VIEW TO FACILITATING A CONSENSUS BUILDING PROCESS. HE
STRESSED THAT THERE WAS A SENSE OF URGENCY AMONG THE
DONOR COMMUNITY TO GET THIS PROCESS UNDER WAY SOON,
BECAUSE CONDITIONS IN THE COUNTRY BEING WHAT THEY ARE,
WAITING TO HELP MIGHT LEAVE IT TOO LATE.


3. (C) THE PERMANENT SECRETARY REACTED BY EXPRESSING
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HIS "HAPPY SURPRISE" THAT THE U.S. AMBASSADOR HAD AGREED
TO JOIN ANGELO, CALLING THE GESTURE "VERY SIGNIFICANT."
HE WAS PLEASED TO NOTE THE USG'S SUPPORT FOR THE LAND
REFORM PROCESS. HE ADMITTED THAT HIS GOVERNMENT "TENDED
TO FEEL GLOBAL LEADERS TAKING A BENIGN NEUTRALITY"
TOWARD ITS EFFORTS TO SOLVE THE LAND PROBLEM. HE
CONTINUED THAT IN ZIMBABWE, "WE DO NOT HAVE THE BASIS OF
A CONFLICT WITH THE STATUS OF AN INTERNATIONAL PROBLEM."
THE GOVERNMENT OF ZIMBABWE IS CONVINCED THAT WITH
INTERNATIONAL GOOOWILL THERE WILL BE NO PROBLEMS, WHICH
ARE SMALLER THAN THEY LOOK, AND CALLED ON THE USG TO
ASSERT ITS LEADERSHIP ROLE IN THIS CONNECTION. THE
AMBASSADOR REJOINED THAT THE PERMANENT SECRETARY SHOULD
SEE THIS VISIT AS A CONTINUATION OF EFFORTS TO
DEMONSTRATE GOOD WILL TO THIS GOVERNMENT. HE NOTED THAT
IT WAS TIME TO EXPAND AND INTENSIFY THE DIALOGUE IN
ZIMBABWE.


4. (C) TURNING TO THE UNDP RESREP'S REQUEST FOR ADVICE,
CHIWEWE REMARKED THAT, "WE NEED TO UNBUNDLE VARIOUS
ACTIONS AND SEQUENCE THEM." FIRST AMONG THESE WAS TO
MAKE A FORMAL PRESENTATION OF THE FINAL REPORT OF THE
UN/UNDP TECHNICAL MISSION TO PRESIDENT MUGABE. HE
EXPECTED THE PRESIDENT WOULD ENDORSE THE FINDINGS OF THE
REPORT, WHICH WOULD GIVE COOPERATION WITH THE

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INFO LOG-00 NP-00 AF-00 AGRE-00 ACQ-00 CIAE-00 SMEC-00
COME-00 INL-00 DINT-00 DODE-00 DOEE-00 DOTE-00 SRPP-00
DS-00 EB-00 EUR-00 FAAE-00 FBIE-00 VC-00 HHS-01
H-01 SSA-01 TEDE-00 INR-00 L-00 VCE-00 AC-01
NSAE-00 OES-01 OIC-02 OMB-01 PA-00 PM-00 PRS-00
ACE-00 P-00 SP-00 IRM-00 SS-00 TRSE-00 T-00
USIE-00 R-00 PMB-00 DSCC-00 PRM-02 DRL-02 G-00
NFAT-00 SAS-00 /012W
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P 111147Z NOV 00
FM AMEMBASSY HARARE
TO SECSTATE WASHDC PRIORITY 7608
INFO NSC WASHDC PRIORITY
USMISSION USUN NEW YORK PRIORITY
AMEMBASSY LONDON
AMEMBASSY PARIS
AMEMBASSY PRETORIA
AMEMBASSY GABORONE
AMEMBASSY LUSAKA
AMEMBASSY NAIROBI
AMEMBASSY MAPUTO
AMEMBASSY WINDHOEK

C O N F I D E N T I A L SECTION 02 OF 03 HARARE 006321

SIPDIS

LONDON FOR GURNEY
PARIS FOR BISA WILLIAMS
CONFIDENTIAL

PAGE 02 HARARE 06321 02 OF 03 111148Z
NSC FOR SENIOR AFRICA DIRECTOR GAYLE SMITH
PASS USTR FOR ROSA WHITAKER

E.O. 12958: DECL: 10/09/2010
TAGS: PREL PINR EAGR ZI
SUBJECT: UNDP RESREP AND AMBASSADOR CONSULT WITH
MINISTRY OF FOREIGN AFFAIRS PERMANENT SECRETARY ON STEPS
TO DEFUSE TENSIONS IN ZIMBABWE

INTERNATIONAL COMMUNITY "A NEW START." HE SUGGESTED
THAT THE VISIT OF UNDP ADMINISTRATOR MALLOCH-BROWN
SHOULD BE USED AS THE OPPORTUNITY TO MAKE THE
PRESENTATION. ANGELO COMMENTED THAT HE APPRECIATED THE
PERMANENT SECRETARY'S OBSERVATION AND LOOKED FORWARD TO
CONSULTATIONS AT CHIWEWE'S LEVEL TO GIVE FINAL SHAPE TO
THE REPORT WHICH WAS STILL IN DRAFT FORM.


5. (C) NEXT, CHIWEWE STRESSED THAT HIS GOVERNMENT IS NOT
READY FOR DONOR COMMUNITY CONDITIONALITY TO THE "FAST
TRACK" LAND REDISTRIBUTION EXERCISE. THE GOVERNMENT AND
THE TECHNICAL TEAM HAD AGREED ON A NUMBER OF AREAS WHERE
THE GOVERNMENT HAD WEAKNESSES. HE SAID THAT THE DONORS
COULD HELP IMMEDIATELY, FOR EXAMPLE, BY PROVIDING
EXPERTS ON DEMARCATION, LAND AND IMPROVEMENT VALUATORS
AND AERIAL SURVEYING EQUIPMENT. HE STRESSED THAT HIS
GOVERNMENT'S FUNDAMENTAL OBJECTIVE WAS TO "GET IT [THE
FAST TRACK LAND REDISTRIBUTION EXERCISE] OVER WITH."
AGAINST THIS BACKDROP, CHIWEWE CONTINUED, "WE ARE
INVITING DONORS WHO WANT TO SUPPORT THE LAND REFORM
PROGRAM WITHOUT CONDITIONS. IF THEY DON'T WANT TO COME,
THEY SHOULDN'T. IN THAT CASE, WE'LL DO A BUSH
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RESETTLEMENT." THE PERMANENT SECRETARY REITERATED THAT
THE INTERNATIONAL COMMUNITY COULD NOT TELL HIS
GOVERNMENT TO PUT A HALT TO THE RESETTLEMENT EXERCISE,
ALTHOUGH IT WOULD BE RECEPTIVE TO CONSTRUCTIVE
CRITICISM, FOR EXAMPLE, "REFINE THIS, OR REFINE THAT."


6. (C) AMBASSADOR MCDONALD EXPLAINED THAT HE AND ANGELO
WERE WILLING TO TAKE THE FIRST STEP BECAUSE, WITH ALL
DUE RESPECT, HE DID NOT THINK PRESIDENT MUGABE WOULD DO
SO. THE POINT WAS TO UNLOCK THE DOOR TO DISCUSSION. HE
CONTINUED THAT THE USG HAD SOME SERIOUS CONCERNS ABOUT
RULE OF LAW ON THE COMMERCIAL FARMS IN ZIMBABWE AND
CAUTIONED THAT, IN INITIATING THE DISCUSSION, DID NOT
WISH TO PAPER OVER DIFFERENCES. HE WONDERED PERHAPS IF
THERE WAS NOT ANOTHER WAY TO TACKLE THAT DISCUSSION.
CHIWEWE CONCURRED, AGREEING THAT UNVOICED DISAGREEMENT
SHOULD BE AVOIDED. IN A RARE MOMENT OF SELF-CRITICISM,
HE OBSERVED THAT DIFFERENCES WITH THE INTERNATIONAL
COMMUNITY DATING BACK TO SEPTEMBER 1998 STILL REMAINED.
"PERHAPS THE STANCE I TOOK DURING THE 1998 DONORS'
CONFERENCE GAVE A SENSE OF SUCCESS." AMBASSADOR
MCDONALD ASKED THAT PRESIDENT MUGABE KEEP AN OPEN MIND,
AS THE USG WAS PREPARED TO MOVE FORWARD AND ZIMBABWE
COULD NOT SOLVE ITS PROBLEMS ALONE.


7. (C) THE MFA PERMANENT SECRETARY THEN OBSERVEO THAT,
"IN THE PAST TWO YEARS YOU'VE PICKEO UP A LANGUAGE OF
WAR THAT WAS NOT IN OUR VOCABULARY IN THE LAST EIGHT
YEARS." IT COMES, HE SAIO, FROM A PERCEPTION THAT
ZIMBABWE IS "AN ANIMAL UNOER SIEGE," ANO THE
INTERNATIONAL COMMUNITY CREATED THAT. HE THANKEO ANGELO
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ANO THE AMBASSAOOR FOR MAKING THE FIRST MOVE BUT
INQUIRED, CAN WE HELP REMOVE THE INTERNATIONAL SIEGE
AGAINST THE PRESIDENT?" THE UNDP RESIDENT
REPRESENTATIVE REPLIED THAT HE WAS TRYING. HE HAD TOLD
THE DONORS THAT THAT WAS NOT THE BEST APPROACH AND HAD
COUNSELED THE COMMERCIAL FARMERS' UNION TO MOVE FROM ITS
CURRENT POSITION.


8. (C) WITH THE CREATION OF CONDITIONS TO REMOVE
INSECURITY AND SIEGE, CHIWEWE STATED THAT HE WAS
"PREPARED TO SAY TO PRESIDENT MUGABE THAT THE GESTURE
NEEDS TO BE RECIPROCATED. I COULD SAY TO THE PRESIDENT,
'LET'S CREATE THE NECESSARY ENVIRONMENT TO ENGAGE THE
DONORS.'" SPECIFICALLY, HE WOULD RECOMMEND TO THE
PRESIDENT THAT, "THE GOVERNMENT OF ZIMBABWE MUST BE SEEN
TO ENFORCE THE LAW IN RESPECT OF FARM OCCUPATIONS."
CHIWEWE CONTINUED THAT HE WOULD MAKE THE ARGUMENT THAT
THE LAW WAS ENFORCEABLE ONLY UNDER CONDITIONS OF ORDER.
UNDERSCORING THAT HE WOULD ACT AS A BRIDGE IF THE DONORS
WERE SATISFIED THAT THERE IS LAW AND ORDER ON THE FARMS.
ONCE EMBARKED ON THIS PATH, HE LOOKED TO THE WEST TO
CONTINUE TAKING CONFIDENCE BUILDING STEPS, FOR EXAMPLE,
BRINGING THE IMF CLOSER TO ZIMBABWE'S POSITION AND
SECURING A WORLD BANK MORATORIUM FROM CALLING IN LOANS.

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INFO LOG-00 NP-00 AF-00 AGRE-00 ACQ-00 CIAE-00 SMEC-00
COME-00 INL-00 DINT-00 DODE-00 DOEE-00 DOTE-00 SRPP-00
DS-00 EB-00 EUR-00 FAAE-00 FBIE-00 VC-00 HHS-01
H-01 SSA-01 TEDE-00 INR-00 L-00 VCE-00 AC-01
NSAE-00 OES-01 OIC-02 OMB-01 PA-00 PM-00 PRS-00
ACE-00 P-00 SP-00 IRM-00 SS-00 TRSE-00 T-00
USIE-00 R-00 PMB-00 DSCC-00 PRM-02 DRL-02 G-00
NFAT-00 SAS-00 /012W
-------------- 9DA61B 111148Z /38
P 111147Z NOV 00
FM AMEMBASSY HARARE
TO SECSTATE WASHDC PRIORITY 7609
INFO NSC WASHDC PRIORITY
USMISSION USUN NEW YORK PRIORITY
AMEMBASSY LONDON
AMEMBASSY PARIS
AMEMBASSY PRETORIA
AMEMBASSY GABORONE
AMEMBASSY LUSAKA
AMEMBASSY NAIROBI
AMEMBASSY MAPUTO
AMEMBASSY WINDHOEK

C O N F I D E N T I A L SECTION 03 OF 03 HARARE 006321

SIPDIS

LONDON FOR GURNEY
PARIS FOR BISA WILLIAMS
CONFIDENTIAL

PAGE 02 HARARE 06321 03 OF 03 111148Z
NSC FOR SENIOR AFRICA DIRECTOR GAYLE SMITH
PASS USTR FOR ROSA WHITAKER

E.O. 12958: DECL: 10/09/2010
TAGS: PREL PINR EAGR ZI
SUBJECT: UNDP RESREP AND AMBASSADOR CONSULT WITH
MINISTRY OF FOREIGN AFFAIRS PERMANENT SECRETARY ON STEPS
TO DEFUSE TENSIONS IN ZIMBABWE


9. (C) ANGELO OBSERVED THAT THIS WAS NOT "A 'WAITING
FOR GODOT' EXERCISE. TIME IS AGAINST US. HE COUNSELED
CHIWEWE FOR THE GOVERNMENT OF ZIMBABWE TO TAKE A
PRAGMATIC APPROACH AND ESTABLISH ORDER, IDENTIFY THE
ISSUES AND SAY THAT IT IS WORKING TO ADDRESS THESE. HE
SAID THAT A SMALL NUMBER OF DONORS DID NOT UNDERSTAND
WHY THE UN/UNDP MISSION WAS PURSUING THIS COURSE OF
ACTION. HE ASKED FOR GOVERNMENT SUPPORT, TO WHICH
CHIWEWE RESPONDED THAT THE ZIMBABWEAN GOVERNMENT HAD
MADE NO STATEMENT DURING THE UN/UNDP MISSION'S STAY IN
ZIMBABWE. THE PERMANENT SECRETARY WOULD TRY TO KEEP A
LID ON THE PRESS. ASKED WHAT ELSE HE HAD IN MIND
REGARDING LIFTING OF THE SIEGE, CHIWEWE CONCEDED THAT HE
HAD NOT RECEIVED ADVANCED NOTIFICATION OF THE ISSUES TO
BE DISCUSSED AT THE MEETING, BUT THAT "ONCE WE SET THE
FRAMEWORK RIGHT, AND CONTINUE THE PROCESS STARTED, YOU
SHOULDN'T SOLICIT DEFINITIVE GOVERNMENT POSITIONS."


10. (C) THE UNDP RESIDENT REPRESENTATIVE THEN TOLD
CHIWEWE THAT THERE ARE INDIRECT WAYS TO PURSUE THE
DIALOGUE, BUT THE GOVERNMENT WAS FRUSTRATING THESE. HE
CONTINUED THAT THE MINISTER OF AGRICULTURE HAD NOT MET
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WITH THE UNIONS (I.E., THE COMMERCIAL FARMERS UNION, THE
INDIGENOUS COMMERCIAL FARMERS' UNION AND THE ZIMBABWE
FARMERS' UNION) TO DISCUSS THE COMING AGRICULTURAL YEAR
AND LISTEN TO THEIR CONCERNS. THE UNDP RESIDENT
REPRESENTATIVE INFORMED THE PERMANENT SECRETARY THAT HE
HAD DIFFICULTY PERSUADING AGRICULTURE MINISTER TO DO SO.
CHIWEWE CHOSE TO INTERPRET IN THIS ACCOUNT AN
INSINUATION BY ANGELO THAT THE DONOR COMMUNITY WAS
TRYING TO LOBBY THE GOVERNMENT TO LISTEN TO ITS OWN
PEOPLE AND IMPOSE THE AGENDA FOR DISCUSSION. HE
LAUNCHED INTO A BILIOUS REJECTION OF THE SUGGESTION AND
DEFENDED HOTLY HIS GOVERNMENT'S RECORD ON COMMUNICATION
WITH THE UNION. ANGELO AND THE AMBASSADOR WORKED IN
TANDEM TO CALM CHIWEWE, EXPLAINING ONLY THAT THE FARMERS
HAD SOME REAL CONCERNS AND THAT THE INTERNATIONAL
COMMUNITY WAS ADVOCATING NO PARTICULAR POSITION ON THE
MATTER ONLY BETTER COMMUNICATION. A MORE RELAXED
CHIWEWE SUGGESTED THAT MISHECK SIBANDA IN THE
PRESIDENT'S OFFICE WOULD BE THE PERSON TO APPROACH ON
THE MATTER.


11. (C) CHIWEWE IS ARGUABLY THE MOST POWERFUL AND
INFLUENTIAL PERMANENT SECRETARY IN GOVERNMENT TODAY. HE
IS A PROTEGE OF PRESIDENTIAL CONFIDANT AND REPUTED POWER
BROKER CHARLES UTETE. IN THE EARLY POST-INDEPENDENCE
YEARS CHIWEWE WORKED IN THE PRESIDENT'S OFFICE ON
INTERNATIONAL AFFAIRS. THE FACTS ALONE SUGGEST THAT
CHIWEWE IS IN A POSITION TO TRY TO PERSUADE THE
PRESIDENT TO ALTER THE CURRENT COURSE OF HIS POLICY. TO
DATE WE HAVE OBSERVED THAT THE PERMANENT SECRETARY HAS
NOT USED HIS POSITION IN THE MINISTRY OF FOREIGN AFFAIRS
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TO MAKE FRIENDS FOR ZIMBABWE ABROAD. THE RUSSIAN
AMBASSADOR, FOR EXAMPLE, IS STILL AWAITING AN
APPOINTMENT TO MAKE HIS COURTESY CALL ON CHIWEWE DESPITE
A REQUEST TWO MONTHS AGO. THE SOUTH AFRICAN HIGH
COMMISSIONER TOLD US RECENTLY THAT HE HAS SOME BILATERAL
PROBLEMS TO SORT OUT AND CHIWEWE KEEPS AVOIDING HIM.
THE FACT THAT THE PERMANENT SECRETARY RECEIVED THE
AMBASSADOR AND ANGELO FAIRLY QUICKLY IS EXTRAORDINARY IN
ITSELF. IT SUGGESTS TO US THAT HIS GOVERNMENT IS
LOOKING FOR A WAY TO END ITS INTERNATIONAL ISOLATION AS
A MEANS TO GET OUT OF ITS CURRENT FIX AND MAY BE READY
TO DEAL. NEVERTHELESS, WILLARD CHIWEWE REMAINS AN
UNTESTED VEHICLE OF UNKNOWN RELIABILITY IN DELIVERING
DESIRABLE BEHAVIOR FROM THE ZIMBABWEAN GOVERNMENT: WE DO
NOT FULLY TRUST HIM. WE WILL PROCEED CAUTIOUSLY WITH
THIS INITIATIVE AND CONTINUE TO SUPPORT VICTOR ANGELO'S
EFFORT TO RALLY THE DONOR COMMUNITY TO WORK CREATIVELY
TO END THE VIOLENCE AND CHAOS SURROUNDING THE FAST TRACK
RESETTLEMENT EXERCISE.

MCDONALD

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