PROPOSAL TO PRESS THE GOZ MORE EFFECTIVELY TO

C O N F I D E N T I A L SECTION 01 OF 04 HARARE 002624 SIPDIS FOR AF/FO KANSTEINER AND BELLAMY,AF/S, AND IO NSC FOR SR. AFRICA ADVISER JENDAYII FRAZER AID/W FOR AFR: NEWMAN, AFR/SA,DCHA/FFP, DCHA/OFDA, ROME FOR FODAG: AMB HALL AND TLAVELLE NAIROBI DCHA/OFDA LONDO FOR GURNEY PARIS FOR NEARY E.O. 12958: DECL: 11/18/2007 TAGS: EAID ZI SUBJECT: PROPOSAL TO PRESS THE GOZ MORE EFFECTIVELY TO COOPERATE ON FOOD ASSISTANCE REF: A. (A) HARARE 2529 ¶B. (B) HARARE 2496 ¶C. (C) HARARE 2403 Classified By: JOSEPH G. SULLIVAN FOR REASONS 1.5B/D ¶1. Summary: The suspension of international food deliveries to two locations, GOZ foot-dragging in the GOZ's dealings with international donors and documented reports of politicization of GOZ-controlled food stocks provides ample proof that the GOZ continues to place ZANU-PF political interests ahead of the well-being of the Zimbabwean population. Ex-commercial farm workers have been especially hard hit by this cynical policy. UNSYG Kofi Annan has been at the forefront of growing international condemnation of GOZ manipulation of food as a political tool. Barring other effective leverage to move the Mugabe Government from its current course, we think the best USG tactic would be to push for a UNSC session that focuses on the humanitarian emergency in Zimbabwe. Using this platform to highlight GOZ efforts to politicize food delivery might be the best way to pressure the GOZ into getting more food to the neediest Zimbabweans, irrespective of political considerations. End Summary GOZ Efforts to Politicize International Food Assistance -------------- -------------- ¶2. (C) GOZ response to the country's humanitarian emergency continues to place the well-being of its own people secondary to the interests of the ruling ZANU-PF. It is still largely true that international food assistance has not been diverted for political purposes because of objective World Food Program(WFP) controls over, and NGO implementation of, food distribution. The two most significant exceptions to this have been in the extremely poor district of Binga in Matabeleland North, where war veterans and government officials have cut off food deliveries on two occasions in the last six months. The most recent cutoff came after Binga residents voted in favor of the opposition MDC in rural council elections and has already persisted almost eight weeks. Only twelve days after the Government told donors that Save the Children(UK) would be authorized to resume food distribution in Binga did Minister July Moyo sign the document authorizing this resumption. In Insiza district in Matabeleland South, seizure of WFP food by ZANU-PF militants in the course of a parliamentary bi-election campaign led to a WFP cutoff of food deliveries to the district, and all subsequent discussions have failed to secure Government agreement to recognize the fault, replace the stolen three metric tons of food and provide assurances for the future that would be necessary for WFP to resume food deliveries. Other GOZ (In)Actions Slowing International Food Assistance -------------- -------------- 3.(C) Of greater overall impact in limiting the amount of food assistance has been the GOZ's slow response to the WFP and international donors. The GOZ insisted on a laborious NGO registration of or, in many cases, re-authorization process for NGO's to be able to carry out food distribution for the WFP or bilaterally. This clearance process included rigorous and time-consuming Central Intelligence Organization clearances that so slowed the ability of NGO's to staff up and organize as to assure that WFP will be unable to meet its target distribution of 55,000 metric tons by the most critical months of November and December. On top of this has been the GOZ's divided and protracted response to the GM/BT food issue. Following the mid-July letter to USAID A/A Winter from Labor and Social Affairs Minister July Moyo accepting US yellow maize through a swap arrangement, different Ministers of the GOZ flip-flopped several times on the issue before taking a Cabinet decision in early September to accept GM/BT maize. Even then, the Agriculture Ministry/Grain Marketing Board (GMB) seems to have slow-tracked the formal agreement with GMB for about four weeks. Thereafter, the issue of labeling donated maize raised by the Bio-safety Board cost additional time, but the Board demonstrated substantial flexibility in addressing this issue. Nonetheless, it is only now that we are at the point of having US maize distributed through WFP channels, many months after this could have happened. GOZ Intentions and Explanations -------------- ¶4. (C) We know from inside sources that the GOZ has the intention to manipulate international food assistance for its partisan political benefit, although we believe that WFP controls have minimized the GOZ's ability to achieve this goal. We also know that the GOZ intends to maintain GOZ/GMB predominance in delivering food to the population so that it can distribute GMB food in a way which benefits ZANU/PF's political agenda. GOZ limitations on, and delays in international food assistance coming into the country served GOZ objectives to maintain GMB predominance in food delivery to the population and concomitantly, the population's dependence on the Government. Because of the slow startup in international assistance, only now is the balance beginning to shift toward an international food assistance balance of close to half the basic food deliveries to the population. In addition, of course, the GOZ has maintained its adamant position of taking no steps to facilitate the private sector's ability to alleviate the food shortage, which would diminish by definition the GOZ's ability to use food as a weapon. 5.(C) The GOZ has utilized obfuscation, delay and outright lies to mask its actions and objectives. Foreign Minister Mudenge, for example, told his South African counterpart at the recent binational commission meetings that the Insiza incident was caused by ZANU-PF militants' reaction to an MDC conspiracy with the distributing ORAP NGO to divert the WFP food to MDC supporters -- this notwithstanding his having in hand WFP documentation of ZANU-PF seizure of food with police complicity. Minister July Moyo was only a bit less duplicitous in dealing with donors on the Insiza issue in claiming that it was the result of a complex set of two-sided political arm-wrestling and therefore did not merit an unambiguous WFP or Government response. GOZ manipulation of its own Food Distribution -------------- 6.(C) With respect to Government-purchased food, the GOZ has been blatant in its politicization of GMB food. Since food is sold at a highly subsidized and readily affordable price, the key issues are where this food is delivered and who has the right to purchase it. It is not true that the Matabeleland or the cities -- all MDC strongholds -- have been deprived of all Government food, but the ability of WFP or the international community to track the fairness of GOZ food distribution has been quite limited. Instead, we have some documentation from Zimbabwean organizations of the degree to which individual communities are benefited (such as Insiza) or prejudiced, depending on their support for ZANU. We also have frequent accounts of those seeking to buy food being required to produce ZANU membership cards or other proof of ZANU loyalty in order to purchase GMB maize. In discussing these issues with international donors, the GOZ has been anything but transparent. Notwithstanding President Mugabe's pledge to WFP Director Morris in September that all food of whatever provenance should be distributed on a non-partisan basis, the GOZ has never coordinated GMB deliveries effectively with the WFP. Minister July Moyo handles this issue cleverly in his meetings with donors, acknowledging that "some" politicization and corruption occurs, but claims it to be contrary to policy. He even invites donors to report any problems to him, knowing that such verification efforts are beyond the capacity of the UN and the donors. Ex-Commercial Farm Workers Largely Ignored -------------- 7.(C) As reported in ref c, the GOZ has shown virtually no genuine interest in assisting former commercial farm workers with food or humanitarian assistance, although it has recently submitted a formal request to the UN to assist in providing assistance to this group, although not as a privileged group. In fact, the GOZ has participated in the massive dislocation of this group, often to the fringes and most desolate parts of the country. Commercial farm workers are understandably intimidated and reluctant to identify themselves. Efforts by the UN and this Embassy to interview displaced and needy commercial farm workers on the outskirts of Harare were met by violent intervention of war veterans (ref A),whose actions the GOZ has yet to repudiate or punish. International Reaction to Politicization of Food Assistance -------------- -------------- ¶8. (C) The US and other donors and the WFP and the UN, including the UNSYG, have spoken out on numerous occasions against the politicization of food assistance. The most recent statement was by UNSYG Kofi Annan last week when he endorsed the WFP policy against the politicization of food assistance. "The Secretary General notes the continuing reports of politicization in food distribution and humanitarian assistance in general." "Those distributing aid have an obligation to ensure that it is given to beneficiaries based on their needs and not upon political affiliation" "The Secretary General fully supports the zero tolerance policy on the politicization of food distribution established by the World Food Program." " He appeals to the Government of Zimbabwe to ensure that political considerations do not affect food aid efforts within the country." With donor assistance, the UN has established an OCHA position to identify and assist needy ex-commercial farm workers and another Unit to verify that food assistance is reaching the neediest Zimbabweans and to examine allegations of improper distribution of food assistance. The UN believes it has the mandate to examine distribution of food provided by the WFP, that provided bilaterally, and also that provided by the GOZ. Comment: We think the first two mandates are achievable and will help relieve the pressures from several sides on the NGO's carrying out food distribution. However, the UN will be very hard pressed in the face of likely minimal cooperation from the GOZ to constrain continued Government politicization of its own food deliveries. Similarly, as exemplified in the previous para, UN and our efforts on the ground to find and assist ex-commercial farm workers will be difficult in the face of Government disinterest and active measures to the contrary. Comment: What to do ? -------------- ¶9. Some local NGO's have proposed cutting off all food deliveries in retaliation for GOZ political manipulation of food. Other NGO's and some political opposition leaders have proposed massive flooding of the country with food. Both of these options sound attractive, but are unlikely to be effective in practice. Cutting off all international food assistance would only make the situation of the population more desperate and would be unlikely to motivate the GOZ to change its behavior. Instead, the GOZ's ability to control to whom and under what conditions even scarcer food would be accentuated and the GOZ would be quick to blame the international community for resulting famine among those who are not ruling party supporters. Flooding the country with food would only be possible through use of force(unlikely) or by securing greater government cooperation by providing the food for distribution directly by the government(undesirable.) Comment continued: UNSC Focus on Humanitarian Assistance to Zimbabwe -------------- ¶10. While we defer to experts on the limits of the possible, we assume, based on similar experiences with respect to Angola, that it would be possible to have a UNSC session convened to focus on the humanitarian emergency in Zimbabwe (if necessary, as part of a broader examination of the Southern African emergency. At such a session, the UN Secretariat, OCHA, WFP and others could be called upon to SIPDIS report on the dimensions of the humanitarian emergency and efforts to deal with it. One of the issues which should receive ample focus at such a conference should be GOZ efforts to politicize food delivery, and what needs be done by the GOZ to provide food for all its citizens on the basis of need rather than political criteria. We would assume that a UNSC statement or resolution which focused on this problem in a clear way would be achievable, even if outright condemnation of GOZ practices would be unlikely. While less than a "home run," there would be some positive impact to such an outcome. Most importantly, the GOZ would be likely to seek to clean up its act, perhaps even in advance of a UNSC session, in an effort to avoid condemnation, thus helping more food get to more of the people who most need it. The UNSC action would also provide a point of continuing reference to press for future GOZ cooperation and non-politicization of humanitarian assistance. Finally, the UNSC discussion and eventual statement would help make it clear to Zimbabweans and the world that GOZ politicization of food to its own citizens was a fact, and one of serious international concern. SULLIVAN