UNDP STRUGGLES INSIDE, AND OUTSIDE, BURMA

C O N F I D E N T I A L SECTION 01 OF 02 RANGOON 000622 SIPDIS SIPDIS STATE FOR EAP/MLS, IO; PACOM FOR FPA E.O. 12958: DECL: 05/05/2016 TAGS: PGOV PHUM PREL EAID BM SUBJECT: UNDP STRUGGLES INSIDE, AND OUTSIDE, BURMA REF: A. RANGOON 576 ¶B. RANGOON 171 RANGOON 00000622 001.2 OF 002 Classified By: P/E Chief W. Patrick Murphy for Reasons 1.4 (b,d) ¶1. (C) Summary: UNDP officials told us that implementation of new GOB regulations for aid agencies and NGOs has been uneven and unpredictable. The GOB has not yet enforced compliance with the most restrictive of the new regulations, and some government entities have proven more flexible than others. However, the restrictions will likely tighten over time to comply with the desires of senior regime leaders. UNDP is also concerned that an ongoing GOB campaign characterizing various exile groups as terrorists could negatively harm UNDP programs. Nonetheless, the UN agency plans to continue its regular consultations with exile and domestic political organizations. End Summary. ¶2. (U) On May 5, New York-based UNDP Deputy Regional Director David Lockwood called on the Charge to discuss Burma country programs. Lockwood was accompanied by UNDP resident representative, and UN resident coordinator, Charles Petrie and by Onder Yucer, a retired UNDP official who will replace Petrie during his upcoming three-month sabbatical. ¶3. (U) Lockwood thanked the Charge for U.S. mission support for, and interest in, UNDP programs in Burma. He observed that 2005 had been a year of "ups and downs" for UNDP, inside Burma and also in New York and Washington. He raised the issue of certification of UNDP programs, which had been dropped from appropriations legislation. "We are confident that our programs adhere to the spirit of the certification process," he said, "and have no problem complying with the requirement." ¶4. (C) The UNDP officials expressed concern that the GOB's recent campaign characterizing various exile groups as terrorists could have a negative impact on UNDP programs (ref A). Petrie said that he and other UNDP staff have regular contact with some of the groups, as well as with domestic political organizations accused by the GOB of having relations with the exile groups. He agreed with us, however, that the GOB campaign was not a new tactic, noting that the UNDP would continue to consult with these groups and organizations. ¶5. (SBU) The UNDP team addressed the difficulties that UN ;agencies face in coping with new GOB guidelines for aid organizations (ref B). Petrie said that in general the GOB has not forced adherence to restrictive measures, "because they realize they made a mistake on February 7 when they unilaterally issued confusing guidance." As a result, implementation of the new guidelines has proven uneven and unpredictable. The Ministries of Health and Border Affairs, for example, have instituted no changes. Aid programs in ethnic border areas are also less constrained, Petrie said, because they fall under the authority of regional military commanders who are "more flexible." Meanwhile, ministries headed by hard-liners, such as Agriculture, have adopted very restrictive guidelines, including control over all employment decisions. The role of the Ministry of Planning, designated by the GOB as the lead agency overseeing foreign assistance programs, remains unclear. ¶6. (C) The regime's leaders "have no idea how bad the situation is throughout Burma," said Petrie. As a result, he said, UN and NGO efforts to open more space for humanitarian assistance, by arguing that an imminent crisis exists, fall flat with the senior generals. He expected, therefore, that despite uneven implementation of new guidelines, "the GOB ministries will eventually grow more restrictive, to comply with leadership instructions." RANGOON 00000622 002.2 OF 002 ¶7. (C) According to Petrie, a March meeting in Brussels on Burma issues concluded "with a fairly strong consensus" among aid agencies and activists that the humanitarian dimension inside Burma must be addressed. He disagreed, however, with the view among many activists that such needs can be met solely through cross-border assistance from Thailand. Petrie complained that some exile-based critiques of humanitarian assistance efforts are "misinformed, vindictive, and harmful." ¶8. (C) The Charge urged Petrie to accept the exile groups and activists, and their roles, as a reality. "There is nothing to be gained by trying to fight them," she said, "the regime is the enemy, not those who have fled the country." She acknowledged that opinions varied about the best mechanisms for the delivery of humanitarian assistance, adding that it was natural many groups would advocate for cross-border aid, given that regime restrictions appear to have narrowed opportunities inside the country. UNDP Deputy Director Lockwood advised his colleague to "be more thick-skinned; some groups will always be critical of our programs." Comment: Time for a Breather ¶9. (C) Burmese culture discourages the delivery of bad news up the chain of command, so it is very likely that the senior generals are clueless about how badly conditions have deteriorated around the country. Civilian and military officials on the ground who must deal with reality are more amenable to assistance. They must therefore find a way to facilitate assistance without attracting the attention of higher-ups. This system benefits ongoing efforts that have already established decent ongoing relationships on the ground. New assistance initiatives, however, face a more daunting challenge in gaining the confidence of bureaucratic players fearful for their own jobs. ¶10. (C) Petrie has one of the most frustrating jobs in the county trying to accommodate the concerns of a myriad of international and domestic audiences. He will use a portion of his sabbatical to pursue war crimes-related charges against a former UN employee in Rwanda. This is not exactly a restful exercise, but he clearly needs time away from Burma to recharge his batteries and prepare for even more challenges that will lie ahead. End Comment. VILLAROSA