PACIFIC ISLANDS FORUM 2006: A/S HILL UNDERSCORES

C O N F I D E N T I A L SECTION 01 OF 07 SUVA 000490 SIPDIS SIPDIS E.O. 12958: DECL: 11/03/2031 TAGS: AORC PREL EAID ECIN ETRD FJ XV SUBJECT: PACIFIC ISLANDS FORUM 2006: A/S HILL UNDERSCORES U.S. ENGAGEMENT IN PACIFIC REF: A. SUVA 459 ¶B. SUVA 455 Classified By: Amb. Larry Dinger. Reasons 1.4 (b) and (d) Summary -------------- ¶1. (C) EAP Assistant Secretary Christopher Hill emphatically reaffirmed U.S. commitments and interests in the Pacific at the 2006 Pacific Islands Forum (PIF) summit in Nadi, Fiji. In a new PIF-Leaders "special session" for the United States, Hill countered a suggestion that the U.S. has disengaged from the region. Per ref A, Hill offered to organize a multilateral meeting in Washington on future avenues for economic cooperation with PIF countries under the Joint Commercial Commission (JCC) rubric. He also discussed ideas for a possible high-level USG meeting with island leaders. In a two-day series of bilaterals and media opportunities, A/S Hill continued to stress the U.S. engagement message. Also on the agendas were donor coordination and transparency, good governance and rule of law, regional security, trade and economic cooperation, capacity building, environmental issues, potential Peace Corps programs, and the Millennium Challenge Account. Hill updated Australian PM Howard and New Zealand PM Clark on the North Korea crisis. In meetings with representatives of China, a formal PFD partner, and Taiwan, a PIF Secretariat donor invitee, Hill noted U.S. misgivings about checkbook diplomacy in competition for recognition in the region. End Summary. Hill: United States Remains Engaged -------------- ¶2. (SBU) A/S Hill used his conversation with a dozen heads of PIF-member governments at the United States special session to counter worries among some that the U.S. is neglecting the Pacific. He reconfirmed the U.S. commitment to the region, noting that U.S. substantive interaction via embassies and in a variety of regional bodies, plus continued significant funding through international organizations and the Millennium Challenge Corporation's contract with Vanuatu are undeniable indicators of U.S. engagement in the Pacific. He cited the recent approvals of regional environmental and public-diplomacy hubs at Embassy Suva as further evidence. And he proposed further engagement through a revitalized JCC and possible high-level meetings in 2007. (See ref A for details.) Core Donors Meeting... -------------- ¶3. (C) A/S Hill's other group session was a U.S.-hosted informal meeting of significant donor nations attending the PIF festivities. Participation was based on a sense of which partners the Island States see as most important: Australia, China, the European Union, France, Japan, Korea, New Zealand, the UK, and the U.S. PIF Secretary General Greg Urwin, who moderated the meeting, called on core donors to be jointly guided by agreed international-assistance frameworks. He offered the PIF's Pacific Plan as a useful road map. The EU suggested the Paris Principles, as well. Hill proposed that donors emphasize the concept of community, as opposed to the dichotomy of givers and takers. Hill urged the donors, including China whose presence and role he highlighted, to coordinate efforts to address governance issues. Australia noted that governments find it hard to justify large amounts of aid "if it's going into pockets." The EU outlined its new methodology for encouraging good governance by mutually agreed performance indicators that, if met, trigger increased aid flows. New Zealand cautioned that some aid recipients have expectations that are not attainable. China suggested it is not a major donor, though it has appointed a senior diplomat as Ambassador-at-Large for development assistance to the region. China said fighting corruption, fostering good governance, and promoting the rule of law are among its goals, and it looks forward to cooperating with the other donor nations in the Pacific. SUVA 00000490 002 OF 007 Regional restructuring; PFD revisions -------------- 4 (C) On other core-partner issues, Urwin noted that the PIF agreed to pursue its theme of consolidating regional technical agencies; however, given widespread questions about legal, financial, and administrative aspects of the initial proposal, Summit leaders have called for a task force to consider the various issues and report back to the 2007 summit. On plans to reform the PFD process, Urwin said PIF leaders are prepared to replace the current bilateral PFDs with a most-of-day plenary on one or more issues of regional importance. When the Japanese expressed concern that some form of bilateral PFD may remain useful from time to time, Urwin took that on board. He emphasized that informal bilaterals among nations on the margins of the PFD are valuable and would certainly continue. Partner session worth continuing -------------- ¶5. (C) Participants judged the core-donor session worth repeating and agreed to meet again on the margins of future PIF meetings. Australia recommended that the group, perhaps under PIF auspices, should consider holding "structured meetings on key regional issues and concerns" related to donor coordination. Urwin responded that thought should be given to scheduling such meetings at future PIF summits or separately, with more time and an expanded agenda. Bilateral: Australia -- Pacific issues -------------- ¶6. (C) In the Australia bilat, PM John Howard briefed Hill on the Forum leaders' discussion of the PIF-sponsored Regional Assistance Mission for Solomon Islands (RAMSI). Howard said PM Sogavare's emotional call for a fundamental re-think was, in the end, not heeded. The debate was heated, but "when push came to shove, they (island leaders) still support RAMSI." The group did agree to a review, but the mission would continue unchanged in the interim. Howard noted more tension and aggression at the PIF summit this year, the result of push back from island leaders to Australia's insistence that certain conditions be met for continuing aid. He acknowledged that Australia "casts a long shadow" over PNG and to a lesser extent the Solomons, but the disagreement over the flight from PNG of Solomon Islands Attorney General nominee Moti posed a basic rule-of-law question. Sogavare needs to be encouraged to use common sense. Hill suggested that is a message New Zealand might be able to deliver in Australia's stead. Howard replied that Australia and New Zealand work well together in the Pacific, not always agreed on every issue but together on the important ones, such as the need for good governance and policies to promote economic growth. He described New Zealanders as "soft Saxons, with a disposition to the center-left and with fewer resources" than Australia. Howard said Australia is "happy to take a role" in the South Pacific, but Australian taxpayers expect their money to not be abused by those receiving it. Howard described Fiji PM Qarase as "a good man doing a good job. I have a lot of time for him." Howard welcomed A/S Hill's presence at the Forum as a sign of U.S. interest in the Pacific region. Australia -- Other East Asia issues -------------- ¶7. (C) On East Timor, Howard said the issues are "very tough." The current leadership is "the best of the ones there, but they need a lot of help." He said the UN wants to get out too soon. "We have all learned you can never have too many people on the ground." Hill gave Howard an update on recent developments on North Korea. Howard suggested China is "quite chastened" by the nuclear test. It was a "humiliation," but in fact an "ill wind" situation. It has knocked China "psychologically off balance." As a result, the Chinese have never been more helpful. He judged it really good that the issue has brought the U.S. and China SUVA 00000490 003 OF 007 closer. Howard said that Japanese-Chinese relations, prior to new PM Abe, had "deteriorated totally." That was a problem for both Australia and the U.S. Now there is hope for improvement. Bilateral: New Zealand -------------- ¶8. (C) When A/S Hill briefed PM Clark on North Korea, she suggested the U.S. and China are now "united" on the issue. She said the most difficult aspect in international diplomacy is: what to do with a rogue nuclear power. Clark appreciated the Secretary's phone call to Foreign Minister Peters on North Korea, seeing it as "proactive diplomacy." Clark asked the U.S. to "stick to your guns" regarding the Korea FTA negotiations. She described a "soft deal" that Chile concluded with Korea which doesn't address agriculture and is "an enormous danger to New Zealand." Clark described the Thai coup as "very unwelcome" and suggested it made Indonesia quite nervous. She predicted the Philippines is "a stick away from disaster." ¶9. (C) Clark thanked Hill for his "personal efforts on the New Zealand relationship." When Hill noted the possibility of a high-level meeting with Pacific leaders, Clark suggested a "whistle stop" to Suva could be a good idea, and a stop in New Zealand would also be welcome. Clark said New Zealand media would be "overwhelmingly positive." There would be protesters, but that would be manageable. She noted a Hawaii venue would also work. Clark expressed appreciation for Hill's visit to Nadi and for the U.S. continued participation in the region. She noted that "everyone else is here": China, Taiwan, France, Japan, the EU. Australia and New Zealand are present but are "not big fish." An example is Tuvalu's attitude toward whaling. New Zealand provides $2 million; Japan gives $20 million. Clark said the "jug is half full" on the Pacific plan. It is a response of the "marginalized Pacific" for the 21st Century and can help donors allocate their funding. Still it gets derailed, as may be happening in Fiji with Commodore Bainimarama's activities. On the Solomons, Clark noted that any government there has "dubious elements," compounded by lots of dollars from Taiwan. She aspires to a clearer vision on a strategy and end point for that issue. Other Bilaterals -------------- ¶10. (SBU) In other bilaterals, Hill highlighted the USG themes of continuing U.S. engagement in the Pacific; concerns over good government, transparency, and the rule of law; interest in exploring potential for economic cooperation and trade; and donor coordination. For their part, senior leaders of Fiji, Tonga, Palau, Nauru, Tuvalu, the Federated States of Micronesia, the Marshall Islands, and Samoa, and delegation heads from the European Union, Japan, Korea, and China had widely varying agendas. China -------------- ¶11. (C) Hill's meeting with Assistant Minister of Foreign Affairs He Yafei included discussion of North Korea, which He noted has "strategic import for both of us." He assured Hill that "we see eye to eye on almost every issue, and there is nothing that cannot be solved." He expressed thanks for repeated U.S. assurances on Taiwan. China sees the Chen government growing increasingly "desperate and pushing the envelope" due to domestic troubles. The idea of a new constitution is "very dangerous." He said China's aid practices in the Pacific are not aimed at gaining influence or undermining good governance. "Only in very exceptional cases" does it include cash. In fact, China's criteria for aid in the region are good governance, reduced corruption, sustainable, long-term impacts, especially on economic growth, and avoidance of competition with Taiwan, which He accused of routinely using aid to corrupt small island governments. He asked Hill for U.S. help to wean the six PIF SUVA 00000490 004 OF 007 states that recognize Taipei away from Taiwan, saying, "Greater recognition of China would also serve U.S. interests." He noted China has "huge (assistance) resources, but we don't want to go there." Beijing's insistence that Hill not meet at the summit with a representative of Taiwan received brief mention. (He hit on that topic more insistently the evening before during an informal chat.) Hill reminded He that U.S. policies on communicating with Taiwan will not change, and suggested that China should engage in dialogue with Taiwan and avoid humiliating it in international fora. Taiwan -------------- ¶12. (C) In an informal encounter with Taiwan Vice Minister of Foreign Affairs, Ms. Chang Siao-Yue, Hill stressed the message: good governance in providing aid. He advised Chang that Taiwan should avoid focusing on its "competition" with China in the Pacific and instead seek to "brand" Taiwan's development programs as an example of how to deliver honest, transparent, good-quality assistance. Chang said that despite claims by others, including Australia, that Taiwan uses its aid chiefly to buy influence, it is "never our goal to put funds into pockets, always projects." She said Taiwan doesn't have the money to compete with China for influence in the Pacific; and, in addition, the Taiwan legislature watches her ministry's activities in the Pacific very closely. She accused China of attempting to woo politicians from Kiribati's previous government (which recognized China) in an attempt to shift Kiribati into Beijing's camp at some future date. Chang told Hill that Taipei welcomes increased U.S. involvement in the Pacific. She said Taiwan is worried that the United States is not paying enough attention to China's expansion in the region. Japan -------------- ¶13. (SBU) Japan's "special representative" to the PIF summit, senior diplomat Tutsuo Arima, told Hill that bettering governance in the Pacific island states has become one of Tokyo's core objectives. Under the recently concluded "Okinawa Partnership" agreement, Japan committed to spending some $400 million in grants over three years, aimed at sustainable economic growth, good governance, and security. Projects would be built around initiatives proposed by the island states, with an emphasis on host-country "ownership." Capacity building via the training of 4,000 civil servants and private sector actors, and waste-management programs, including electronic waste, were two key programs. Korea -------------- ¶14. (SBU) Korea's ambassador-at-large for East Asia Cooperation, Cho Hee Yong, described Korea's approach to good governance in its dealings with Pacific states as an extension of its own history as a recent democracy, and its domestic efforts toward political transparency and accountability. He congratulated Hill on his initiative to host a meeting of donor-partner countries on the margins of the summit. Cho said Korea hopes to involve both China and Taiwan in donor coordination as a means to commit them to greater attention to good governance. He told Hill that Seoul would very much like to coordinate with the United States on its initiatives in the Pacific, reflecting common strategic interests in the region. In Cho's view, small investments are the best vehicle for assisting the small island economies. The European Union -------------- ¶15. (SBU) The Deputy European Commission DG for Development told Hill that the EU considers this year's Forum a success. He cited the leaders' support for RAMSI in the face of heated debate as a key achievement. On assistance issues, he said the EU concurs with the United States on the need to focus on SUVA 00000490 005 OF 007 security, governance, and transparency concerns. He added that it is important for China and Taiwan to emphasize good governance in their assistance programs, and the EU hopes the United States can help persuade the two competitors on this. Fiji -------------- ¶16. (SBU) The bilat with Fiji PM Qarase, PIF Chair for the next year, took place immediately after the U.S. special session with Forum leaders. Qarase commented that the session, which might serve as a prototype, exceeded the expectations of the PIF. Qarase expressed enthusiasm for Hill's proposal to host a Joint Commercial Commission meeting in Washington to discuss trade issues and explore possibilities for expanding economic cooperation between the United States and the PIF member states. Qarase said he had to act to rein in the Commander of the Fiji military. "Enough is enough." Qarase said once that critical problem is resolved, "things look good for Fiji." Hill noted a concern that some military figures might have drawn the wrong conclusion from the recent coup in Thailand. The United States had cut off aid there and would do still more to underscore fundamental support for civil leadership. Qarase remarked that the 1987 and 2000 coups had set Fiji back 50 years, and the country could not afford a repeat. Tourism is booming, he said, and such things as Fiji Water, golfer V.J. Singh, and the country's hosting of film productions such as television's "Survivor" are helping Fiji's profile in the world. Tonga -------------- ¶17. (C) PM Sevele reviewed the status of the report of Tonga's National Committee on Political Reform (NCPR) and his own counter proposal. He agrees in principle with the NCPR findings but not with some details. Sevele suggested it is important for the stability of Tonga's transition to more democratic forms that the King retain some of his historic roles. The King does not have to "dominate, but he must be part" of the leadership. The King "prefers convention rather than legislation." Sevele said he would travel to the Solomon Islands before the end of November as part of a PIF delegation intended to review RAMSI. The delegation is to report to PIF ministers and make recommendations on how to reduce tensions. Sevele raised Tongans' continuing unhappiness with having to travel at great expense to Suva to apply for visas. He asked if it might be possible for a pre-screening in Tonga, to reduce the number of ineligible applicants traveling to Suva in vain. Ambassador Dinger noted that he has discussed the inconveniences with CA. New technologies may eventually offer promise; but, for now, law and regulation leave no option but traveling to Suva. Hill said he would follow up in Washington. When asked about the proposal for Tonga Defense Service soldiers to deploy a second time to the Coalition of the Willing in Iraq, Sevele said his government is awaiting a briefing by the TDS before making a decision. FSM --- ¶18. (C) President Urusemal described the difficulties the FSM and U.S. agencies have had in implementing the amended Compact of Free Association. He expressed a wish that the U.S. would understand better the complexities of coordinating the FSM's five governments. Urusemal observed that partners like China and Japan periodically host meetings for Pacific leaders; he wondered why the U.S. isn't doing the same. Urusemal noted that the FSM police recently undertook a deployment to RAMSI. He said the possibility exists to consider UN PKO deployments of police as well. Hill expressed sympathy for the families of FSM citizens who have lost their lives while serving in the U.S. military. Nauru -------------- SUVA 00000490 006 OF 007 ¶19. (C) Nauru Minister for Health and Transportation, Kieren Keke, outlined his nation's efforts to develop and implement a national strategic development plan. Keke expressed appreciation to Taiwan for financing Nauru's recent acquisition of a used Boeing 737 to re-start a national air service. That led to the mention of Nauru's request for the USG to waive some $133,000 in court fees related to ExIm's repossession of Nauru's previous aircraft. ANP Office Director McGann said the Department had received Nauru's written request, which is under inter-agency review. Turning to aid, Keke expressed appreciation for U.S. attendance at last November's donor round-table on Nauru. When he asked about the prospects of Nauru hosting a Peace Corps program, Hill promised to follow up in Washington. Keke raised Nauru's interest in MCC participation, and also mentioned a desire for U.S. assistance with airport and seaport security. Tuvalu -------------- ¶20. (SBU) PM Apisai Ielemia only recently became Tuvalu's head of government, after elections in August. He was candid in his appeal to Hill for U.S. help, saying Tuvalu is particularly interested in qualifying for MCC funding. Ielemia asked if the United States might be able to provide Tuvalu access to the U.S. labor market as he said Canada does, and he sought scholarships to U.S. schools. When Ielemia requested the return of Peace Corps Volunteers to Tuvalu, Hill said he would follow up. Lastly, Ielemia pressed Hill for the United States to ratify and implement the Kyoto Protocol, citing Tuvalu's vulnerability in the face of climate change. Hill assured the PM that the United States takes climate change seriously, and he introduced Embassy Suva's new regional environment officer. Marshall Islands -------------- ¶21. (SBU) President Kesai Note cited "capacity building" as the Marshalls' greatest need in terms of assistance. He raised the Marshalls' interest in hosting a Peace Corps mission. He said limited educational opportunities in the Marshalls mean the 10,000 Marshallese now living the United States work for the minimum wage and live in some cases on welfare. Hill highlighted the enduring ties with the Marshall Islands and thanked Note for his country's outstanding support for U.S. military efforts in the Middle East and Afghanistan, where more than 200 Marshall Islanders are serving. Note asked Hill about the status of a new claim for reparations for illnesses related to nuclear tests in the Marshalls. McGann noted that the issue is before Congress at this time. Palau -------------- ¶22. (SBU) Compact funding, education grant eligibility and problems with Palauans serving in the U.S. merchant marine topped President Tommy Remengesau's bilateral agenda. Remengesau told Hill that Palau wants an early start on review and re-negotiation of its Compact with the United States. Hill said he would advise the Interior Department and press for a timely start to talks. The President asked that Palau's eligibility for education grants be maintained for the duration of its Compact, beyond its current expiration date of 2007. There are currently two bills before Congress that deal with the issue, and Hill stressed that the State Department cannot lobby for legislation. However, he said he would ask about the status of the bills and convey Palau's interest. Remengesau noted that Palauans can serve in the U.S. military, but under current regulations cannot work aboard U.S. cruise ships without being U.S. citizens or permanent residents. Samoa -------------- ¶23. (SBU) PM Sailele Tuila'epa told Hill that Samoa is SUVA 00000490 007 OF 007 interested in hosting professional-level volunteers to help with capacity building. He also raised maritime boundary talks, visa issuance in Samoa, and the effort by American Samoa to gain associate membership at the PIF. Hill noted that, because of American Samoa's status as an unincorporated territory, the State Department has responsibility for foreign affairs. American Samoa needs to follow established procedure regarding its interest in the PIF by first consulting with State. Tuila'epa said he would convey this to the Governor of American Samoa. Comment -------------- ¶24. (SBU) From Embassy Suva's perspective, U.S. participation in this year's Forum meetings was very successful. Island leaders were extremely pleased with A/S Hill's special-session dialogue. His bilats on the margins gave opportunity to discuss a range of issues, including with the PMs of Australia and New Zealand. Pull-asides with Kiribati President Tong resulted in Kiribati switching its vote from Venezuela to Guatemala at the UNGA (ref B). The U.S.-sponsored core-partners meeting filled a need. At U.S. urging, the effort to consolidate Pacific-region technical agencies will continue to explore modalities, with nothing yet set in concrete. EAP/ANP's close collaboration with the Embassy was appreciated. The 2007 Forum meetings will be in Tonga, sometime between July and October. In the meantime, follow-up on a range of issues -- high-level visits; a JCC meeting; Peace Corps issues; MCC mechanisms; etc. -- should continue to accent that the U.S. relationship with the Pacific is alive and well. ¶25. (U) EAP/ANP Director McGann cleared this cable. DINGER