BRINGING COMOROS INTO THE FOLD

UNCLAS ANTANANARIVO 001236 SIPDIS SENSITIVE SIPDIS DEPT FOR E, AF/E AND AF/FO ALSO FOR DS/DSS/ATA - DROTHSTEIN PASS TO USTR FOR FLISER NSC FOR BPITTMAN AND BLEO E.O. 12958: N/A TAGS: PREL PGOV ETRD ECON EAID KDEM CN SUBJECT: BRINGING COMOROS INTO THE FOLD Ref: A) ANTANANARIVO 815 B) ANTANANARIVO 1202 ¶1. (SBU) SUMMARY: As we look at the question of AGOA eligibility for Comoros, the two key interlocking issues are security and opportunity - and how each could be strengthened by AGOA. The Comoran people have a tragic history and few economic endowments; their most famous native son is infamous - the Al Qaeda mastermind of the 1998 Embassy bombings, Harun Fazul. Fazul is a source of shame to most Comorans, but his desperate turn to extremism and violence illustrates how lack of opportunity in the Comoros can harm U.S. interests, including our very security. ¶2. (SBU) In response to that threat, U.S. engagement in the Comoros is on the upswing. Today it includes a USAID distance education project, CJTF-HOA soldiers and Seabees refurbishing schools, the recent first-ever U.S. Navy ship visit, an English language lab and a vibrant American Corner in Moroni, frequent visits by the Ambassador and mission staff - and a few more programs currently in gestation. Beyond these, the Union government has requested a return of the Peace Corps, re-establishment of an American diplomatic presence in the country, and AGOA eligibility. ¶3. (SBU) More than any other program, they seek AGOA for the opportunity it will bring over time for the people of Comoros. AGOA will not have a strong immediate economic impact, but it quickly will show U.S. support for democratically-elected President Sambi and for Comoran democracy, as well as recognition of progress made under difficult circumstances to improve its investment climate, reform its economy, and create jobs and opportunity. Over the longer term, it may open the doors to jobs and opportunities that could make the next clever young Comoran a dynamic entrepreneur, rather than a terrorist like Harun Fazul. END SUMMARY. Pro-American Muslim Democracy -------------- ¶4. (SBU) The Union of the Comoros is a pro-American Muslim democratic country vulnerable to the influence of Iran and terrorist organizations. It is a country of paradoxes. During a recent visit, students coming out of an Islamic studies school were eager to practice their English with an Embassy Officer passing by; indeed, our American Corner is frequented night and day, and English lessons there are in high demand. In Moroni and every other Comoran town, young men sit idly with nothing to do. The Union and Island Governments, employing no more than 6,000 people, are the largest employers in a nation of over 700,000 people. Jobs are so scarce that janitors at ministries are replaced when a new administration comes in. ¶5. (SBU) Recent investment interests from Dubai and Kuwait are betting on the stable and pro-business environment espoused by President Sambi, who is also one of the Comoros' few successful entrepreneurs. At a recent ceremony to receive official Iranian largesse - a fishing vessel - President Sambi offered thanks, but emphasized he had no special relationship with Tehran, even adding that, while he had been a student in Iran, he had not - despite extensive overseas travels - visited again since becoming president. In private conversations with the Ambassador, Sambi and Minister of Foreign Affairs Jaffar have emphasized that they accept Iranian assistance, but with "no strings attached." Proposed but as yet unrealized Iranian assistance to the Comoros (other than the vessel) include opening reciprocal Embassies, agricultural training, scholarships, exchanges, and business development. Harun Fazul the "Exception" -------------- ¶6. (SBU) President Sambi, like President Azali before him, willingly cooperates in the Rewards for Justice Program for the capture of Harun Fazul. Both abhor the notion that Fazul represents the Comoros in any way; Comorans are proud of their reputations as moderate and peaceful Muslims. In a recent conversation with the Ambassador, Azali reiterated his desire for close relations with the United States. He also recalled expelling the popular humanitarian NGO el-Haramein, at U.S. Government request, because of its terror links. No doubt he also recalls - but was too polite to say - that Comoros are still waiting for the U.S. to make good on promises made at that time to fill the resultant void. ¶7. (SBU) Before masterminding the terrorist attacks on U.S. Embassies in Nairobi and Dar es Salaam, Fazul left Comoros for study and opportunity abroad, eventually adopting radical doctrine in Sudan and Pakistan. It is uncertain if Fazul would dare visit his homeland, although he retains family ties there. He is no doubt aware, however, that the Comoros is home to thousands of idle, impressionable young men who might - as he was - be won to the extremist cause. Muslim elders in the Comoros often share this concern, and they worry about other radicals - Comoran students returned from Pakistan or Saudi Arabia - who preach extremist doctrine to a growing following. President Azali founded a university in Comoros, driven, he said, by concern that sending all Comorans abroad for study would eventually radicalize the population. Today, those who graduate face weak job prospects. Policies for Growth and Stability -------------- ¶8. (SBU) In holding open the opportunity of real friendship with the United States and not (yet) embracing Iran, President Sambi has two objectives. Seeing young Comorans die each year in the treacherous crossing to French-administered Mayotte, Sambi wants to attract investors and promote entrepreneurship to create opportunities for Comorans at home. Even while his government grapples with the intransigent Colonel Bacar, Sambi's team has streamlined business procedures, held conferences with young graduates on possible business ventures, sought to reschedule its debt, and traveled relentlessly to court investors. AGOA eligibility would provide an additional incentive to invest in the Comoros; indeed, its absence probably acts as a damper to many of these efforts as investment follows AGOA. ¶9. (SBU) To advance this effort, the Union Ministry of Economy, Trade, Labor, and Women's Empowerment is partnering with UNDP and the ILO to attract investment to create jobs. The Minister is working with donors for "The Creation of a Development Fund to Guarantee and Insure Investments, Decent Jobs, and Revenues." The plan is founded on poverty reduction via economic growth. The Minister builds on Resolution No. 07/002/Au of September 3, 2007, by the Union National Assembly, improving the investment code and recommending improved business procedures. The Ministry has already created a "one-stop shop" for business/investor registration whose goal is approvals within three days. ¶10. (SBU) Another AGOA eligibility criterion concerns child labor, which has not become a major issue in the Comoros. It is limited to a fairly small number of children sent by their families to work in richer homes, and otherwise does not exist outside subsistence farming and fishing. There are no reports of children working in factories, mining, or prostitution. In any case, Union law prohibits children working under the age of 15. Enforcement is uneven, but the overall child labor picture in Comoros is similar or even compares favorably to that of most AGOA-eligible countries. The Regional ILO Representative recently told the Ambassador that the ILO eventually will propose programs to address child labor in households, but puts a higher priority on first helping the Comoros implement its growth and job creation strategy. Pariah or Respectable Country? -------------- ¶11. (SBU) President Sambi also wants to use his one term in office to do away with the Comoros' reputation as a "pariah" and establish the archipelago as a respectable country. He recognizes that the Anjouan standoff risks undermining this effort if not resolved soon and peacefully. In decrying the "false face" of Islam put forth by terrorists, Sambi also seeks respect and dignity for his people and his religion. He readily admits he accepts Iranian gifts -- out of necessity. He fears the influence of radical Islamists on young Comorans because he cannot offer alternatives. Should Comoros be accepted for AGOA now, President Sambi will tell his people that the reform efforts of the Union Government - and the democratic actions of the people -- have been acknowledged by the United States. He will seek to use this as leverage to persuade Bacar to stand aside and allow economic progress at last to take root for the benefit of all Comorans. ¶12. (SBU) COMMENT. From our perspective, a determination of AGOA eligibility for Comoros would help the democratically-elected Union government bring opportunity and security to the Comoros - making it less likely to be the home of future Harun Fazuls. Conversely, continuing to deny AGOA will make it harder for the country to attract investment, which could threaten its fragile democracy and reverse course back toward its tragic history. Objectively, we think the Comoros compares well to most countries already in AGOA with respect to the eligibility criteria; indeed, there is even a reasonable case to be made for an MCC threshold compact for the Comoros. This decision takes place in the context of deepening American engagement with the Comoros. In every other area, despite difficult resource constraints, we are looking to offer carrots to the Union government. AGOA is that rare carrot that can enhance opportunity and security without major resource implications. If we are serious about helping the Comoros move forward, we should offer this carrot now. MARQUARDT