BURUNDI: NEW FNL DEMANDS COULD STALL REINTEGRATION

C O N F I D E N T I A L BUJUMBURA 000204 SIPDIS SIPDIS DEPT FOR AF/C E.O. 12958: DECL: 2017/03/21 TAGS: PGOV PINR PREL BY SUBJECT: BURUNDI: NEW FNL DEMANDS COULD STALL REINTEGRATION Classified By: Ambassador Patricia Moller for Reasons 1.4 (B) and (D). ¶1. (U) Summary: During meetings with Deputy Assistant Secretary (DAS) for African Affairs, James Swan, the SIPDIS Government of Burundi (GOB) responded to U.S. concerns about stagnation in the Joint Verification and Monitoring Mechanism (JVMM) initiative due to new PALIPEHUTU-FNL demands. The demands pertain to the release of FNL members remaining in custody, support for PALIPEHUTU-FNL members and families, and forgiveness of debts totaling $350,000. The GOB stressed that the Burundian government is trying to react positively and urged the U.S. not to be discouraged by the most recent PALIPEHUTU-FNL demands. DAS Swan and the Minister of External Relations and Cooperation, Antoinette Batumbwara agreed that it would be useful for South African Facilitator Charles Ngakula to re-engage personally during this delicate phase of peace accord implementation. End Summary. ¶2. (U) This cable is the second in a series of three discussing DAS Swan,s visit to Burundi. The first cable will highlight DAS Swan,s message of appreciation to the government of Burundi (GOB) and recent events that threaten Burundi's progress. The last in the series will focus on DAS Swan,s discussion with the Ministry of Defense on the subject of Burundi,s contribution to the Somali peacekeeping effort. ¶3. (U) During a visit to Burundi March 11 - 13, DAS Swan asked GOB officials about the progress of the Joint Verification and Monitoring Mechanism (JVMM),which is reportedly stalled due to new PALIPEHUTU-FNL demands to ensure their continued participation. The demands include the release of all PALIPEHUTU-FNL members in prisons throughout the country, the provision of food to support FNL members and families, and forgiveness of debts totaling $350,000. Despite the PALIPEHUTU-FNL's latest threats to suspend their participation in the JVMM, Burundi's First Vice President, Dr. Martin Nduwimana, reinforced the government's determination to move forward. ¶4. (C) President Pierre Nkurunziza suggested to DAS Swan that a problem in the leadership within PALIPEHUTU-FNL might be an explanation to the setbacks and delays in the peace process. President Nkurunziza believes that the recent demands, particularly the financial claims, are being made for the benefit of individuals rather than the PALIPEHUTU-FNL as an organization. In a separate meeting, First Vice President Nduwimana urged the U.S. not to be discouraged by the most recent PALIPEHUTU-FNL demands. Nduwimana emphasized the progress made to promote the inclusion of the PALIPEHUTU-FNL in military and civilian institutions. ¶5. (C) According to Nduwimana, the PALIPEHUTU-FNL is adopting stalling tactics. He claimed their demands are not included in the peace agreement of September 2006 but added that the government, as in the past, is trying to react positively. For example, with regard to the release of prisoners, he noted that President Nkurunziza has been receptive to PALIPEHUTU-FNL requests. However, he opined, the PALIPEHUTU-FNL rarely reacts to negotiations spontaneously. He suggests positive progress seems only to be made after strong pressure from the Tripartite Plus, regional initiatives or third-party facilitation. ¶6. (C) According to Nduwimana, the request by the PALIPEHUTU-FNL for debt relief is addressed to the international community. Nduwimana suggested it would be useful to have the South African facilitation review and comment upon the PALIPEHUTU-FNL demands. The GOB does not have the funds to satisfy the PALIPEHUTU-FNL. DAS Swan suggested that, regardless of their financial resources, a response from the GOB would probably be perceived by the PALIPEHUTU-FNL as a positive signal of goodwill and openness. Nduwimana countered that &it takes two to tango8 to arrive at satisfactory agreements. Nduwimana noted that the GOB, on many occasions, has invited the FNL to meet in discussion of financial assistance. He commented that if the FNL had respected the time frames in the cease-fire agreement, the GOB would have fulfilled its financial obligations. At the outset of the peace agreement process, for example, the PALIPEHUTU-FNL refused $20,000 offered by the GOB. ¶7. (C) Comment: In view of the new PALIPEHUTU-FNL demands, it would be useful for the South African mediation to engage more actively to ensure that peace accord implementation remains on track. In a conversation with Minister Batumbwira on the margins of the Tripartite Plus Ministerial in Kigali, DAS Swan suggested that it would be useful for South African Facilitator Ngakula make another visit to Burundi. She agreed that Ngakula's personal involvement would be helpful in determining how to respond to the new demands of the PALIPEHUTU-FNL. End Comment. MOLLER