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