EAST AFRICA REGIONAL STRATEGIC INITIATIVE (RSI),

S E C R E T SECTION 01 OF 05 DJIBOUTI 000425

SIPDIS

SIPDIS

E.O. 12958: DECL: 04/10/2022
TAGS: PTER PREL PINR KPAO PGOV EAID XW YM
SUBJECT: EAST AFRICA REGIONAL STRATEGIC INITIATIVE (RSI),
MARCH 16-17

REF: 2006 DAR ES SALAAM 1089

Classified By: Ambassador W. Stuart Symington, reasons 1.4 (b, d).


1. (S) Summary: East African regional ambassadors and
interagency representatives agreed to institutionalize the
East African RSI by requesting dedicated, line-item FY09
regional funding for East Africa, along the lines of the
Trans-Sahara Counter Terrorist Partnership. In this second
RSI (the first was held in Nairobi, May 2006 -- see reftel),
Ambassadors and interagency reps supported a set of
recommendations for Washington and field offices (para 13) on
improving funding coordination and transparency, addressing
conditions terrorists exploit, increasing partner national CT
capacity, and reconciliation and CT engagement. Participants
agreed to convene a quarterly Secure Videoconference between
participating Embassies and Washington, beginning in
mid-June. At a March 20 Strategic Communications PCC chaired
by U/S Hughes, Somalia was named a Pilot Country per the RSI
Ambassadors recommendation. End Summary.


2. (S) The second East African RSI was hosted by Embassy
Djibouti, March 16-17. Ambassadors and CDA,s from Kenya,
Ethiopia, Sudan, Tanzania, Uganda and Mauritius/ Seychelles
were joined by representatives from S/CT, AF, R, DS, NSC, the
intelligence community, OSD, SOCOM, CJTF-HOA, DOJ and USAID.
The Director of the Voice of America (VOA),Danforth Austin,
was a special guest at the conference. Embassy Asmara was
invited, but unable to send a representative due to
conditions in Eritrea, while Embassy Sanaa and the U.S.
Mission to the African Union sent representative officers.
The emphasis of the conference was to identify lessons
learned, best practices and recommendations for ways ahead.

Progress to Date
--------------


3. (C) S/CT Deputy Coordinator Virginia Palmer reviewed the
progress of the RSI to date, noting that the requests for
additional Section 1206 ($15m) and Section 1207 ($25m)
resources are on track and the resumption of VOA Somali
Service using S/CT NADR and AF ESF funds. Palmer noted the
need for a flexible strategy to address the entire terrorist
threat complex simultaneously: leadership, safehaven and
conditions terrorists exploit. Palmer and Ambassador Stuart
Symington promoted the concept of harnessing the economic
power of American business to promote wealth and private
sector development. Palmer emphasized the need to secure
more resources to correct the imbalance between security and
civilian efforts to transform the environment, particularly
in countering the ideology of the globalized insurgency.

The Policy Framework
--------------


4. (C) AF/E Director Eunice Reddick noted the improvement of
the Somali situation over the past year, while expressing
deep concern of the reconstitution of the Islamic Courts in
Mogadishu. While the Eritreans were complicating matters,
the USG was supporting AMISOM stability force deployment, and
would provide experts in negotiation to support the Somali
National Reconciliation Conference, currently scheduled to
open April 16. Reddick noted that AF would seek additional
funding for Somalia in FY08. AF/RSA Director Jerry Lanier
discussed how the integration of sub-Saharan African
countries into a single AFRICOM command would enhance
integration of CT efforts in the region, currently split
between three combatant commands. Lanier pledged to make CT
funding mechanisms and decisions more transparent to the
field, working with S/CT.

The Current Threat
--------------


5. (S) Ambassador to Ethiopia Don Yamamoto reviewed the
background and conduct of the Ethiopian operations in

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Somalia; a decisive and expensive effort to counter the
Islamic Courts and bolster the Transitional Federal
Government (TFG). With the exception of Eritrea there was a
strong shared regional desire to shore up the TFG. Ethiopian
PM Meles continues to believe that if Mogadishu &fails8, so
will the rest of the country, so he will keep some 7000-8000
troops outside of that city to support AMISOM security
efforts. Yamamoto and CJTF-HOA Deputy Commander Rear Admiral
Moon both noted the importance of quicker, more agile
responses and greater agility in meeting requests to provide
the Ethiopian forces with anti-Malarial medication and the
Kenyans with night vision goggles.


6. (S) An intelligence briefer described how the
international community had underestimated Ethiopia,s will
and capability to rupture the Islamic Courts and al-Qaida.
Although the Kenyans succeeded in capturing dozens of foreign
fighters, Al-Qaida principals who had fled to Kenya were now
the focus of U.S. CT efforts in the region. The briefer
described a growing body of evidence revealing that
al-Qaida,s association with the Islamic Courts was deep,
with AQ principals Fazul and Nabhan essentially serving as
&cabinet ministers.8 Al-Qaida continues to actively plan
against U.S. and key Kenyan government targets. Islamic
extremists in Somalia would target Ethiopian and Ugandan
troops. A broad network of extremist ethnic Somalis in the
United Kingdom was becoming more apparent.

Regional Political Environment
--------------


7. (S) Ambassador Cameron Hume, Charge d,Affaires in
Khartoum, led a discussion of the regional political
environment. Participants discussed the systemic weakness
of regional institutions such as the AU and the
Intergovernmental Authority on Development (IGAD). For this
reason, our focus continues to be on state partners. Hume
reviewed the rapidly growing Sudanese economy, the excellent
state of U.S.-Sudanese CT partnership, the relative success
of the North-South peace agreement and the violence in
Darfur. Removing Sudan from the State Sponsors of Terrorism
list would improve the regional dynamic by advancing positive
CT cooperation. Joey Hood of Embassy Sanaa reviewed Yemen,s
Somalia policy; noting that the Yemeni Government is dead set
against reconstitution of the Islamic Courts. Former Courts
leader Sheikh Sharif was unable to direct Court remnants from
his exile in Yemen, where he remains effectively under house
arrest. The Yemeni and German governments were pressuring
Sharif to engage in the national reconciliation process.

Addressing the Current Threat
--------------


8. (S) Ambassador to Kenya Michael Ranneberger led a
discussion on synchronizing efforts to isolate terrorist
leadership and eliminate safe havens. He emphasized that
this must be a multi-pronged approach involving continued
military and security actions; efforts to promote an
inclusive government in Somalia; rapid deployment of U.S.
development and security assistance in order to influence the
Somali process and bolster the credibility of the TFG; public
diplomacy efforts; and intensified regional coordination on
both diplomacy and security. He noted good overall
interagency cooperation in recent military and intelligence
operations in the region based out of Nairobi. He and others
stressed the need for American officials and contractors to
visit Somalia. Such visits were essential both for
operations and to effectively publicize both within Somalia
and the region the good work the USG is doing in Somalia.
Participants agreed that continued engagement with Somaliland
and Puntland authorities was essential. Participants agreed
on the urgent need to implement an international diplomatic
strategy reaching beyond the region to ensure the success of
Somali clan reconciliation efforts. Ambassador Ranneberger
discussed the key role being played by Kenya, with respect
both to security through stepped up border operations and

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cooperation with us, and in efforts to promote an inclusive
political process in Somalia. He pointed to the need to
bolster the capacity of Kenya to deal with the Somalia
problem, particularly in light of Kenya,s close cooperation
with the U.S.

Addressing the Long-Term Threat
--------------


9. (C) Ambassador to Uganda Steven Browning led a
discussion on economic development, democracy and security
issues as a means of addressing the conditions terrorists
exploit. He emphasized that we must recognize that state
actors see the region through the prism of what they perceive
to be their own national interest. Museveni,s deployment of
troops in Somalia is a good example of this. Regional
economic institutions like COMESA and the EAC were worthy of
continued support, participants agreed. Ambassador Symington
pointed out the importance of regional, joint training for
security and law enforcement officials and noted that
language should not bar participation by Djibouti.
Participants agreed that the lack of security and capacity of
law enforcement organs to address crime undermined CT efforts
throughout the region. More resources were needed to improve
the rule of law in the region, particularly in training
police, prosecutors and judges.

Public Diplomacy/Combating Extremism
-------------- --------------


10. (C) Ambassador to Mauritius and the Seychelles Cesar
Cabrera led a discussion on public diplomacy. He described
public diplomacy as the most important method we have to
address the growing threat of terrorism. As a practical
suggestion, he pointed out that the power of images was
immense, and that it was important for high-ranking officials
to establish relationships with cameramen, not just
reporters. He also advocated outreach using popular local
opinion leaders and an informal approach to convey U.S.
messages to the public. Christopher Krisinger of the Office
of the Undersecretary of State for Public Diplomacy (R) was
disappointed that he could not promise new funding for
initiatives discussed. He discussed the work of State,s
Digital Outreach Team, which engaged in debate in Arabic
websites, and the importance of unconventional key
influencers, such as a politically-savvy cooking show host in
Morocco. VOA Director Danforth Austin spoke on the
restoration of the Somali language service. He had been
approached by six FM stations who wanted to add the program
to their broadcasts ) a sign of the quality of the program.
However, Austin noted that sustained audiences were difficult
to build with only 30-60 minutes of programming a day and
Ambassadors expressed hope that Washington agencies could
come up with urgent funding to increase programming to four
hours a day.


11. (U) In a discussion on Military Information Support
Teams (MIST),Joey Hood of Embassy Sanaa noted their
usefulness was dependent upon State PD officers providing the
teams with guidance and direction. Ambassador Ranneberger
noted that Embassy Nairobi was doubling the size of its MIST
team and that the additional members and resources would be
devoted to outreach to ethnic Somalis in the region. Cameron
Hume noted the welcome development that Ambassadors were now
allowed and encouraged to respond to press interview
requests. Chris Krisinger emphasized that R would stand
strongly behind spokespeople.

CJTF-HOA
--------------


12. (C) Rear Admiral Timothy Moon presented an explanation of
CJTF-HOA,s mission in an RSI visit to Camp Lemonier on March

17. CJTF-HOA will seek to bring USAID directors together
soon for a coordination conference at Camp Lemonier. Purnell
Delly spoke highly of U.S.-U.K. cooperation in

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counterterrorism activities. Ambassador Cabrera praised the
conduct and work of the Seabees in the Seychelles.
Ambassador Browning noted that some NGO,s in Uganda were
suspicious and resentful of Civic Affairs activities, while
Joey Hood noted widespread suspicion and fear of the U.S.
military among average Yemenis. Participants agreed that the
purpose of civic affairs activities went beyond their
immediate humanitarian or public affairs impact ) they are
designed to build a tradition of civic affairs in host
country militaries.

The Way Ahead -- Recommendations
--------------


13. (C) Ambassadors and interagency representatives
identified the following actions and recommendations for
post-conference follow-up:


I. Improving Funding Coordination and Transparency


A. Establish a quarterly DCM-led teleconference between RSI
participating embassies and Washington, starting in mid-June.
Ambassadors recommended that invitations to the next RSI will
be extended to key Senate staffers and a representative of
the United Kingdom.


B. Establish FY09 East Africa dedicated line-item budget
requests for NADR, FMF, PKO, DA and military assistance
programs, along the lines of the Trans-Sahara
Counterterrorist Partnership (TSCTP). Seek an East Africa
line item from INL for INCLE funds to reflect the essential
need to enhance overall East African law enforcement
capabilities.


C. AF/RSA will produce a cable to posts itemizing and
systematizing CT funding streams and budget processes. S/CT
will assist.


D. Recommend that a full-time regular State Department
employee be seconded to the African Union staff.

II. Increase Partner Nation Capacity


A. Emphatically appeal for an urgent restoration of
zeroed-out FY08 NADR ATA funding to counter the terrorist
threat in Ethiopia, Tanzania, Djibouti, Mauritius and
Seychelles. OMB removed these funding requests in the most
recent budget round.


B. Encourage greater interstate intelligence and military
cooperation on CT and Somalia, particularly among Ethiopia,
Kenya and Uganda. Ambassadors will encourage leaders in
those countries to bring their intelligence and defense
chiefs together for face-to-face meetings. Participants will
seek new DoD and State-funded opportunities to train these
partners together and seek greater working-level
interoperability. DS/ATA will organize East African regional
training courses in document fraud and interdicting terrorist
activity.

III. Address Conditions Terrorists Exploit


A. Strongly recommend that funding for VOA Somali service be
increased in order to expand its hours of programming and
transmission capability.


B. Each post will nominate existing International Visitor
Leadership Program (IVLP) slots for a regional CT program on
border control.


C. Appeal again to F to increase the size of the African
self-help fund, an essential tool for ambassadors to identify
low-cost, high-impact, high-visibility projects with a CT
angle.


D. Encourage the Somali-American community to establish

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U.S.-Somalia Business Council, with outreach to other
diaspora Somalis, particularly wealthy businessmen in the
Gulf. U.S. fisheries companies may be interested in
supporting such an effort, which would have the eventual
prospect of support from OPIC, EXIM and TDA.


E. Seek a Trade and Investment Framework Agreement (TIFA)
with the East African Community (EAC).


F. Study the NEA bureau,s Middle East Partnership
Initiative (MEPI) and see how a similar line-item funding
mechanism could be created for sub-Saharan Africa in order to
put resources behind host governments, reform efforts. Seek
the inclusion of Arab League members Djibouti, Somalia, and
Comoros within MEPI.


G. Recommend that R include Somalia as a "Pilot Country".
(Done March 20)


H. Embassies and CJTF-HOA will seek more joint public
affairs opportunities. CJTF-HOA is seeking to expand its
number of chaplains and their involvement in interfaith
dialogue activities.

IV. Reconciliation, CT Engagement


A. Insist that TFG President Yusuf include representative
Hawiye leaders in reconciliation process and take personal
responsibility for their safe passage to talks inside
Somalia. AF will seek to support the talks with negotiation
experts.


B. Commit to continued CT engagement with Sudan. Consistent
with Sudanese CT efforts, removing Sudan from the list of
state sponsors of terrorism would advance CT cooperation.


C. Diplomatic Security will draft a plan and budget to
enable USG officials to visit Somalia. Such visits will
enable the U.S. to effectively conduct diplomacy, publicize
USG diplomatic and assistance efforts in Somalia, and to
evaluate the effectiveness of those efforts. (Done)


D. DOD will seek contingency and expedited press guidance
for responding to news and official leaks of any future CT
military operations in the Horn of Africa.


E. NSC will task the intelligence community with
establishing a list of the 20 wealthiest/most influential
ethnic Somali businessmen worldwide. This list will be
utilized in cooperation with other regional State Department
bureaus and their embassies to seek to leverage the influence
of these individuals to support the peace process and
discourage extremism.

SYMINGTON