Identifier
Created
Classification
Origin
07KUWAIT113
2007-01-27 14:55:00
SECRET//NOFORN
Embassy Kuwait
Cable title:  

NEXT STEPS FOR THE FREEDOM AGENDA IN KUWAIT

Tags:  PGOV PREL KDEM KISL KU FREEDOM AGENDA 
pdf how-to read a cable
VZCZCXRO0554
PP RUEHBC RUEHDE RUEHKUK RUEHROV
DE RUEHKU #0113/01 0271455
ZNY SSSSS ZZH
P 271455Z JAN 07
FM AMEMBASSY KUWAIT
TO RUEHC/SECSTATE WASHDC PRIORITY 8142
INFO RUEHEE/ARAB LEAGUE COLLECTIVE PRIORITY
S E C R E T SECTION 01 OF 05 KUWAIT 000113 

SIPDIS

NOFORN
SIPDIS

STATE FOR NEA/ARP, NEA/PPD, NEA/PI, NSC FOR RAMCHAND

E.O. 12958: DECL: 01/27/2017
TAGS: PGOV PREL KDEM KISL KU FREEDOM AGENDA
SUBJECT: NEXT STEPS FOR THE FREEDOM AGENDA IN KUWAIT

REF: A. KUWAIT 81 - U/S DOBRIANSKY'S MEETINGS IN KUWAIT

B. 06 KUWAIT 4206 - OPPOSITION GROUPS FORM REFORM
BLOC

C. 06 KUWAIT 3939 - WOMEN ACTIVISTS CALL FOR QUOTA

D. 06 KUWAIT 2971 - PARLIAMENT APPROVES FIVE
CONSTITUENCIES

E. 06 KUWAIT 2600 - KUWAITI WOMEN PROVE THEY ARE A
POLITICAL FORCE

F. 06 KUWAIT 2394 - IMPLICATIONS OF ISLAMIST GAINS
IN ELECTIONS

G. 06 KUWAIT 2392 - WOMEN'S ELECTION PARTICIPATION

H. 06 KUWAIT 2148 - PROGRESS ON REFORM DEFINED BY
PARTICIPATION

I. 06 KUWAIT 1888 - REFINING STRATEGIES TO PROMOTE
DEMOCRATIC REFORM

J. 06 KUWAIT 1529 - COURT REVOKES
FREEDOM-RESTRICTING GATHERINGS LAW

K. 06 KUWAIT 768 - PARLIAMENT PASSES NEW PRESS LAW

L. 06 KUWAIT 347 - POLITICAL ACTIVISTS HOPE FOR
GREATER REFORMS

M. 05 KUWAIT 3224 - ACTIVISTS LAUD WOMEN'S RIGHTS
ACCOMPLISHMENTS

N. 05 KUWAIT 2091 - DEMOCRATIC REFORM STRATEGIES TO
SUPPORT FREEDOM AGENDA

O. 05 KUWAIT 646 - ISLAMISTS IN KUWAIT: CONTOURS OF
A GROWING INFLUENTIAL FORCE

Classified By: Ambassador Richard LeBaron for reason 1.4 (d)

S E C R E T SECTION 01 OF 05 KUWAIT 000113

SIPDIS

NOFORN
SIPDIS

STATE FOR NEA/ARP, NEA/PPD, NEA/PI, NSC FOR RAMCHAND

E.O. 12958: DECL: 01/27/2017
TAGS: PGOV PREL KDEM KISL KU FREEDOM AGENDA
SUBJECT: NEXT STEPS FOR THE FREEDOM AGENDA IN KUWAIT

REF: A. KUWAIT 81 - U/S DOBRIANSKY'S MEETINGS IN KUWAIT

B. 06 KUWAIT 4206 - OPPOSITION GROUPS FORM REFORM
BLOC

C. 06 KUWAIT 3939 - WOMEN ACTIVISTS CALL FOR QUOTA

D. 06 KUWAIT 2971 - PARLIAMENT APPROVES FIVE
CONSTITUENCIES

E. 06 KUWAIT 2600 - KUWAITI WOMEN PROVE THEY ARE A
POLITICAL FORCE

F. 06 KUWAIT 2394 - IMPLICATIONS OF ISLAMIST GAINS
IN ELECTIONS

G. 06 KUWAIT 2392 - WOMEN'S ELECTION PARTICIPATION

H. 06 KUWAIT 2148 - PROGRESS ON REFORM DEFINED BY
PARTICIPATION

I. 06 KUWAIT 1888 - REFINING STRATEGIES TO PROMOTE
DEMOCRATIC REFORM

J. 06 KUWAIT 1529 - COURT REVOKES
FREEDOM-RESTRICTING GATHERINGS LAW

K. 06 KUWAIT 768 - PARLIAMENT PASSES NEW PRESS LAW

L. 06 KUWAIT 347 - POLITICAL ACTIVISTS HOPE FOR
GREATER REFORMS

M. 05 KUWAIT 3224 - ACTIVISTS LAUD WOMEN'S RIGHTS
ACCOMPLISHMENTS

N. 05 KUWAIT 2091 - DEMOCRATIC REFORM STRATEGIES TO
SUPPORT FREEDOM AGENDA

O. 05 KUWAIT 646 - ISLAMISTS IN KUWAIT: CONTOURS OF
A GROWING INFLUENTIAL FORCE

Classified By: Ambassador Richard LeBaron for reason 1.4 (d)


1. (S/NF) Summary: Over the last year, Kuwait has
implemented two of the three key elements of the Freedom
Agenda strategy that we described in May 2005 (05 Kuwait
2091). These were: women's registration for and
participation in national elections and the passage of a new
press and publications law. Kuwait also passed important
electoral reform legislation, a top priority for pro-reform
advocates here. Given these historic changes, priority
should now be placed on consolidating Kuwait's democratic
advances by 1) helping political associations become more
effective, 2) supporting women's full integration into the
political system, and 3) encouraging responsible youth
activism. A key aspect of this approach should be sponsoring
training programs to help Kuwaiti political activists develop

better leadership, organization, strategic planning, and
public relations skills so they can more effectively advocate
their views and participate in the political process. This
approach would benefit the less organized liberal political
and civil society organizations and serve as a counterbalance
to rising Islamist influence.


2. (S/NF) The third element of the Freedom Agenda strategy
outlined in 2005 was the legalization of political parties.
While political party creation should be a long-term goal,
(and is for most Kuwaiti politicians),we now recommend that
we not push for the legalization of political parties before
the 2010 parliamentary elections. With Kuwait already in
the lead position in the Gulf in terms of political openness,
legalization of political parties now would likely increase
anti-democratic aspects of Islamist influence and further
undermine government efficiency. We should instead work with
local partners to encourage implementation of measures to
strengthen democratic processes in Kuwait, such as
regulations on campaign finance and reforms to improve
electoral transparency and reduce government corruption.
This approach will help address three major obstacles to
further meaningful reform in Kuwait: political apathy, social
conservatism, and corruption. While Kuwait has made
significant progress over the last two years, social and
political attitudes change slowly and require a patient,
measured approach on our part. We will continue to use all
the tools of diplomacy to pursue the Freedom Agenda in Kuwait
-- MEPI grants, IVLP visits, media outreach, educational
exchange programs, and our close daily interactions with
political and civil society actors in Kuwait. End Summary.

A Watershed Year
--------------


3. (SBU) 2006 was a watershed year in Kuwait's democratic
development. In January, following the death of long-time
Amir Shaykh Jaber Al-Ahmed, former Prime Minister Shaykh
Sabah Al-Ahmed Al-Sabah became Amir through a constitutional
process in which Parliament played a prominent role. In
March, Parliament passed a new press and publications law
that removed a ban on licensing new dailies. In May, the
Constitutional Court revoked a 1979 law restricting public
gatherings. Later that month, after reaching an impasse with
pro-reform parliamentarians over electoral reform, the Amir
exercised his constitutional right to dissolve Parliament and
called new elections for June. Women participated both as

KUWAIT 00000113 002 OF 005


candidates and voters in the elections for the first time in
Kuwait's history. Pro-reform candidates won a landslide
victory, capturing a majority of seats in the 65-member
Parliament, thanks in part to the support of a grassroots,
pro-reform movement that emerged in support of electoral
reform. Confronted with this call for reform, the Prime
Minister removed two ministers accused of corruption from the
new Cabinet and supported electoral reform legislation, which
was passed in July. Pro-reform, opposition MPs formed a new
34-member Reform Bloc in October and agreed to pursue a
common legislative agenda, focusing primarily on fighting
corruption and implementing reforms. However, tensions
between opposition MPs persist, cooperation has been
inconsistent, and proposals to provide more benefits to
Kuwaiti citizens have threatened to further divide the
opposition and distract Parliament from a reform agenda.

Rethinking Kuwait's Freedom Agenda Priorities
--------------


4. (S/NF) Given these historic developments, a review of the
next steps for our Freedom Agenda priorities in Kuwait is
appropriate. We believe emphasis should now be placed on
consolidating and extending Kuwait's democratic gains by 1)
helping political associations become more effective, 2)
supporting women's full integration into the political
system, and 3) encouraging responsible youth activism. As
civil society organizations develop, they will be better able
to advocate for meaningful political reforms. If adopted
without necessary preparation and development of civil
society, additional political reforms, such as legalizing
political parties in the near term or allowing Parliament to
choose the Prime Minister, will likely only exacerbate
existing political problems, contribute to sectarian
tensions, increase the influence of more organized Islamist
groups, and further undermine government effectiveness. The
approach we outline would help counterbalance non-democratic
aspects of Islamist influence in Kuwait. While not always
the case, civil society organizations in Kuwait tend to be
more liberal and inclusive than Islamist organizations and,
with adequate support and training, can serve as effective
advocates for a wider range of public policy issues. This
will be particularly important as local associations assess
the impact of recent electoral reforms on their political
strategies.


5. (S/NF) Recent improvements in communication and
coordination between ideologically disparate political groups
both inside and outside Parliament suggest that Kuwait's
political system is developing greater sophistication. The
approach outlined above would encourage this process. But we
should be realistic about how quickly or how deeply Kuwait is
ready to change. Three obstacles will continue to slow
further democratization: political apathy, social
conservatism, and corruption. The most popular issues --
those that motivate political activism -- still tend to
relate to government handouts and many Kuwaitis view their
elected representatives' primary role as obtaining even more
benefits for them personally or for their group. For
Kuwait's democracy to grow, it must move beyond an
overwhelmingly familial, tribal, sectarian, and
patronage-based political culture to one that is more
inclusive and issues-based. This will not happen overnight.
As President Bush has said, it is a "generational challenge,"
and our expectations should be measured in those terms.

Helping Political Associations Become More Effective
-------------- --------------


6. (S/NF) The majority of Kuwait's political associations
are organized around narrow familial, sectarian, and
ideological lines, and lack the structure and strategic
leadership necessary to effectively and responsibly engage in
the political process. There are a few notable exceptions.
The Islamic Constitutional Movement (ICM),the political arm
of the Kuwaiti Muslim Brotherhood, has a well-developed
organizational structure, a clear political agenda, and a
dynamic leadership. While much smaller, the Islamic National
Consensus Movement (INCM),an inclusive, but predominantly
Shi'a political association, has a similarly well-developed
structure, leadership, and agenda, and excels at strategic
planning. Other groups, most notably the more underdeveloped
liberal political associations, have expressed an interest in
improving their organizational structure and strategic
planning process, but lack the necessary skills, and have far
less popular political support. Helping them develop these
skills through regional and in-country training programs will
allow them to engage more meaningfully in the political
process. This skills-based approach, partnering with local
organizations, should be the key element of our overall

KUWAIT 00000113 003 OF 005


Freedom Agenda strategy in Kuwait.


7. (S/NF) The specific skill areas in which local political
and civil society leaders have identified training needs
include: leadership and management; skillful and effective
negotiation; political survey methodology; strategic
planning; political organization; public relations; public
sector advocacy; public speaking; and organizing grassroots
activism. This skills-based approach has three key
advantages. First, skills-based training is gender inclusive
and can be extended to all local political associations and
civil society organizations. Second, the training will
largely benefit less organized liberal and moderate groups
and help balance the influence of Islamists in the next
parliamentary elections. Finally, this approach will be less
immediately threatening to the Al-Sabah leadership than
pushing for the legalization of political parties or other
intrusive political reforms. This reduces the likelihood of
a near-term destabilizing political crisis that would work
against democratization.


8. (S/NF) Many reformists, particularly liberals, have
backed off from active support for legalization of political
parties, recognizing that Kuwait's political system is still
underdeveloped and that the premature emergence of political
parties will likely only exacerbate existing political
problems and increase the influence of Islamists, who are
better prepared to capitalize on a party system now.
However, there are some who do advocate a near-term push for
the legalization of parties. One woman activist raised this
issue in her meeting with Secretary Rice January 17,
cautioning that legalization should be accompanied by
restrictions on religious elements in the parties. The
Secretary noted that the experience of governing could

SIPDIS
moderate the Islamist political platform over time, given the
need to respond to constituent concerns.


9. (S/NF) Given the specific circumstances here in Kuwait,
we assess that U.S. efforts should not concentrate on the
establishment of political parties prior to the 2010
parliamentary elections. Rather, we should focus on laying
the groundwork, supporting the development and improvement of
Kuwait's democratic processes in cooperation with local
partners. Some of the reforms suggested by our contacts
include the implementation of campaign finance regulations,
stricter anti-corruption controls, and measures to improve
electoral transparency. In this way, when political parties
are legalized, they will be able to contribute constructively
to the political process rather than serve as mouthpieces for
narrow sectarian or ideological views, or precipitate a
premature political crisis with the government that could
roll back hard-won gains. We should also continue to engage
local media to encourage higher standards and more
responsible journalism that contributes to political
understanding rather than enflames public opinion.

Supporting Women's Full Political Integration
--------------


10. (S/NF) Since winning the right to vote in 2005, women
have emerged as an influential political force and now
represent a majority of voters. Women participating in the
June 2006 elections helped to shape election issues and broke
conservative social taboos. Although none of the 27 female
candidates was elected, most women viewed the elections as a
success that demonstrated women's political potential in
Kuwait. Recognizing the importance of women voters,
parliamentarians, including Islamists, are now responding to
and advocating their female constituents' concerns in
Parliament. Moving forward, the key will be to capitalize on
these successes by helping women integrate more fully into
the political system and prepare for the next parliamentary
elections.


11. (S/NF) This can be achieved in three ways. First, we
should help Kuwaiti women learn lessons from the recent
elections. With already approved MEPI funding, the National
Democratic Institute (NDI) is conducting several public
surveys on the elections and will share the results with
local NGOs and political associations. These and other
similar surveys will help identify ways women's rights
activists can more effectively encourage Kuwaiti women to
participate in the political process. Second, we should help
women learn how to overcome traditional social barriers to
effectively advocate their political views at the local,
national, and regional levels. This could be done in part by
drawing on the experience of female politicians and women's
rights activists from other Arab countries. Third, local
women's groups should be actively targeted for inclusion in
the skills-based training programs suggested above. It is

KUWAIT 00000113 004 OF 005


important that women in Kuwait are incorporated to as great
an extent as possible into existing political organizations
and do not become marginalized in female-only activist groups
outside the political mainstream. (Once again, it appears to
us that the Muslim Brothers are in the lead in organizing
like-minded women, after getting past their deep opposition
to women's political rights.)


12. (S/NF) There has been some discussion in Kuwait of the
merits of a quota system for women in the Parliament. Some
women have argued that temporarily setting aside a fixed
number of seats for women is the only way to ensure they have
national representation, at least in the short-term. In a
recent meeting with U/S Dobriansky, noted women's rights
activist Dr. Rola Dashti suggested the election law be
amended to require candidates to run on four person "lists"
and to stipulate that one of the four must be a woman. In
her view, this would ensure that women were elected to
Parliament. While a quota system has worked in other
countries, in Kuwait it could cause other groups, like the
politically under-represented Shi'a minority, to demand their
own quota. For now, there is no consensus on the issue even
among women activists. We see no reason to take a position
on this issue now, but will follow it closely as proposals
evolve.

Encouraging Responsible Youth Activism
--------------


13. (S/NF) Young, politically active men and women are
another demographic of emerging political importance in
Kuwait. These youth activists, many of whom got started in
politics through the National Union of Kuwaiti Students
(NUKS),played an influential role in the pro-reform,
anti-corruption rallies earlier this year and the subsequent
elections in June. They represent a younger generation of
Kuwaitis with an active interest in their country's political
future and have infused the political system here with new
life. Like Kuwaiti women, the key now is to help these young
activists build on their successes, develop their political
skills, and integrate more fully into the political system.


14. (S/NF) This can be accomplished by working more closely
with local student organizations, especially the student
parties at Kuwait University, to develop their political
awareness and advocacy skills, and to identify future leaders
for International Visitor Programs. It is also important to
engage with NUKS-U.S., the organization's largest and most
active overseas branch. Many of Kuwait's liberal political
leaders have emerged from NUKS-U.S. and some of the leading
youth activists have cited their involvement in NUKS-U.S. and
volunteer activities in U.S. domestic political campaigns as
the impetus for their political activism in Kuwait.


15. (S/NF) As part of this effort, we should accelerate
efforts to encourage Kuwaitis to study in the U.S. We can
also develop training programs similar to the ones outlined
above specifically for students and recent graduates,
equipping them with the tools they need to better understand
political issues and effectively voice their opinions. We
are also developing a cadre of young Kuwaitis who understand
open political systems through our many exchange programs,
including YES and Fulbright. These exchanges are proven,
powerful tools of influence and we continue to encourage
major expansion of these programs as an integral part of our
overall Freedom Agenda strategy in the Middle East.

The Islamist Factor
--------------


16. (S/NF) Helping other political groups develop better
organizational and advocacy skills can to a certain extent
balance Islamist gains. However, Islamists will continue to
exert considerable political influence for the foreseeable
future given regional political trends and Islamists'
superior organization and appeal to what is still a quite
conservative Kuwaiti public. Islamists here, as elsewhere in
the region, have significant anti-democratic elements among
their leadership and embedded in some aspects of their
ideology. Moreover, there are considerable differences among
and even within Kuwait's Islamist organizations, differences
blurred by the very term "Islamist." In reality, Kuwaiti
Islamists run the gamut from moderate, pragmatic and even
liberal to hard-core Salafis supportive of Al-Qaeda's global
jihadist ideology. Increasingly sophisticated in their
approach, the Islamist message is often carefully calibrated
to its audience, whether Western, regional, or local.


17. (S/NF) Islamist dominance of the opposition landscape
here should inform our approach, but not deter our objective

KUWAIT 00000113 005 OF 005


of pursuing long-term democratic change. There are some
encouraging factors. While we may have concerns about their
activities outside of the country, Islamists have operated
within Kuwait's political system peacefully for decades.
Many Islamist groups here have also demonstrated a
willingness to work with other political groups, including
liberals and Shi'a, and strongly support political reform.
There is little convincing evidence to suggest they will
suddenly depart from this strategy. However, they are in the
game for the long term, and in the long term, we believe
their interests will sharply diverge from U.S. interests.


18. (S/NF) In the case of Kuwait, the key issue will be
pursuing gradual change, with both institutional and cultural
aspects of democratization moving forward in parallel. That
way, as Islamist politicians gain more responsibility and
power, they will be forced to respond to an institutional and
cultural environment that rejects the anti-democratic
elements of their ideology. This can only happen over time.
If Kuwait is pushed toward rapid institutional change without
a corresponding democratic cultural development, Kuwait is
more likely to descend into a series of political crises
which anti-democratic elements are best positioned to
exploit. Now is the time to consolidate and build on the
gratifying gains for democracy of recent years. From a
tactical view, our approach will continue to be guided by a
philosophy of "partnership and programs" -- partnering
always with local organizations and jointly developing
practical programs to fit their needs.


19. (C/NF) All our Freedom Agenda reporting since 2005 is
available under the "Freedom Agenda" hot topic link on our
classified website.

********************************************* *
For more reporting from Embassy Kuwait, visit:
http://www.state.sgov.gov/p/nea/kuwait/?cable s

Visit Kuwait's Classified Website:
http://www.state.sgov.gov/p/nea/kuwait/
********************************************* *
LEBARON