UPDATED DEMOCRATIC REFORM STRATEGY FOR OMAN

C O N F I D E N T I A L SECTION 01 OF 03 MUSCAT 000949 SIPDIS SIPDIS E.O. 12958: DECL: 10/10/2017 TAGS: KDEM KMPI KWMN PGOV PREL MU SUBJECT: UPDATED DEMOCRATIC REFORM STRATEGY FOR OMAN REF: A. STATE 130991 ¶B. MUSCAT 720 ¶C. 05 STATE 152818 ¶D. 05 MUSCAT 792 Classified By: CDA Alfred F. Fonteneau for Reasons 1.4 (b, d) -------------- BACKGROUND -------------- ¶1. (C) As reported ref B, Oman represents a challenging environment for U.S. efforts to directly promote democracy. Civil society is under-developed and the registration of new non-governmental organizations and associations (which are limited in their areas of activity) can literally take years. The press is constrained by pervasive self-censorship and unwritten government redlines. Many Omanis view the directly elected Majlis al-Shura (the lower house of Oman's bicameral advisory body) as largely ineffective, but yet are apathetic about trying to change the political status quo. ¶2. (C) There are, however, some encouraging signs. The Sultan and other senior officials appear committed to increasing citizen participation in government and strengthening civil institutions, albeit very gradually and in a way that preserves the country's cohesion and stability. Recently legalized labor unions are beginning to hold workplace elections. A few civil society organizations are more actively engaging both the public and government, while some press outlets are cautiously testing the boundaries of permissible criticism. The upcoming elections for the Majlis al-Shura will be the most transparent, publicized and well-organized on record (although no independent monitoring will be allowed). In this environment, post has identified three focus areas, with corresponding benchmarks and programming information, in its efforts to promote the President's Freedom Agenda as detailed below. -------------- FOCUS AREA 1: CIVIL SOCIETY - LABOR UNIONS -------------- ¶3. (C) Post firmly believes that newly legalized labor unions represent Oman's best chance, for the foreseeable future, for the development of truly independent and active civil society organizations. As part of its commitments under the U.S-Oman Free Trade Agreement (FTA),the Omani government adopted unprecedented labor reforms in 2006 allowing workers to organize, meet, and choose their own leaders outside the controls placed on other types of non-governmental organizations. Elections will help keep 
union leaders directly accountable to their members, providing a powerful example of grassroots democracy at work. In addition, unions present women with new opportunities for leadership. ¶4. (C) According to recent information from the Ministry of Manpower (MOM),there are 18 licensed unions in Oman with a least ten other worker organizations in various stages of the union licensing process. These groups are now beginning to hold or plan for workplace elections to choose their leadership. For many Omani and expatriate union members, this represents their first direct experience with democracy. Union organizers report, however, that they lack the experience and knowledge necessary to conduct elections and are developing ad hoc procedures as they go along. Developing the capacity of unions to hold elections, and to advocate for their members' interests with employers and the government, provides the USG with an excellent opportunity to advance civil society and participatory democracy in Oman. ¶5. (C) Desired Outcomes and Benchmarks: By December 2007, workers establish unions in 10 additional companies and hold elections for union leadership. By December 2008, workers establish another ten unions and hold elections. Existing unions organize workers within sectors and prepare to conduct elections for sectoral representation to create federations. More than 60 union representatives receive training to strengthen union organization, promote elections and develop advocacy skills. Unions and management sign collective bargaining agreements while women occupy union leadership positions. ¶6. (C) Policy and Programming: The Ambassador has prioritized capacity-building and other support for unions in advancing democracy in Oman. Post will utilize public diplomacy programming, including the International Visitor Program, to advance this priority while it engages with government officials to help ensure non-interference with union activities. The Middle East Partnership Initiative (MEPI) has provided the Solidarity Center with almost USD MUSCAT 00000949 002 OF 003 500,000 through the end of 2008 to support union growth and development. Additional program funding could be used to expand Solidarity Center's scope of work to include training and activities on elections and broader outreach skills for engagement with the public and government. Post will remain alert for opportunities to provide small grants to unions for conducting specific democracy-related projects. -------------- FOCUS AREA 2: A REPRESENTATIVE PARLIAMENT -------------- ¶7. (C) The Majlis Oman, Oman's bicameral advisory body, presently consists of an appointed upper house (the Majlis al-Dowla) and a directly elected lower house (the Majlis al-Shura); members of both houses serve four year terms. Since its creation in 1992 from similar predecessor bodies, the Majlis al-Shura has become increasingly democratic as the government expanded suffrage and reduced its influence over candidate registration in each successive election. Suffrage is now universal and the government has conducted an aggressive effort to promote participation in the elections scheduled for October 27, 2007. The loosening of campaign restrictions, the creation of electronic websites to make the election process more transparent, a marked increase in registered voters, and the welcoming of foreign media for election day coverage promise to make this election Oman's most open and competitive on record. ¶8. (C) While elections to the Majlis al-Shura have become more broad-based and democratic, the body itself still lacks the power of a real legislative body. While the Majlis al-Shura can review draft laws and budgets, as well as call government officials -- including ministers -- for questioning, it cannot propose or veto legislation. Many Omanis are apathetic about the Majlis al-Shura and see it as ineffective. Part of this perception is based on the fact that some of the Majlis' activities, such as the mark-up of draft legislation, is not publicized and thus unknown to the public. According to contacts, the poor public image is also attributable to a lack of skills and knowledge among Majlis members. ¶9. (C) The International Republican Institute (IRI) has been conducting technical training for staff members of the Majlis Oman (and now primarily in the Majlis al-Shura) since 2000. Yet despite repeated attempts, IRI has had very little success in engaging directly with elected members of the Majlis al-Shura. Just recently, however, the IRI advisor in Muscat (resident in Oman since late 2006) informed poloff that the Majlis al-Shura has approved an IRI training plan that calls for it -- along with British counterparts -- to provide an orientation course and training directly to members elected in the October 2007 elections. Post is hopeful that this progress will mark a new chapter in USG efforts to strengthen Oman's proto-legislature, including improvements in constituent relations and responsiveness to public concerns. Moreover, an increasingly effective Majlis will likely be an important factor in any decision by Sultan Qaboos to endow the Majlis with new legislative powers. ¶10. (C) Desired Outcomes and Benchmarks: Majlis al-Shura elections on October 27, 2007 are conducted transparently and are deemed free and fair by informal observers. IRI holds an orientation and training course for elected Majlis members in December 2007. Two other training sessions for members are conducted in 2008. Coverage of Majlis activities in the press increases in 2008 compared to previous years. On-line commentaries on the Majlis in Internet fora show an improvement in the public perception of the Majlis. ¶11. (C) Policy and Programming: Post will use appropriate opportunities to encourage high-level Omani officials to consider the expansion of the Majlis' legislative responsibilities. Embassy officers will concurrently attempt to meet with selected members and staff to track and report on the development of the Majlis al-Shura. MEPI funding for the continued operation of the IRI program is essential. Money should be made available for IRI to expand its training and activities in response to opportunities arising from new access to Majlis members. Post will work with IRI to look into creating interactions between the Majlis and U.S. legislators. -------------- -------------- FOCUS AREA 3: WOMEN'S PARTICIPATION IN GOVERNANCE -------------- -------------- ¶12. (C) Women in Oman are present in government at all levels. There are three female ministers, nine women in the appointed Majlis al-Dowla and two women in the elected Majlis al-Shura. (Note: Oman's ambassador in Washington was the first female Arab ambassador to the U.S. End Note.) Many of MUSCAT 00000949 003 OF 003 post's most effective official contacts at the working level are women. Omani Women enjoy equal political rights and outnumber men in university enrollment (despite having to meet more stringent admission requirements than their male counterparts, the absence of which would substantially reduce the number of men admitted). The government has recently conducted a concerted campaign to encourage Omani women to cast votes in the October 27 national elections. Nevertheless, Omani women are underrepresented in government, business, and most sectors of society, and many lack awareness of their legal rights and the opportunities available to them. To help promote women's interests, there are currently almost 50 chapters of the Oman Women's Association (OWA) -- which are loosely affiliated with the government -- across the country with varying levels of activity. Some OWA chapters are dynamic and provide skills training for local women and other valuable services. One chapter in metropolitan Muscat recently pushed the envelope by offering a seminar for women on the upcoming elections. ¶13. (C) Post has formed very solid relations with a number of OWA chapters through prior MEPI and public diplomacy programs. Our partnership with the OWA in the highly successful MEPI-funded Women in Technology program is an example of this successful cooperation. We view the OWA as the best available vehicle for empowering women and increasing their participation in the governance process through advocacy and other activities. In 2005, post developed the Women's Empowerment and Voter Education (WEAVE) project at the specific request of the Ministry of Social Development. For reasons that are still unclear, however, this project was not approved by the Council of Ministers in ¶2006. (Comment: An emphasis on voter education and possible campaign training for women was likely a major cause of concern; the Omani government has made clear that it desires no direct outside involvement in the election process, which it considers to be a purely internal matter. End Comment.) Nevertheless, the Omani government has indicated that it is open to a revised women's program that would seek to strengthen the OWA and help promote women's issues in the country. ¶14. (C) Desire Outcomes and Benchmarks: Post and government agree on parameters of a new MEPI-funded women's program by end of 2007. An implementor is chosen and program activities begin in 2008. Selected OWA chapters increase training and seminars on women's legal rights and the political process. OWA leaders reach out to representatives in the Majlis al-Shura and to government officials to advocate for women's issues. ¶15. (C) Policy and Programming: Post will continue to engage vigorously with women leaders in government, business and civil society. Public diplomacy programming -- including exchange visits, study opportunities, speaker/specialist programs, and skills training -- will continue to promote women's participation in all aspects of Omani society. (Note: With limited exceptions, women now make up at least 50% of post nominees for all public diplomacy exchange programs. End Note.) The retention and possible expansion of MEPI funding earlier allocated for the WEAVE project is essential to implement a revised women's program to strengthen the capacity of the OWA and to organize activities designed to increase women's role in civic life. A new program will also explore the possibility of placing an advocate for women's issues within the Ministry of Social Development. Post will remain vigilant for opportunities to provide small grants to women leaders and OWA chapters to conduct specific democracy-related projects. FONTENEAU