RGC WORRIED ECCC PROSECUTIONS COULD AFFECT PEACE

C O N F I D E N T I A L SECTION 01 OF 03 PHNOM PENH 000103 SIPDIS SIPDIS STATE FOR EAP/MLS AND S/WCI E.O. 12958: DECL: 01/22/2016 TAGS: PREL KJUS PHUM CB SUBJECT: RGC WORRIED ECCC PROSECUTIONS COULD AFFECT PEACE AND SECURITY REF: PHNOM PENH 77 Classified By: Pol/Econ Chief Margaret B. McKean, Reason: 1.4 (b) and (d) ¶1. (C) Summary. Former Ambassador David Scheffer's January 19-21 consultations in Cambodia with DPM Sok An and members of the ECCC staff suggest there is room for possible compromise on ongoing discussions over the Extraordinary Chambers in the Courts of Cambodia (ECCC) internal rules. However, DPM Sok An underscored RGC concerns that the ECCC's net of possible indictees may widen too broadly and undermine Cambodian peace and stability -- a theme he characterized as a "make or break" point for the CPP. Scheffer and the DPM reportedly discussed compromise solutions to each of the outstanding issues facing the internal rules debate and ECCC Administrator Sean Vissoth reportedly conveyed the DPM's discussions with Scheffer to the Cambodian side. OSJI, however, worries that Scheffer may have overstepped his mandate as his suggestions to DPM Sok An were his alone, and he did not have the authority to speak on behalf of the international judges. End Summary. Scheffer and Sok An Meet, Discuss ECCC -------------- ¶2. (C) During a January 20 meeting, DPM Sok An and former ambassador-at-large for War Crimes David Scheffer discussed the outstanding issues facing the ECCC review committee's discussion about the Tribunal's internal rules. The meeting took place at Sok An's private ranch, where Scheffer had an opportunity to meet with the DPM in a relaxed atmosphere. In a January 21 telecon with Pol/Econ Chief, Scheffer said that DPM Sok An was "clearly on board" to push for resolution of the major issues dividing the international and Cambodian judges. Sok An told Scheffer that the PM had recently given public remarks underscoring the RGC's desire to see the top former Khmer Rouge officials prosecuted. Scheffer characterized his discussions as good, and that Sok An had been agreeable on the issues but with his own perspective. The only other person in the meeting was ECCC Administrator Sean Vissoth. Scheffer said that throughout the meeting, Sok An highlighted important points of agreement between the DPM and Scheffer, urging Vissoth to take detailed notes. ¶3. (C) The most important issue for the Cambodian government, according to Scheffer, is RGC fear that international prosecutor Robert Petit and his staff may become too overzealous in their investigative work, expanding the number of potential indictees to an unacceptable degree. Scheffer said that Sok An's description of his concern on this point bordered on paranoia, and Scheffer added that he tried to put the DPM's mind at ease. Both agreed that a useful compromise would be to add the language from the UN/RGC agreement on the ECCC to the preamble of the internal rules, and Scheffer and Sok An reportedly discussed language centering on the Tribunal's need to be mindful of the RGC's desire to ensure both justice and security in the ECCC's work. DPM Sok An underscored that this is a "make or break" point for the RGC. On the ride back from the DPM's ranch to the hotel, Sean Vissoth reiterated the optics surrounding the scope of the ECCC's work must be handled correctly to put at ease the minds of the CPP Central Committee. (Comment: While much of the discussion centered on "government" concerns, it is noteworthy that Vissoth referred to the CPP Central Committee. End Note.) ¶4. (C) On the issue of defense counsel, Sok An reportedly showed no sympathy for the position of Cambodian Bar Association President Ky Tech, who has made a poor impression on the international judges during the failed November plenary as well as in the first week's interaction with the review committee that ended on Friday, January 19. Ky Tech's hard-line stance rejecting the appearance of foreign defense counsel before the ECCC, payment of fees, issues of reciprocity, and the Cambodian Bar Association's right to discipline foreign lawyers and clear their public statements in advance reportedly were rejected by Sok An. However, the DPM reportedly did allow that he shares Ky Tech's concern that foreign defense counsel could create a circus-like atmosphere in the court and that should be avoided. He also reportedly supported Ky Tech's views that defense counsel and prosecutors should only issue joint statements outside the PHNOM PENH 00000103 002 OF 003 courtroom; Scheffer acknowledged that this is not possible. Scheffer said he pressed Sok An on the issue of defense counsel, noting that the participation of foreign counsel had always been anticipated and agreed to by the RGC during the negotiation process of the ECCC. Sok An reportedly agreed that this could be finessed by inserting the language in the ECCC's internal rules, rather than getting an amendment of the Cambodian Bar Association's rules. (Comment: Sok An had assured the international donors repeatedly over the past several years that the RGC would seek an amendment of the Bar's rules, stressing that this was a technical issue to overcome and not a difference on substance. The Bar's rules permit defendants to have foreign lawyers assist them in their defense, but specifically prohibit foreign counsel from appearing in court on their client's behalf. It is unclear if the ECCC's rules allowing foreign counsel to appear will suffice. Comment continued: Sok An's position on the role of defense counsel is of note, given that the DPM wrote a letter to the UN's legal office in early December that was highly critical of Defense Office head Rupert Skilbeck, and called for the UN and the RGC to reopen negotiations on the role of that office -- a request that we understand was strongly rejected by UN Legal Counsel Nicholas Michel. End Comment.) ¶5. (SBU) Another sticking point centers on in absentia trials, which are permitted under Cambodian law but not considered good international practice. The Cambodian judges have insisted that in absentia trials be permitted. Scheffer confirmed the Cambodian and international judges on January 19 agreed that -- provided a client makes an initial appearance before the ECCC, defense counsel subsequently may represent their clients in the courtroom, and video/audio feed can be provided in the detainee's cell to follow the proceedings. The point of disagreement, noted Scheffer, appears to no longer be relevant. ¶6. (SBU) On the supermajority voting issues and Cambodian proposals to undermine the UN/RGC agreement redefining how supermajority voting would work, Scheffer said that this was a non-starter and could not be walked back. Scheffer added that DPM Sok An was very supportive of reaffirming the supermajority rule, but that the DPM offered that he understood the Cambodian judges' position that they do want to see a runaway court considering an expanded number of indictees. Finally, Scheffer and DPM Sok An discussed the victims unit, an added element to the structure and administration of the ECCC that some donors and others worry will eclipse the budget and resources of the Tribunal. Sok An reportedly noted that the victims unit and their inclusion as civil parties in the cases before the ECCC is not an advocacy point of the government, but it is allowed under Cambodian law and some judges reportedly support the idea. Sok An said that it is rather meaningless as the likely defendants have no assets to distribute. Scheffer proposed that victims' lawyers could be limited to participation in the opening and closing arguments; Sok An was reportedly attracted to this proposal. OSJI's Readout -------------- ¶7. (C) Pol/Econ Chief met on January 21 with the Open Society Justice Initiative's (OSJI) Heather Ryan and Tracey Gurd (please protect) to discuss their reaction to Scheffer's meetings, as the former Ambassador met with members of the ECCC staff as well. They registered strong concern that Scheffer had overstepped the bounds of his mandate and jeopardized the status of OSJI's mission as a neutral party to the ECCC's work. Heather Ryan said that OSJI had agreed to bring Scheffer to Cambodia at the behest of some ECCC staff members (reftel),but that the former ambassador's instructions were to urge DPM Sok An to press the Cambodian judges to abandon their hard-line positions on the remaining issues in favor of compromise, given that the future of the ECCC may be on the line. ¶8. (C) Moreover, OSJI wanted Scheffer to press Sok An on the issue of political interference, and urge that the RGC allow the Cambodian judges free rein to make their own decisions. OSJI and other sources are of the opinion that some Cambodian judges would likely do a good job minus real or perceived political interference, and OSJI had hoped that PHNOM PENH 00000103 003 OF 003 Scheffer could lay down a strong marker with Sok An that the RGC should make clear to their judges that they have the freedom to exercise their own opinions. In fact, just the opposite seems to have happened, with Scheffer encouraging Sok An and Sean Vissoth to play a strong role in the decisionmaking of the Cambodian judges. Ryan also noted that the RGC may have misread the meeting and interpreted Scheffer's ideas and suggested compromises as having the weight of the international judges behind him. Scheffer did not meet with any of the international judges during his time in Cambodia. The RGC may believe they have a tacit understanding as to what the international judges will accept; the international judges may not agree. Comment -------------- ¶9. (C) OSJI is very concerned that they may have damaged their role in ensuring an independent court by supporting Scheffer's visit, which has encouraged government intervention in the process and underscored for the Cambodian judges (if there was any doubt) the importance of DPM Sok An's office to the ECCC. The most important issue raised by Sok An centered on the number of indictees that would ultimately go to trial before the ECCC, which is not surprising given the RGC awarded Sok An's niece (by marriage) the key position of co-prosecutor. While international ECCC staff agree that the categories of senior leadership and those most responsible will limit the number of indictees that go before the court, it is also clear that "list of usual suspects" (i.e., those 5-8 people usually named in any public forum or academic seminar focused on the Khmer Rouge period) may be broadened during the course of the investigative phase. In a country whose judiciary does nothing with respect to any politically related case without instructions, it is little surprise that the RGC is reticent about a legal process that they may not be able to control. It is unclear to us how preamble language referring to the UN/RGC agreement, however, could be used to forestall an indictment if the evidence supports it. End Comment. MUSSOMELI