PACIFIC ISLANDS FORUM STAYS STRONG ON FIJI AND

C O N F I D E N T I A L SECTION 01 OF 06 SUVA 000532

SIPDIS

SIPDIS

E.O. 12958: DECL: 10/22/2017
TAGS: PREL PGOV SENV AORC FJ SI TN XV
SUBJECT: PACIFIC ISLANDS FORUM STAYS STRONG ON FIJI AND
RAMSI; EAP A/S HILL AFFIRMS U.S. POSITIONS, ANNOUNCES
PACIFIC PROGRAMS

REF: SUVA 471

Classified By: Amb. Dinger. Sec. 1.4 (B,D)

Summary
--------------

1. (SBU) EAP A/S Hill led the U.S. delegation to the Pacific
Islands Forum (PIF) Post-Forum Dialogue (PFD) in Tonga Oct.
17-19. The PFD experimented this year with a plenary format
that consisted mostly of prepared remarks by island leaders
and 14 dialogue partners on the issues of Fiji, Solomon
Islands, climate change, energy, fisheries, tourism, and
health. In the plenary, A/S Hill announced several new USG
initiatives for the Pacific. On the margins of the PFD, A/S
Hill engaged in bilaterals with Australian FM Downer, New
Zealand PM Clark, the EU, China, Japan, France, Korea, the
PIF, the Solomon Islands, the RAMSI coordinator, the
Federated States of Micronesia, and Palau, and had
pull-asides with the UK, Tonga, and PNG. In addition,
EAP/ANP Director McGann briefed island reps on prospects for
job creation in Guam and held Trilateral Strategic Dialogue
and Quad 1 meetings focused on Pacific maritime and security
issues. A Venezuelan Vice Minister "observed" the Forum at
Tonga's invitation.


2. (C) PIF leaders, in their meeting, continued to press for
a return to democratic rule in Fiji. In an unprecedented
act, they asked Commodore Bainimarama to leave the room
during deliberations on Fiji and the Solomons. In the
Leaders Meeting, Bainimarama clearly committed to elections
under the current Constitution in the first quarter of 2009.
He said deposed PM Qarase and his SDL party could compete,
and the Fiji military would abide by the results. However,
after the meeting, Bainimarama and interim government
ministers undertook a PR response that leaves uncertainties.
Solomon Islands PM Sogavare boycotted the PIF Leaders meeting
in opposition to a recent PIF review that complimented the
Regional Assistance Mission to Solomon Islands (RAMSI). The
leaders reiterated their support of RAMSI and encouraged PM
Sogavare to work with the PIF and RAMSI. Leaders endorsed a
modified proposal for restructuring regional organizations,
most notably to blend SOPAC into the SPC and SPREP. They
also reiterated a long-standing PIF request for the U.S. to
approve the Republic of the Marshall Islands, (RMI) request
for additional compensation for nuclear-test-related claims.
End summary.

PIF Strong on Fiji
--------------

3. (C) In separate bilats after the PIF Leaders Meeting, PM
Clark and FM Downer were upbeat about the results on Fiji.
Prior to the PIF, Bainimarama had attempted to cultivate
island leaders -- PNG, Solomons, and Tonga in particular --
hoping to isolate Australian and New Zealand pressure for a
timely return to democracy in Fiji. In the end, SI PM
Sogavare didn't show up, and all other island leaders stood
firm, with Samoa particularly effective, PNG helpful, and
even Tonga, thought by many to be waffling, staying the
course. Leaders brushed aside an initial move during the
Leaders Meeting by the Chair, Tonga PM Sevele, to deal with
administrative and other issues prior to addressing the
contentious issues of Fiji and RAMSI. Fiji and RAMSI were
the first issues discussed and agreed upon.


4. (C) Bainimarama was permitted to make an opening
statement on his policies and vision for the future. PM
Clark then led the reactions, asking pointed questions that,
she told us, revealed Bainimarama's shallow thinking on the
issues and lack of depth on Fiji constitutional processes.
FM Downer was similarly effective. Importantly, other island
leaders asked useful questions as well, and it became very
clear that leaders remained united in their displeasure with

SUVA 00000532 002 OF 006


Bainimarama's coup and its aftermath. According to
attendees, not a single leader spoke up for Bainimarama
during the meeting (only PIF leaders attend the leaders'
retreat). Even Sevele, who as host of the PIF had invited
Bainimarama to attend, raised pointed questions on how to
return Fiji to democratic rule.


5. (C) Clark and Downer said that when leaders questioned
how Bainimarama proposed to make changes to the Constitution,
he repeatedly referred to his "People's Charter" proposal,
without being able to explain how that would be
constitutionally legitimated. The Leaders' communique, which
is reached by consensus, simply "notes" the Charter proposal
without in any way endorsing it. Importantly, the communique
reiterates the PIF's way forward for restoration of
"constitutional and democratic government in Fiji," welcomes
Bainimarama's commitment to elections in the first quarter of
2009, notes his assurance to Forum Leaders that he and the
Fiji military will accept the outcome, calls on the Interim
Government to develop a credible road map to the elections
"according to the Constitution and law of Fiji," urges the IG
to make that the "highest priority," expresses appreciation
for support by the international community, commends work of
the Fiji/Forum Joint Working Group, and calls for a meeting
of Forum Foreign Ministers in January 2008 to review
progress.


6. (C) PM Clark told A/S Hill in their bilat that someone
had to be the "dragon lady" on Fiji. She clearly didn't mind
the role. Her main point of pride was that the PIF put
Bainimarama under pressure and he then committed to the
language of the communique. He also assured the Leaders that
deposed PM Qarase and his SDL party will be allowed to
compete in the elections. Clark said the PIF did its part,
and she agreed with A/S Hill that the international community
must remain engaged. Clark commented that the EU has been
generally helpful, though she believes it undercut other
efforts by the international community when, in negotiations
in Brussels, the EU did not back the PIF Eminent Persons
Group's (EPG) call for the Republic of Fiji Military Forces
(RFMF) to return to the barracks. In subsequent bilats,
counterparts agreed with A/S Hill on the need to coordinate
on Fiji policy, but some concerns were raised. During the
Trilateral Strategic Dialogue, Japan and Australia expressed
a degree of worry about China's and Taiwan's
"dollar-diplomacy" and the possible effects on Fiji.

PIF Supports RAMSI
--------------

7. (C) The PIF Communique strongly supported RAMSI. The
Leaders noted that a PIF review of RAMSI this year was
conducted according to the agreed terms of reference.
Leaders endorsed the recommendations of the review and
commended them to the Solomon Islands Government (SIG). The
Leaders also agreed to pursue urgent consultations with the
SIG via the Forum Ministerial Standing Committee, noted the
SIG's own plans for a review of the SI law on RAMSI, and
reminded the SIG of past assurances that any proposals to
amend that law will be subject to prior consultations with
RAMSI contributing countries. PM Clark and FM Downer, in
their bilats with A/S Hill, suggested that SIG PM Sogavare's
decision to boycott the Leaders Meeting because of
unhappiness with the outcome of the PIF review clearly had
backfired. Clark and Downer said leaders were not happy at
being snubbed and they showed it via their communique.


8. (C) In a meeting with SI Foreign Minister Oti, A/S Hill
asked about the SIG's decision not to attend the Leaders
Meeting. Oti said he had been prepared to attend the
meeting, but the SI Cabinet voted not to have anyone attend.
With that, Oti objected in a muted fashion to RAMSI being
discussed during the meeting. He argued that because the SIG

SUVA 00000532 003 OF 006


did not attend, RAMSI should be off the agenda.


9. (C) A/S Hill noted concerns about the SIG approach to the
PIF review of RAMSI. Oti acknowledged that the SIG requested
the review and established the terms of reference. He
complained, however, that the review glossed over what he
called the first and most important term of reference: to
review the initial SI law under which RAMSI operates. He
said that, without adequate review of that law, the other
terms of reference are irrelevant. At this stage the SIG
believes RAMSI should be reviewed internally since it is the
SIG that actually represents the interests of the people of
the Solomon Islands. Oti averred that the SIG realizes how
much RAMSI has done for the SI and is not doing anything to
undermine its efforts. He said Australia, in particular,
misrepresents SIG actions to create problems.


10. (C) Oti said the new SIG review of RAMSI will begin by
the end of October. The first stage will be to assess public
opinion of RAMSI, followed by an assessment of the
international components and perceptions, with a return to
Parliament for a final assessment. Hill stressed that while
the U.S. acknowledges RAMSI is not perfect, we continue to
support it strongly and we believe any differences can be
worked through. Hill also highlighted the importance the
United States places on the SIG working with Australia and
the rest of the international community.


11. (C) RAMSI Special Coordinator Tim George summarized the
PIF position on RAMSI in his meeting with Hill, with emphasis
on Australian and New Zealand policies. George said 2007
started off poorly, then slowly improved through June as the
SIG took a number of positive steps. By mid-July the signals
were becoming mixed, though Sogavare gave a public speech in
which he stated RAMSI must stay. Thereafter he rejected the
PIF report on RAMSI, and in September the SIG speech at the
UN stated RAMSI is an occupying force and is undermining SI's
sovereignty. Now, George said, many actions by the SIG
appear directed towards undermining RAMSI or even pushing
RAMSI out of SI. The lack of transparency in Sogavare's
policy creates difficulties for all involved. Despite
repeated requests, Sogavare had not met George in six weeks.
George described the RAMSI-SI relationship as "a bit odd."
He judged that only a small group of people in Sogavare's
office create most of the problems. Over 90 percent of the
population, including MPs, want RAMSI to stay. George said
RAMSI has no objection to the SIG review per the initial
agreement. RAMSI has done well and will stand up to
scrutiny. He also appreciated the PIF report, despite
criticisms of RAMSI and its operations. Overall the PIF
conducted a professional review and highlighted areas for
improvement. RAMSI's concern with the new SIG review is the
process.

PIF Plenary: A/S Hill Delivers U.S. Message
--------------

12. (SBU) A/S Hill led the U.S. delegation to the
first-ever PIF/PFD Plenary, an attempt by the PIF to improve
the previous dialogue structure that was comprised of
20-minute sessions between a few Forum Foreign Ministers and
individual dialogue partners. The Plenary began with the new
Forum Chair, Tonga PM Sevele, summarizing the outcomes of the
Leaders Meeting. He then opened the floor for discussion.
A/S Hill highlighted the United States' continued support for
PIF efforts to restore democracy in Fiji and our full support
for RAMSI. Many of the other international partners also
used the opportunity to express support for PIF efforts with
Fiji and RAMSI. The PRC noted a hope for a consensus in Fiji
for elections and the usefulness of a "constructive effort"
by the international community for dialogue. A few,
including India and Thailand, were silent on Fiji and RAMSI.
A/S Hill noted the planned relocation of military forces to

SUVA 00000532 004 OF 006


Guam and possible benefits to the Pacific Island Countries
(PICs).


13. (SBU) After general discussion, the PFD Plenary turned
to five thematic sessions on climate change, energy,
fisheries, health, and tourism. For each, a PIF Leader
initially summarized Forum views and achievements, then
dialogue partners delivered remarks. A/S Hill made
interventions on each issue and stressed U.S. willingness to
work with the PICs. On climate change, he announced new USG
initiatives to develop a coastal zone resilience project, to
help the SPC improve food security, and to second a State
officer to the SPC. On energy, he noted USG efforts to
improve energy efficiency in the Compact States. On
fisheries, he highlighted the U.S. Tuna Treaty and discussed
USG efforts to facilitate cooperation on maritime
law-enforcement issues. On tourism, he noted potential
positive effects of the military relocation to Guam. On
health, he announced the USG will organize a Summit on
Diabetes Prevention in the Pacific and noted an increase to
$2 million in USG HIV/AIDs assistance to the region. The
health topic brought forth the only significant back and
forth between members and partners. Several commended the
USG proposal for a diabetes summit and urged careful
coordination in advance. PM Clark accented the need for PICS
to focus on women's health issues.

RIF Review
--------------

14. (U) Regarding the Regional Institutional Framework (RIF)
review (see reftel),the Forum Leaders communique announced a
decision to leave the Forum Fisheries Agency untouched, but
(1) to "rationalize the functions" of the Pacific Islands
Applied Geoscience Commission (SOPAC) by "absorbing" SOPAC
functions into the Secretariat of the Pacific Community (SPC)
and the Secretariat of the Pacific Regional Environmental
Program (SPREP),and (2) to merge the South Pacific Bureau
for Education Assessment (SPBEA) into SPC. In the PFD
Plenary, Tonga PM Sevele only noted that there will be a
"further look" at SOPAC, SPREP, SPBEA, and SPC regarding
possible overlaps. We heard that Sevele's reticence
reflected instant blow-back from the SOPAC Governing Board.
(Note: The USG had raised legal, financial, and operational
concerns about a broader RIF restructuring proposal. The
communique concept, while narrower in scope, would still
bring significant changes to SPC and SPREP, the two regional
organizations in which the USG is a member, so past USG
concerns would remain. We heard from SPC Director General
Rodgers that he did not expect the SPC to address the RIF
revisions at this year's annual meeting in early November,
preferring first to observe outcomes from the SOPAC annual
meeting two weeks later. We received the impression that
nobody believes actual RIF mergers/absorptions would take
place until a year or two from now at the earliest. End
note.)

Maritime Law Enforcement Cooperation and TSD
--------------

15. (C) Australia opened its presentation during the Quad 1
on maritime law enforcement (MLE) cooperation by presenting a
document on current gaps in MLE in the Pacific. All
participants (Australia, France, New Zealand, the U.S., PIF,
and the SPC) agreed on the benefit of continuing Quad 1
discussion, though a number of process questions remain. SPC
rep Falani Aukuso noted his organization is already involved
and connected with the other regional organizations that
would be interested, such as the Forum Fisheries Agency and
the PIF. All agreed that the best way forward is to focus
initially on fisheries issues. EAP/ANP Director McGann
recommended that each nation review the gap paper presented
by Australia and the U.S. paper that was revised after the
recent DVC and prepare to meet in Apia in November on the

SUVA 00000532 005 OF 006


margins of the annual SPC meetings. France confirmed it
would have comments on the U.S. paper at that time, though
there was a general concern that experts would not be there.
McGann urged participants to continue the momentum of the
meetings and have a discussion in Apia, even if not at the
expert level. A separate Trilateral Security Dialogue (TSD)
meeting among Australian, Japanese, and U.S. delegations was
held to review Forum outcomes particularly regarding Fiji and
Solomon Islands. All sides welcomed progress toward getting
Bainimarama to agree to a March 2009 election. Japan and the
U.S. expressed support for RAMSI and Australia,s role. The
delegations affirmed acceptance of the December dates for a
TSD Political Directors meeting in Canberra.

SIPDIS

Military Relocation to Guam
--------------

16. (SBU) McGann gave an update to representatives from the
islands and regional organizations on the current status of
the U.S. military relocation from Okinawa to Guam. He
highlighted efforts by the international community to
coordinate efforts to prepare PIC citizens to take advantage
of the relocation, which is estimated to cost $10-14 billion,
with approximately 60 percent funded by Japan. There will be
numerous spin-off requirements in construction, engineering,
services, tourism, healthcare, and other positions, and with
proper preparation the islanders can make sure they have
equal access to opportunities. The donor community is
looking at technical training, transportation, and other
means to improve island capacities to compete in the expected
Guam job market.

China bilat
--------------

17. (C) Chinese Vice Foreign Minister Zhang Yesui and A/S
Hill began their bilateral by discussing Fiji. Zhang noted
he had just concluded a meeting with the Fiji delegation in
which Bainimarama gave assurance he did not seek power and
only wants stability. China was pleased that the PIF Leaders
were able to achieve consensus on Fiji. When Hill raised
concerns about "competitive dollar diplomacy" in the region,
Zhang stated Chinese assistance to the region "has no
political strings." though he noted that "some have a
different view." He concurred with A/S Hill that there
should be better dialogue and coordination on aid and
humanitarian assistance. Thus, the U.S. "Core Partners"
concept is useful. He said China is interested in assisting
the region with small-scale solar power. Zhang accused
Taiwan of continually engaging in "cash diplomacy, not caring
about development," just wanting "more space." Zhang noted
China's FM would call in Amb. Randt in Beijing shortly to
protest strongly the Dalai Lama's reception in Washington.
Zhang and Hill concluded the meeting with a discussion of
Six-Party Talks developments, including the prospects for a
possible Six-Party Ministerial.

FSM bilat
--------------

18. (SBU) New FSM President Mori raised a laundry list of
topics in his bilat with A/S Hill. Mori asked if the USG
would object to the Compact States joining in the region's
proposed Economic Partnership Agreement (EPA) with the EU.
EAP/ANP Director McGann responded that the USG welcomed a
diplomatic note regarding FSM,s participation in the EPA and
did not foresee any objections. McGann also promised to
update Kolonia on issues regarding fiber optic cable
connectivity between FSM islands.

EU bilat
--------------

19. (C) EU Director General for Development Cooperation
Manservisi compared notes with A/S Hill on Fiji and RAMSI.
He reported on the state of EU-Pacific region EPA

SUVA 00000532 006 OF 006


Negotiations, which he said must be handled within WTO
constraints. He raised Timor-Leste, noting elections were
acceptable but the Fretelin problem remains. He noted with
disappointment that China did not attend an EU-hosted lunch
for donors to the Pacific region. Finally, Manservisi raised
an EU concern that the RMI is not meeting OECD standards
regarding its taxation regime, an important measure of good
governance. He asked the USG to weigh in with the RMI
Government. A/S Hill noted that we would consult with RMI
regarding the EU,s concerns.

Burma
--------------

20. (C) In PM Clark's bilat with A/S Hill, she noted that
ASEAN has "stood up more than one would have thought"
regarding the Burma problem. She suggested China is
interested in finding a long-term solution for Burma since
"the Chinese like order." She noted that "we all deal with
China despite its human-rights abuses. So what is the right
approach to Burma?" Clark said that in the end, there must
be a multilateral approach that includes China and at least a
number of the ASEANs. Unfortunately, she said, Thailand
"lost its moral authority" with the coup there. Clark
described India's silence as "reprehensible." Separately, FM
Downer suggested to A/S Hill that the East Asia Summit could
be a useful venue for addressing Burma, given that EAS
membership includes China, all the ASEANs, and India. In
addition, UK Minister and Parliamentary Under-Secretary of
State Meg Munn engaged in a pull-aside with A/S Hill
specifically to be briefed on the USG view of Burma.

Venezuela
--------------

21. (C) Tonga expedited a Government of Venezuela request to
be an observer for the Forum meetings. Vice Minister of
Foreign Affairs Poljak and the Venezuela Charge d, Affaires
in Canberra attended. Poljak told the media that his
Government is ready to help end the West's "domination" of
the region, and he referred to Venezuela's "very aggressive
energy-linked political philosophy" which seeks to "end the
use of fuel as a weapon of domination over smaller
countries." Poljak stated Venezuela could help Pacific
states by providing "cheap fuel." He said a particular
possibility for aid could be to help provide "a storage space
for their fuel and petroleum." Poljak did not provide
further details, but he did inform the media of approaches in
recent months by Pacific states interested in securing closer
economic and diplomatic links. Note: The Venezuela Charge
was in Nauru in July for a donor Conference. End note.

Comment
--------------

22. (C) The ability of Forum Leaders to continue a firm
stance on Fiji's need to return to democracy ASAP and on the
importance of RAMSI is very encouraging. The PIF
traditionally has emphasized consensus, the "Pacific Way" of
reaching solutions. This year, Leaders saw the need to press
Bainimarama and Sogavare in the interest of the region's
stability. The outcomes are in line with the approach the
United States privately advocated to each PIC during the past
year. Despite Bainimarama's subsequent waffling to the
media, he made firm commitments that Leaders will expect him
to fulfill. The outcome for the Solomon Islands was not as
clearly defined, but, importantly, the Leaders were
unambiguous in their support of RAMSI. A/S Hill's two-days
of participation accented that the U.S. is an increasingly
active participant in Pacific issues, and PIC leaders
appreciated the new USG offers of assistance for key
priorities.
DINGER