Identifier
Created
Classification
Origin
08BUJUMBURA183
2008-04-08 16:04:00
CONFIDENTIAL
Embassy Bujumbura
Cable title:  

DAS SWAN SUPPORTS SOUTH AFRICAN MEDIATION WITH THE

Tags:  PGOV PREL PINR BY 
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C O N F I D E N T I A L SECTION 01 OF 03 BUJUMBURA 000183 

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SENSITIVE
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E.O. 12958: DECL: 2018/04/03
TAGS: PGOV PREL PINR BY
SUBJECT: DAS SWAN SUPPORTS SOUTH AFRICAN MEDIATION WITH THE
REBEL FNL

Classified By: Ambassador Patricia Moller for reasons 1.4 (b) and (d).

C O N F I D E N T I A L SECTION 01 OF 03 BUJUMBURA 000183

SIPDIS

SENSITIVE
SIPDIS

E.O. 12958: DECL: 2018/04/03
TAGS: PGOV PREL PINR BY
SUBJECT: DAS SWAN SUPPORTS SOUTH AFRICAN MEDIATION WITH THE
REBEL FNL

Classified By: Ambassador Patricia Moller for reasons 1.4 (b) and (d).


1. (SBU) SUMMARY: During his visit to Burundi to facilitate
the Tripartite Plus meetings taking place
March 24 - 27, Deputy Assistant Secretary for African
Affairs, James Swan met separately with President Pierre
Nkurunziza, First Vice President Yves Sahinguvu, and Minister
of Defense, Lt. General Germain Niyoyankana, to reaffirm USG
support for the return of the PALIPEHUTU-FNL (FNL) to
negotiations with the Government of Burundi (GOB) in
Bujumbura, and to express USG appreciation for Burundi's
peacekeeping effort in the African Union Mission to Somalia
(AMISOM). DAS Swan emphasized USG support for the South
African facilitation of the Burundi peace process, stressed
the international community,s impatience with FNL
intransigence, and suggested that the GOB offer the FNL
prominent positions in the government as well as additional
guarantees for the security of FNL members as they return to
Burundi. While expressing its frustration with the constant
and ever-changing demands of the FNL, the GOB maintain that
every effort will be made, within constitutional limits, to
show flexibility in attracting the FNL back to Burundi and
back to the Joint Verification and Monitoring Mechanism
(JVMM). The GOB also agreed to deploy a second peacekeeping
battalion to Somalia, possibly as soon as June, when the
needed financial and logistical support are in place. END
SUMMARY.


2. (SBU) In a morning meeting on March 25, President
Nkurunziza thanked DAS Swan for the U.S. facilitation of
the Tripartite Plus (TP ) meeting taking place in Bujumbura.
Recognizing the importance of the TP meetings as a
significant step towards peace in the region, President
Nkurunziza stated that Burundi could play a pivotal role in
the regional affairs of the Great Lakes nations because of
Burundi's relative neutrality in the disputes between its
neighbors. The President added that Burundi would never be
an obstacle to peace in the region.

--------------
Flexibility with FNL Demands
--------------


3. (SBU) President Nkurunziza asked for U.S. and
international assistance in exerting pressure on the FNL to
return to the negotiating table. Claiming that the GOB is
open to continuing dialogue with the FNL, Nkurunziza
expressed frustration with the ever-changing demands made by
the FNL before it will agree to resume participation in the
JVMM in Bujumbura. Despite the frustrations, Nkurunziza
stated that the GOB will do everything possible to create the
conditions necessary for resuming dialogue with the FNL as
long as FNL demands do not run counter to constitutional law.
For example, one of the demands put forth by the FNL as a
pre-condition for returning to the negotiations is the
privilege of using "PALIPEHUTU" (Party for the Liberation of
the Hutu People) in the name of their political party.
Burundi's constitution prohibits the use of ethnic references
in the names of political parties.


4. (SBU) In responding to the FNL's demand for justice and
social equality, Nkurunziza stated that
discussions are ongoing concerning the formation of a "Truth
and Reconciliation Commission" (TRC) which will be
responsible for delving into the honest and judicious
accounting of events and actions during Burundi's civil
strife. (COMMENT: The FNL is demanding the formation of a
"social contract" which would provide justice and equality
for all of Burundi's people, a guarantee that the FNL claims
is not presently available. END COMMENT.) Recognizing that
Burundi is just emerging from years of ethnic strife,
Nkurunziza acknowledged the problems that exist between the
different ethnic factions but pointed to social programs
introduced by his administration addressing education and
health care which he asserts are a component of national
reconciliation and equality. Nkurunziza added that Burundi's
recent accession to the East African Community also helps
respond to the FNL demands for social equality by providing
commercial opportunities and greater regional stability.


5. (SBU) As in his meetings with President Nkurunziza, DAS
Swan explained to First Vice President Sahinguvu that the
international community is prepared to put increased pressure
on the FNL but urged that the GOB demonstrate flexibility by
offering prominent non-cabinet positions to high ranking
members of the rebel movements, and by addressing the
security issues the FNL claims are an impediment to its
return to Bujumbura. Sahinguvu echoed Nkurunziza's response,

BUJUMBURA 00000183 002 OF 003


claiming that positions in the government must be secured
constitutionally and through elections. However, both
leaders agreed that senior level appointments such as
Ambassador or Director General positions in state enterprises
are negotiable and certainly a possibility. The First Vice
President contended that the level of security needed by the
FNL is already in place, citing that South African forces and
the leadership of the African Union are present in Burundi.
If a different level of security were required, Sahinguvu
suggested that the FNL themselves secure the safety of rebel
leader, Agathon Rwasa, or perhaps approach the international
community for additional support. Savinguvu summarized his
thoughts by stating that, despite the fact that some FNL
demands being difficult, all things are possible. He
stressed, however, that Rwasa and his rebel movement must be
in Bujumbura where negotiations can be conducted "face to
face".


6. (SBU) Minister of Defense Niyoyankana also expressed
fatigue and dismay with the demands of the FNL. In
particular, he said granting the FNL immunity from the
constitution and permission to use "PALIPEHUTU" in the party
name will set a negative precedent and open doors to other
groups who may want to skirt other provisions in the
Burundian constitution derived from the Arusha peace accords.
Niyoyankana also urged the international community not to
acquiesce to the financial demands put forth by the FNL in
support of combatants. The Minister noted that previous
initiatives to provide funding for basic needs to the FNL,
particularly by the Netherlands, led to the rearmament of the
rebel movement, to the detriment of the population who
continue to suffer from vandalism perpetrated by the FNL. As
to the question of FNL security once in Bujumbura,
Niyoyankana claimed this to be a "false" problem, stating
that this has been a constant FNL complaint despite the GOB's
efforts to address the FNL's security concerns. Despite
Niyoyankana's pessimism about the FNL, he said he still
believes that the group will return to the negotiating table
as there are no other options open to it.


7. (SBU) Niyoyankana stressed that a quick solution must be
reached with the FNL before the end of 2008. Niyoyankana
fears that if the negotiations drag on, instability in the
security sector will remain -- and possibly increase -- in
2009 which may adversely affect the elections of 2010. He
called on the international community once again to press the
FNL to reach a compromise by 2009 which will help guarantee
good political campaigns and a successful election.

-------------- ---
Financial Support for Burundi's Second Battalion
-------------- ---


8. (SBU) DAS Swan congratulated the GOB for the Burundian
army's performance and professionalism during their ongoing
deployment in Somalia. He conveyed that an additional sum of
$5 million still needed to be found to complete the $14
million sum required to support the deployment of a second
battalion of Burundian peacekeeping troops to Somalia. A USG
delegation member added that the $14 million would only
finance the battalion until year-end 2008 and proposed to the
Minister that the GOB seek additional donors for its AMISOM
effort. Appreciative of the USG assistance provided to the
Burundian forces thus far, Niyoyankana suggested that the
U.S. might be able to use its influence to convince other
donor nations, particularly Belgium and the Netherlands, to
contribute to Burundi's ongoing peacekeeping efforts.


9. (SBU) In his meeting, The First Vice President pointed
out that despite the current financial shortfalls, 800
Burundian peacekeepers were waiting to be deployed. He
suggested the possibility of sending a smaller portion of the
second battalion if the required levels of protection and
logistics to support the initial contingent were in place.


9. (SBU) Niyoyankana surmised that peace may not be
sustainable in Somalia for five to ten years and suggested
that the African Union (AU) needed to take a more responsible
role in that region rather than leaving the task to
individual countries like Burundi and Uganda. Additionally,
Niyoyankana put the onus on the Somali government to begin to
take greater responsibility for its own security and its
internal affairs. The Minister expressed surprise and dismay
at the lack of Somali resources to control the stability of
its country outside of Mogadishu itself and the lack of
vision by its leaders to defend Somalia. He also called on
the AU to take a more active role in convincing other African
nations to contribute to peacekeeping initiatives on the

BUJUMBURA 00000183 003 OF 003


continent.

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


10. (C) COMMENT: The GOB appreciates the impatience that
the international community is showing towards the changing
demands of the FNL and the willingness of the international
community to bring further pressure to bear on the FNL.
While taking on board Swan's recommendations that the GOB
show flexibility by addressing FNL security concerns and its
demands for senior positions, many in the GOB clearly feel
they have done all they reasonably can to lure the rebel
group back to Bujumbura, to the negotiating table and to
actively participating again in the JVMM. With 2010 election
preparations looming and international and regional pressure
increasing upon the FNL, the GOB may see little advantage in
offering further concessions to the rebel movement especially
when the FNL continues to pose new conditions that block the
process. END COMMENT.
MOLLER