Identifier
Created
Classification
Origin
08KIGALI859
2008-12-18 09:33:00
CONFIDENTIAL
Embassy Kigali
Cable title:  

SUCCESSFUL JMG AND TRIPARTITE MEETINGS IN KIGALI

Tags:  PREL PGOV KDEM MOPS RW 
pdf how-to read a cable
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FM AMEMBASSY KIGALI
TO RUEHC/SECSTATE WASHDC PRIORITY 5786
INFO RUEHBS/AMEMBASSY BRUSSELS 0353
RUEHJB/AMEMBASSY BUJUMBURA 0452
RUEHDR/AMEMBASSY DAR ES SALAAM 1266
RUEHKM/AMEMBASSY KAMPALA 2042
RUEHKI/AMEMBASSY KINSHASA 0592
RUEHLO/AMEMBASSY LONDON 0366
RUEHNR/AMEMBASSY NAIROBI 1374
RUEHFR/AMEMBASSY PARIS 0625
RUCNDT/USMISSION USUN NEW YORK 0183
C O N F I D E N T I A L KIGALI 000859 

SIPDIS

E.O. 12958: DECL: 12/16/2018
TAGS: PREL PGOV KDEM MOPS RW
SUBJECT: SUCCESSFUL JMG AND TRIPARTITE MEETINGS IN KIGALI

REF: KINSHASA 1081

Classified By: DCM Cheryl Sim for reasons 1.4 (b) (d)

C O N F I D E N T I A L KIGALI 000859

SIPDIS

E.O. 12958: DECL: 12/16/2018
TAGS: PREL PGOV KDEM MOPS RW
SUBJECT: SUCCESSFUL JMG AND TRIPARTITE MEETINGS IN KIGALI

REF: KINSHASA 1081

Classified By: DCM Cheryl Sim for reasons 1.4 (b) (d)


1. (SBU) Summary. The Rwandan government hosted
successful Joint Monitoring Group - Envoys Level (JMG-EV) and
Tripartite Plus Joint Commission meetings in Kigali from
December 8-10. Participating governments and international
organizations praised the recent progress and positive
momentum of bilateral meetings between the Rwandan and
Congolese governments, and pledged their continuing support.
Both meetings welcomed the operational plan against the FDLR
agreed upon by the two governments, praised the role of UN
Envoys Presidents Obasanjo and Mpaka, and agreed that efforts
must be taken against those who profit economically from
negative armed forces in the Congo. Each body also urged
compliance with UNSC 1804 authorizing financial sanctions and
a travel ban against the FDLR, endorsed direct talks between
the Congolese government and the CNDP, and supported the
enlargement of MONUC forces. The Tripartite-Plus Commission
separately welcomed the December 4 agreement between the
Government of Burundi and the FNL, called for increased
pressure on the LRA, including a Security Council resolution
imposing a travel ban and financial sanctions, and supported
the establishment of a Tripartite-Plus working group aimed at
curbing illegal activities of negative forces. Each meeting
was characterized by cooperative and supportive proceedings,
with the international community looking to support the
"accelerating and positive" relations between the DRC and
Rwanda. End summary.


2. (SBU) Rwandan hosted a JMG-EV and follow-on Tripartite
Plus Commission December 8-10 in Kigali. EU Special
Representative Roeland van de Geer chaired the December 8
JMG-Envoy session at the Ministry of Foreign Affairs, where
parties reviewed events and commitments in the light of the
2007 Nairobi Accord and subsequent meetings and negotiations.
In addition to Van de Geer and delegations from the DRC and
Rwanda, representatives also attended from the USG (Acting AF
DAS Karl Wycoff, Senior Tripartite-Plus Coordinator
Ambassador Joyce Leader and Ambassador Symington),the AU,

the UN (MONUC Chief Alan Doss),and the International
Conference of the Great Lakes (ICGLR). Van de Geer extolled
the "quantum leap" in good relations between the GOR and the
DRC. He detailed the extensive international effort to
assist the two nations, noting a "two-five-two" framework for
international assistance and consultation, consisting of the
two new UN Envoys (former presidents Obasanjo and Mkapa),the
five envoys from the EU, US, AU, ICGLR and UN, and the two
governments. Attendees at the meeting praised the concrete
achievements of the December 4-5 "Four-plus-Four" meeting
held in Goma between the two governments (four
representatives participating from each),which included
agreement on a joint military operational plan against the
FDLR, a DRC commitment to renew diplomatic relations with
Rwanda, Burundi and Uganda in the first quarter of 2009, the
opening of direct talks between the CNDP and the DRC, and the
naming of DRC representatives to the Economic Community of
the Great Lakes (CEPGL) governing bodies (reftel).


3. (C) Van de Geer, Wycoff, Doss and others also noted the
importance of non-military efforts in the Kivus, particularly
under the Goma/Amani Process, and the need to establish a
mechanism to curtail the exploitation of natural resources in
the Kivus by negative forces. Ambassador Symington
characterized the effort as one meant to put the development
of natural resources on a legal footing, by legitimate
parties. Continuing and extensive sensitization efforts
toward negative forces would also be needed to encourage
disarmament and repatriation/reinsertion. Wycoff noted USG
efforts to assist a revitalized verification mechanism with a
technical team of experts. Humanitarian assistance to IDPs
and others were also key concerns of the assembled
representatives. More effective efforts to pursue FDLR
operatives in Europe and North America were also noted, as
well as efforts to finalize sanctions against FDLR leadership
under UNSC 1804. Van de Geer pledged the JMG's support of
GOR - DRC bilateral negotiations, and Wycoff announced that
the USG would assume the presidency of the JMG in 2009. The
next meeting of the JMG would occur at the convenience of the
DRC and Rwandan governments, participants agreed. There was
agreement to restart the JGM-Task Force, with meetings
scheduled every two weeks. Immediately after the conclusion
of deliberations, Rwandan Foreign Minister Museminali briefed
the local diplomatic community on the "Four-plus-Four"
communique issued by the GOR and DRC on December 5.


4. (C) Under the auspices of USG facilitation as chaired by
Wycoff, the Tripartite Plus Joint Commission met December 9
and 10, with the four foreign ministers and their delegations
participating. Joint Sub-Commissions met first, with
recommendations reviewed by the full Commission and arriving
ministers the following day, and a Communique and Ministerial
Conclusions (the latter an internal document only) were
issued at the end of the sessions (full texts below). In
their conclusions, the four governments assessed the Nairobi
Process (welcoming "increasing dialogue, changing dynamic and
positive momentum" between the DRC and GOR),the Goma Process
(applauding joint talks by the CNDP and DRC),the LRA and
ADF/NALU (calling for increased diplomatic and military
pressure),the FNL (welcoming the recent agreement between
the GOB and FNL),Regional Security Cooperation (endorsing
MONUC's enlargement and calling for a strengthened mandate),
a Legal Experts Report (calling for more consultations),and
examined proposals to increase the effectiveness of the
Tripartite Plus Process (Uganda proposing regular heads of
state summits; the USG noted that Tripartite might ultimately
be folded into other mechanisms). The delegations also
approved CEPGL observer status.


5. (C) In its communique, the Tripartite Plus Joint
Commission largely repeated the Ministerial Conclusions,
urging all parties to cooperate with Presidents Obansanjo and
Mkapa, endorsing the December Communique by the DRC and GOR,
welcoming direct talks between the DRC and CNDP, calling on
all governments to enforce UNSC 1804, and endorsing MONUC's
enlargement and a strengthened mandate. The Communique also
welcomed the December 4 agreement between the GOB and the
FNL, and called for increased pressure on the LRA and
ADF/NALU, and welcomed the CEPGL as an observer. The
Communique also supported the establishment of a working
group to consider measures to curtail the economic lifelines
of negative forces and other criminal activities.


6. (C) During discussions, there was disagreement whether
the group should endorse the plus up of MONUC forces, as
approved by the UNSC. During the sub-commission talks,
Rwanda maintained that it was inappropriate for the group to
endorse the increase. The DRC also asked for an endorsement
of an EU bridging force. The following day before the
ministerial, Rwanda agreed to support the MONUC plus up, but
not the EU force. All parties agreed to support a
strengthened mandate. The Rwandan delegation at one point
suggested that the Kinyarwanda services of both BBC and VOA
be "suspended" while enhanced sensitization efforts to entice
the FDLR out of the Congolese forests proceeded; ultimately
this became a recommendation to "constructively engage the
media" on negative forces. Discussion of JVM issues were
opposed by Rwanda, as more appropriate to its bilateral
discussions with the DRC. Uganda's suggestion of a new
heads-of-state summit layer to Tripartite-Plus deliberations
appeared to receive the support of only the Burundi
delegation. During the discussion of regional security
issues, Wycoff noted that Washington had been concerned over

the October 2nd CNDP statement noting that it had become a
movement of national liberation and that the USG had issued a
statement condemning this. Rwanda spoke up to advocate that
it was inappropriate to discuss this further, because the
CNDP and GDRC were currently engaged in negotiations. The
two days of Tripartite Plus deliberations were largely
characterized by consensus and accommodation, to a degree
many attendees found both encouraging and refreshing. DRC
agreed to host the next meeting in the second half of March.


7. (C) Comment. In both the JMG-Envoys Level and
Tripartite Plus Commissions discussions, partners of the
Rwandan and Congolese governments saluted the acceleration of
cooperation between the two governments, essentially pledging
to remain supportive, while also wishing to give the two
governments running room in their burgeoning relationship.
The plethora of meetings and mechanisms (Tripartite Plus,
Nairobi, ICGLR, Four-by-Four) has left the two governments
flying from one regional capital to another nearly non-stop
in recent weeks. Both appear to be making the most progress
in their bilateral deliberations. Van de Geer in the JMG
sessions and Wycoff in Tripartite Plus both signaled that the
international community in general and these two fora in
particular would reinforce and support as and when the two
governments wished. End comment.


8. (SBU) Text of Tripartite Documents Follow:

Begin Text (please note: the Conclusions document is for
internal Tripartite Plus use only and not for general
distribution outside the Tripartite Plus framework):

Tripartite Plus Ministerial Conclusions, December 10, 2008,
Kigali, Rwanda

Nairobi Process


1. The Tripartite Plus welcomes the increasing dialogue,
the changing dynamic, and the positive momentum between the
Governments of the Democratic Republic of Congo and Rwanda.

2. Tripartite Plus member countries urge all UN members,
especially those in Europe and North America, to take action
and enforce comprehensive sanctions against the leaders of
the FDLR in accordance with United Nations Security Council

1804.

3. The member countries agreed to responsibly and
constructively engage the media to highlight the FDLR and its
leadership as negative forces and to encourage the media not
to give them a platform.

Goma Process


1. The DRC delegation outlined the progress with certain
signatories to the Acte d'Engagement, including Mai-Mai
groups from South Kivu that are engaging in the Amani
process.

2. Member countries welcomed the direct talks in Nairobi
under the Amani Program between the government of the DRC and
the CNDP.

LRA and ADF/Nalu


1. The Ugandan delegation reported that the LRA had failed
to sign the final peace agreement and called for increased
military and diplomatic pressure to be exerted.

2. The Ugandan delegation called for Tripartite Plus
member countries to support a specific UNSC resolution
against the leaders of the LRA and ADF/NALU similar to UNSCR
1804 against the FDLR. The DRC pledged to support Uganda at
the UNSC meeting when the resolution is tabled.

FNL


1. The member states welcomed the outcome on the recent
agreement between the Government of Burundi and the FNL.

2. The Burundian delegation cautioned that while the FNL
is largely concentrated in Burundi, certain elements may be
in surrounding countries, notably DRC. Member states agreed
to work bilaterally and through the Tripartite Plus mechanism
to collaborate to undercut any FNL remaining outside the
peace process and to pressure them to return to Burundi.


Regional Security Cooperation


1. The group endorsed MONUC's enlargement and agreed that
MONUC's mandate should be strengthened to support the
bilateral and Tripartite Plus engagement in disarming the
negative forces in the DRC.

2. Member states support the establishment of a Tripartite
Plus working group or similar organization to consider
security and economic measures aimed at curbing the negative
forces and other illegal networks from their ability to
finance their violent activities. These measures may include
eliminating their illegal domination of mines and natural
resources; stopping illegal taxation; stopping the illegal
appointment of local leadership and customs checkpoints; and
control of population centers and other criminal activities
like rape, murder, extortion and looting. This process will
include encouraging legal economic activity.

Joint Planning Cell


1. Uganda delegation called on member states to revive the
joint planning cell and to explore the possibilities for
funding.

Legal Experts Group


1. The Ugandan Chair of the Legal Experts Group briefed on
the June 2008 meeting in Entebbe.

2. Member states agreed to consult with their Ministers of
Justice on the findings of the report and hold another
meeting in Burundi before the next Tripartite Plus
Ministerial.

Increasing Effectiveness of Tripartite Plus


1. The Uganda Delegation proposed adding a heads of state
summit to increase effectiveness of Tripartite Plus; the
Burundi delegation concurred.

2. The Rwanda Delegation pointed out that the Tripartite
Plus process was originally envisioned as a short-term
measure and suggested that it might be integrated into other
groups.

CEPGL Observer Status


1. Members agreed that CEPGL should be accorded observer
status.


Signed in Kigali on December 10, 2008,

Excellency Antoinette Batumubwire
Minister of External Relations
Republic of Burundi

Excellency Okello Oryem,
Minister of State for Foreign Affairs/International
Cooperation
Republic of Uganda

Excellency Rosemary Museminali
Minister of Foreign Affairs and Cooperation
Republic of Rwanda

Excellency Alexis Thambwe Mwamba,
Minister of Foreign Affairs
Democratic Republic of the Congo

End Text.

Begin Text:

Final Communique, Tripartite Plus Joint Commission, Kigali,
Rwanda, December 10, 2008

The Tripartite Plus Joint Commission met in Kigali, Rwanda on
December 10, 2008 to review progress in eliminating the
security threat posed to the Great Lakes region by continuing
activity of illegal armed groups in the eastern Congo. The
Foreign Ministers of member states - the Republic of Burundi,
the Democratic Republic of the Congo (DRC),the Republic of
Rwanda, and the Republic of Uganda - regretted the recent
escalation of violence in eastern Congo and the resulting
humanitarian crisis. They welcomed the renewed dialogue,
changing dynamic, and positive momentum between the
Governments of the DRC and Rwanda and urged the armed groups
to take steps urgently to end the violence, lay down their
arms, and reintegrate or repatriate, as appropriate. They
welcomed the appointments of and the work of President
Obasanjo and President Mkapa as Special Envoys to the eastern
DRC and pledged to cooperate with them to realize the common
goal of peace in the region. The European Union, the
African Union, Union Nat
ions Mission to the Congo (MONUC),and the International
Conference on the Great Lakes Region (ICGLR) attended the
meeting as observers.

The Ministers of the Member States of the Joint Commission:

Urged all parties to cooperate with the International
Facilitators President Obasanjo and President Mkapa in
seeking a peaceful solution through political means to
resolve conflict in eastern Congo;
Endorsed the December 5 Joint Communiqu between the
Governments of the DRC and Rwanda adopting a common military
strategy to end the FDLR/Ex-FAR/Interahamwe threat and a
commitment from the Government of the DRC to re-establish
diplomatic relations with Rwanda, Burundi, and Uganda during
the first quarter of 2009;
Endorsed direct talks between the Government of the DRC
and CNDP under the Amani Program and called on all parties to
the Goma Process to abide by the ceasefire, establish zones
of separation; and begin disarmament, demobilization and
reintegration;
Endorsed MONUC's enlargement and said that MONUC's
mandate should be strengthened to support the bilateral and
Tripartite Plus engagement in disarming the negative forces
in the DRC;
Called for urgent implementation of UNSCR 1804 (2008)
authorizing travel and financial sanctions on FDLR leaders
and urged quick and full implementation of all its
provisions by all concerned;
Welcomed the December 4 agreement advancing the peace
process between the Government of Burundi and the FNL and
urged the region and the international community to support
the deadlines for implementation;
Noted that the LRA had failed to sign the final peace
agreement with the Ugandan government and called for
increased diplomatic and military pressure to be exerted;
Agreed to strengthen the joint planning process;
Called for the UN Security Council to pass a resolution
imposing travel and financial sanctions on leaders of the LRA
and ADF/NALU, similar to UNSCR 1804 (2008) on the FDLR;
Supported the establishment of a Tripartite Plus
working group or similar organization to consider security
and economic measures aimed at curbing the negative forces
and other illegal networks from their ability to finance
their violent activities. These measures may include
eliminating their illegal domination of mines and natural
resources; stopping illegal taxation; stopping the illegal
appointment of local leadership and customs checkpoints; and
control of population centers and other criminal activities
like rape, murder, extortion and looting. This process will
include encouraging legal economic activity.
Welcomed the regional economic group the Economic
Community of Great Lakes Nations (CEPGL) as an observer to
the Tripartite Plus Joint Commission.

The Joint Commission Ministers decided to meet again in the
DRC to assess progress on agreed actions.

Kigali, Rwanda
December 10, 2008

End Text.






SYMINGTON