MINISTER OF FINANCE RESIGNS IN CORRUPTION SCANDAL

C O N F I D E N T I A L SECTION 01 OF 04 NAIROBI 001692 SIPDIS LONDON AND PARIS FOR AFRICA WATCHERS TREASURY FOR OFFICE OF AFRICAN NATIONS NICHOLAS SKIBIAK COMMERCE FOR BECKY ERKUL STATE PLEASE PASS USTR WILLIAM JACKSON STATE PASS USAID/EA E.O. 12958: DECL: 07/07/2018 TAGS: PREL PGOV KDEM EFIN KCOR KE LY SUBJECT: MINISTER OF FINANCE RESIGNS IN CORRUPTION SCANDAL REF: NAIROBI 1373 Classified By: Ambassador Michael E. Ranneberger for reasons 1.4 (b and d) -------------- SUMMARY -------------- ¶1. (C) Minister of Finance Amos Kimunya resigned on July 8, capping a week of intense speculation about his political future stemming from his role in the cut-rate sale of the Grand Regency Hotel in Nairobi. The hotel, built with proceeds from the 1990s Goldenberg corruption scandal, had become state property after being surrendered by Goldenberg architect Kamlesh Pattni (allegedly in exchange for amnesty for all Goldenberg-related crimes). It was then sold with Kimunya's approval and without a legally required tender at a knock-down price to a group of investors with Libyan connections. Kimunya continues to protest his innocence, but his forced resignation is a good start for the Grand Coalition government's fight against corruption. Ministers from both the Orange Democratic Movement (ODM) and Kimunya's Party of National Unity (PNU) had called publicly for Kimunya's resignation. Prime Minister Raila Odinga emerges with a strengthened role -- an investigative team appointed by Odinga had recommended Kimunya's resignation. Ultimately, Odinga was able to convince President Kibaki that Kimunya's position was untenable, further evidence of coordination and collaboration between Odinga and Kibaki. Parliament also showed it is willing to act as a check on the government: a bi-partisan majority of Parliament censured Kimunya over his role in the deal. This action marks only the second time in Kenya's history that a sitting minister has been censured. While the government spokesman said Kimunya's resignation was "temporary" to allow a full investigation of the deal, it remains to be seen whether Kimunya -- who has close ties to Kibaki and his family -- will return. We will press for a full investigation and accountability for those involved. The positions of other high-level figures, including the Governor of the Central Bank of Kenya and the Chief of the National Security and Intelligence agency, may be jeopardized for their roles in the deal when full details are uncovered. In the media and privately with Kenyan government officials we have made clear that the Grand Regency issue had to be dealt with in a transparent and accountable manner. The way the government has acted will enhance its credibility with the Kenyan people. End Summary. -------------- Grand Corruption Begets Current Scandal -------------- ¶2. (U) The Grand Regency was built with proceeds from the 1990s Goldenberg corruption scandal in which approximately USD 1 billion of Kenya budget funds were used to subsidize phantom gold and diamond exports. The Central Bank of Kenya (CBK) had pursued a long-running court case to recover the hotel in an attempt to partially recover assets lost in the scandal. The hotel only became state property in April 2008 after Goldenberg architect Kamlesh Pattni surrendered it to the CBK, allegedly in exchange for a grant of amnesty from the Kenya Anti-Corruption Commission for all Goldenberg-related crimes. (Note: This grant of amnesty has been disavowed by the Attorney General's office. End Note.) Many of the details of the deal are yet to be disclosed, but the broad outline of the deal follows. ¶3. (U) On May 25, 2008, Kimunya, in conjunction with CBK Governor N'dungu and acting on behalf of the government, sold the property for Ksh 2.9 billion (approx. USD 45 million). The sale was made without a public tender, as is required by Kenyan law, and, at the time the deal was made, Kimunya denied that the hotel had been sold. The hotel needs significant investment for refurbishment, but occupies a piece of prime real estate in downtown Nairobi. Most observers considered the sale price of Ksh 2.9 billion well NAIROBI 00001692 002 OF 004 below the estimated market value of Ksh 7 billion (USD 110 million). The suspicion is that the knock-down price reflects only the money entering the Treasury and that side payments have been made to politically connected figures to ensure the sale went through. Amid weeks of speculation about the fate of the hotel, the price at which it should be sold, and whether the Libyan government was the intended purchaser, Minister of Lands James Orengo (ODM) on June 26 released documents that showed that the hotel had already been transferred to new owners, the Libya Arab-Africa Investment Corporation. The deal to sell the hotel allegedly was struck between President Kibaki and Libyan President Muammar Gaddafi during Kibaki's state visit in summer 2007. These revelations caused a firestorm, especially within Parliament, with and increasing crescendo of calls for Kimunya to resign. -------------- The Storm Gathers -------------- ¶4. (U) A cross-section of ODM and PNU ministers condemned the deal and called for Kimunya to resign and an investigation to take place. Asserting his role as the head of a Cabinet subcommittee on Finance, Prime Minister Raila Odinga appointed a five-member team to undertake a preliminary investigation of the deal. The team consisted of Minister of Lands Orengo, the Attorney General Amos Wako, Minister of Nairobi Metropolitan Development Mutula Kilonzo, Director of the Kenya Anti-Corruption Commission, Aaron Ringera, and Secretary to the PM, Caroli Omondi. After one day of deliberation, the team made a preliminary conclusion that the deal violated laws related to the disposal of state assets. It recommended that Kimunya, CBK Governor N'dungu, and the National Security and Intelligence Service (NSIS) Chief Michael Gichangi resign pending full investigation of their roles in the sale. (Note: Gichangi is alleged to have helped broker the deal and is accused of pressuring officials at the Ministry of Lands to transfer the property. End Note). Based on these conclusions, Odinga was prepared to recommend Kimunya be sacked at a Cabinet meeting scheduled for July 3. However, President Kibaki canceled the meeting. ¶5. (C) Parliament also entered the debate. Ikolomani MP Bonny Khalwale (New Ford Kenya) tabled a motion of censure and no-confidence against Kimunya on July 2. Kimunya defended the deal before a packed house, claiming that the sale was made with full knowledge of relevant institutions. He also claimed that the sale price represented fair value for the Kenyan state, pointing to three recent valuations of the property ranging from Ksh 1.6 to 2.15 billion. Several MPs told poloff that Kimunya handled his testimony badly and came across as arrogant. Tellingly, few MPs from Kimunya's Central Province stood in his defense. In the end, the anti-Kimunya sentiment was so strong that Parliament approved the motion of censure by acclamation and did not require a roll-call vote. While not binding on the President, Parliament's censure was a serious blow to Kimunya. Meanwhile, a large number of MPs increased the pressure, stating that the Parliament would boycott all points raised by the Ministry of Finance, including deliberations on the pending budget, while Kimunya remained Finance Minister. -------------- Bowing to the Inevitable -------------- ¶6. (C) Initially Kimunya remained defiant, confident that he could weather the storm, in part because of his relationship with President Kibaki. (Note: It is widely known in political circles that Kimunya is romantically involved with one of President Kibaki's daughters. End Note.) Over a weekend of intense activity and lobbying, Kimunya organized a rally in his home district at which he stated that he would die before resigning and accused Minister of Lands James Orengo of having solicited a bribe to allow the sale to go through. Only Deputy Prime Minister/Trade Minister Uhuru NAIROBI 00001692 003 OF 004 Kenyatta rose to Kimunya's defense, stating tepidly that a full consideration of the facts was necessary before Kimunya should be forced to resign. PNU Parliamentary Whip George Thuo told poloff that he organized a meetng of Central Province MPs at which no one was prepared to publicly defend Kimunya. Thuo stated that he informed the President of this on Saturday. Still, Kibaki was not prepared to demand Kimunya's resignation. ¶7. (C) On July 7, Odinga briefed President Kibaki and advised Kibaki that Kimunya had to go. This was based on the conclusions of the investigative team, but also a sober assessment that the government would be hamstrung in getting business done with Parliament if Kimunya was retained. On July 8, Kibaki told Kimunya that he needed to respect the will of Parliament and resign. Kimunya then tendered his resignation. While the government spokesman termed the move "temporary" to make way for a full investigation of the sale, Kimunya has lost the support of even his own PNU colleagues and will find it difficult to come back. Even if Kimunya is cleared of wrongdoing, Kimunya has lost his privilege to raise points of business at the Parliament for six months due to his censure. -------------- The Way Forward -------------- ¶8. (U) It is unclear whether President Kibaki will appoint a team to fully investigate the matter, as the investigative team appointed by PM Odinga reached only preliminary findings. However, a parliamentary committee, headed by former Finance Minister Chris Okemo, is investigating the sale. Speaker Kenneth Marende has asked that the committee conclude its work in two weeks. In the short term, Assistant Minister Oburu Odinga (ODM and brother to the PM) will conduct parliamentary business on behalf of the ministry. However, Kibaki will want to appoint a PNU Minister to maintain control of this important ministry. We hear that a replacement might be named by the end of this week. ¶9. (C) Kibaki has two choices on how to proceed. He can appoint a permanent replacement for Kimunya or name a caretaker minister from among the current Cabinet. Kibaki may opt for a caretaker minister in the hope that Kimunya could be reinstated if cleared of wrongdoing. However, a caretaker minister would have limited powers; he or she could only make routine appointments and move bills before Parliament and could not sign agreements committing Kenya to assume any debt, whether raised on local or international sources. Whatever option Kibaki chooses, current Assistant Minister of Planning Peter Kenneth is a strong candidate to succeed Kimunya. He is regarded as competent and is familiar with the ministry from his time as Assistant Minister of Finance from 2005-2007. Kenneth told poloff that he is flattered by this speculation, and that he would seriously consider any offer, but that he is happy in his current position of Assistant Minister of National Planning. Another possible candidate might be PNU Parliamentary Whip George Thuo, who has a finance background, but elevating him might prove disruptive to the PNU caucus in Parliament. -------------- COMMENT -------------- ¶10. (C) Both Kibaki and Odinga have stated clearly that there would be zero tolerance for corruption in the Grand Coalition, so Kimunya's forced resignation is positive step. PM Odinga certainly strengthened his hand within the government; his appointment of investigative team which recommended Kimunya's resignation gave added weight to his position that Kimunya had to go. Odinga, too, was able to convince President Kibaki that, despite Kimunya's close ties to the Kibaki family, Kimunya's position was untenable. This is further evidence of Kibaki and Odinga working collaboratively to resolve a difficult and potentially NAIROBI 00001692 004 OF 004 divisive issues. Parliament also showed it is willing to act as a check on the government, although Kimunya was deeply unpopular in Parliament both for his perceived arrogance and his recent attempt to tax MPs allowances. Kimunya, despite his flaws, was considered very competent and a steady hand in this demanding docket. His successor, whoever he or she is, will face serious challenges. The next minister will confront shortfalls of approximately USD 500 million to finance unanticipated post-election reconstruction costs and an additional USD 500 million to finance the costs of its enlarged cabinet. The Ambassador has written to both Kibaki and Odinga to welcome this decisive action and press for a thorough, prompt, and transparent investigation of the Grand Regency sale. End Comment. RANNEBERGER