SCENESETTER FOR D'S VISIT: A MATURING CAMBODIA?

UNCLAS SECTION 01 OF 03 PHNOM PENH 000735 SENSITIVE SIPDIS DEPT FOR D, EAP, AND EAP/MLS E.O. 12958: N/A TAGS: OVIP NEGROPONTE PREL PGOV ECON CB SUBJECT: SCENESETTER FOR D'S VISIT: A MATURING CAMBODIA? REFS: (A) PHNOM PENH 516; (B) STATE 77799; (C) 07 PHNOM PENH 1500; (D) 07 PHNOM PENH 1541 SENSITIVE BUT UNCLASSIFIED ¶1. (SBU) Summary: In his departure cable, "Seven Significant Failures", outgoing Ambassador Joseph Mussomeli framed the U.S.-Cambodia relationship as hovering on the brink of a transformation: better than it has ever been, but with clearly identifiable areas for improvement. In the weeks since that cable was drafted, two events give additional perspective to the question of where Cambodia is headed. Like the U.S.-Cambodian relationship, the July 27 National Assembly election was better than any previous--but still below international standards. Meanwhile, Cambodia's leadership is displaying a new maturity in its handling of an ongoing border dispute with Thailand. This maturity, so far, has been echoed in its muted response to opposition parties' election critiques. Your visit is the highest-level State visit here since Secretary Powell's participation in the 2003 ASEAN Regional Forum. It builds on A/S Hill's January 2006 trip, as well as DAS Marciel's January 2008 participation in the first U.S.-Cambodian dialogue. Your visit is an opportunity to reassure Cambodia's leaderships that we have favorably noted improvements. Simultaneously, we want to send the message that their recent election victory presents increased opportunities for the new government-and for U.S.-Cambodian relations--but also amplifies international expectations that Cambodia will move beyond its war-torn past and prioritize the development needs of its population. End Summary. THE RELATIONSHIP -------------- ¶2. (SBU) The U.S.-Cambodia relationship is better than it has ever been. We enjoy Cambodia's cooperation on counterterrorism efforts, law enforcement issues and POW/MIA matters. Our growing mil-mil relationship led to the holding of the first Bilateral Defense Dialogue August 26-28 (a proposal first raised when PACOM Admiral Keating visited last year.) The USS Mustin is expected to dock in Cambodia in early October. This will be the third ship visit in 16 months, after a 30-year hiatus. The ships, as well as medical, dental and engineering outreach, have been warmly received including in very remote parts of Cambodia. USG assistance to Cambodia, currently more than $61.6 million annually, is fueling cooperation on HIV/AIDS and avian influenza, health care for children and expectant mothers, cultural preservation, and humanitarian demining. Cambodia provides temporary haven and a processing site for Montagnard refugees, as well as another more politically sensitive refugee caseload. The Royal Government of Cambodia (RGC) has a good record of supporting U.S. positions in the UN, contributes deminers to the UN in southern Sudan, and recently began participating in the Global Peace Operations Initiative (GPOI). In a decision which significantly increases its multilateral military engagement, Cambodia has agreed to host the GPOI capstone exercise in 2010. As Cambodia's impressive economic growth continues, more U.S. businesses are exploring opportunities, although they still fall far behind investors from South Korea, China, and the region. THE ELECTION -------------- ¶3. (SBU) Cambodia's July 27 National Assembly election was the country's third parliamentary exercise following the 1993 poll conducted by the UN Transitional Administration (UNTAC) under the terms of the Paris Peace Agreement. The 1998 election was conducted in the aftermath of a short, violent CPP-led coup against coalition partner FUNCINPEC. It took more than a year to form a government after the next election, in 2003. The evaluation that this year's polling was the best yet could thus be framed by some as damning with faint praise. That said, a significant number of Cambodians participated in an election-day process that was conducted in a peaceful and open manner with professional conduct by most election staff. International observers, including 47 teams from the embassy, traveled freely around the country to observe pre-election campaigning and the election itself. Although some irregularities persist, they were relatively low in number and they do not appear to have affected the outcome or to have distorted the will of the Cambodian people. Representatives from five different parties have been elected to serve in the National Assembly. ¶4. (SBU) The Cambodian People's Party (CPP) invested massive resources to get out to voters in the provinces, capitalizing on their positions within government to convey a message that CPP delivers (infrastructure, schools, and roads). The 58 percent of the popular vote-translating to 90 seats in the 123-seat National Assembly-won by CPP is directly linked to this well-organized, well-financed, sustained effort. A divided and multitudinous opposition split the anti-CPP vote and quite probably confused voters (for example, two parties competed for Royalist sympathizers PHNOM PENH 00000735 002 OF 003 while four parties had Amcits in senior leadership roles). Post-election, four parties protested the results, but two-FUNCINPEC and the Norodohm Randariddh Party (NRP)-are now seeking a coalition with CPP. This leaves two parties as the serious opposition: the Sam Rainsy Party (SRP) which won 26 seats and the Human Rights Party (HRP) with three. They are threatening to boycott the September 24 opening of the National Assembly, but told us privately that they would join, if they could be sworn in by the King in a ceremony separate from CPP, FUNCINPEC and NRP. We have suggested to them that the more important thing on which to focus is the role(s) opposition parliamentarians can play in Assembly structures and committees, ensuring that their significant voter base is fairly represented. Among our medium-term goals will be further efforts to address election process shortfalls, strengthen the sense of parties' accountability to their voters, and support press freedoms and the right to demonstrate peacefully. PREAH VIHEAR -------------- ¶5. (SBU) The mid-July movement of Thai soldiers into disputed territory thrust the temple of Preah Vihear into the international spotlight. Just weeks before, the World Heritage Committee (WHC) had agreed to Cambodia's request to register the 9th century, cliffside temple as a site of outstanding universal value. As Ref B explains, the unanimous WHC decision was the result of a sustained and serious Cambodian lobbying effort. The fact that Cambodia had made (eventually thwarted) efforts to negotiate an MOU with Thailand also was perceived favorably by WHC members. Post continues to be concerned by the ongoing stalemate and presence of armed soldiers in and around a pagoda near the temple site. Equally worrying, two additional border temples at Ta Moan have become hotspots. But, we believe that the RGC's handling of its quest to register Preah Vihear temple (which was awarded to Cambodia by a 1962 ICJ decision),its dignified response following the registration, and its handling of the Thai incursion merit note, especially against the backdrop of a national election during which playing a bellicose card predictably would have rallied support to CPP. In a number of areas, we have noted more restrained and more open reactions from Cambodia's leaders, most notably Hun Sen. Whether it is allowing a demonstration (Ref C),engaging with critical NGOs such as Freedom House (Ref D),or accepting an FBI offer of assistance in a murder investigation, the RGC seems to be reacting more maturely. AREAS FOR IMPROVEMENT -------------- ¶6. (SBU) The U.S.'s harshest criticisms of Cambodia all spiral back to three things: weak systems - in many cases the fruit of the Khmer Rouge period; endemic corruption; and a sense that the wealthy or powerful can operate with impunity. These problems are the root of Cambodia's continued human rights problems, including those linked to unclear land title in a burgeoning real estate market. They still deter U.S. businesses, which worry about investing when regulatory frameworks are weak and informal networks abound. They slow our engagement with the military, who face accusations ranging from human rights abuses to illegal logging. And, while a concerted government effort has improved Cambodia's trafficking in persons standing, mixed messages based on individual judicial decisions make some pedophiles and other criminal elements believe Cambodia is safe territory for their pursuits. ¶7. (SBU) A still-outstanding question is whether the Khmer Rouge Tribunal can strengthen rule of law here. The U.S. is on the threshold of funding, and we hope that you may be able to announce an initial tranche during your visit. Administrative problems, directly linked to the corruption endemic in Cambodia, trouble the court and are a continued focus of donor and UN attention. But, the first case is set for trial soon and already Cambodian judges participating in the mixed tribunal seem to have acquired a greater comfort in enforcing politically unpopular positions-and to believe that they have the space to do so. The country as a whole is watching the Tribunal, and many believe that finally ending the impunity that Tuol Sleng chief Duch, Brother Number Two Nuon Chea and others enjoyed for nearly thirty years is the starting point to tackle these hardest of challenges. We are encouraged to move ahead for two reasons: first, the long-suffering people of Cambodia deserve the best-possible chance; second, all of the progress in the other areas described by this cable will stall, if we cannot-working with the government and people of Cambodia-address these three root challenges. ¶8. (SBU) Your meetings with Prime Minister Hun Sen and Foreign Minister Hor Namhong; discussions with opposition parties, economic leaders, and civil society; and briefings on the election and the Khmer Rouge Tribunal will provide key opportunities to note the areas of improvement described in this cable. While discussing how their recent election victory presents increased opportunities for the new government-and for U.S.-Cambodia relations, you can PHNOM PENH 00000735 003 OF 003 reinforce expectations that Cambodia will move beyond its war-torn past and prioritize the development needs of its population. Eight local newspapers have already run stories on your planned visit, and press and local interest is high. CAMPBELL