USAU: ASSISTANT SECRETARY CARSON'S CALL ON AU

C O N F I D E N T I A L SECTION 01 OF 03 ADDIS ABABA 001607

SIPDIS

STATE FOR AF/FO, AF/RSA, AND AF/EPS

E.O. 12958: DECL: 07/07/2019
TAGS: EAGR ECON PGOV PREL AU
SUBJECT: USAU: ASSISTANT SECRETARY CARSON'S CALL ON AU
DEPUTY CHAIRPERSON MWENCHA

Classified By: AMBASSADOR DONALD YAMAMOTO, REASONS 1.4 (B) AND (D)


1. (U) Summary: After meeting African Union Commission
Chairperson Jean Ping on the margins of the AU Summit in
Sirte several days earlier (SEPTEL),A/S Carson called on
Deputy Chairperson Erastus Mwencha in Addis Ababa on July 6.
Their discussion covered a range of issues, including
structural changes in the African Union, Somalia, Sudan,
Mauritania, and development issues and initiatives. End
Summary.


2. (SBU) Deputy Chairperson Mwencha opened by asking A/S
Carson about his trip to Nairobi in the wake of the AU Summit
in Libya, specifically inquiring about the implementation of
the Kofi Annan Agreement. A/S Carson said there are three
legal options under consideration for addressing Kenya's
post-election violence. A/S Carson stated that the courses
of action include conventional pursuit via the International
Criminal Court (ICC),the establishment of a Special Tribunal
for Kenya, or a domestic tribunal. Contrary to previous
indications that a decision would be taken by August, A/S
Carson reported that Kofi Annan and Special Prosecutor Ocampo
may have now decided to postpone a decision for 13 months.

On the Future of the African Union
--------------


3. (C) Responding to A/S Carson's request for a read-out on
the recently concluded AU Summit in Sirte, Mwencha stated
that the major outcome was the decision to transform the AU
Commission (AUC) to the African Union Authority (SEPTEL).
While Qadhafi's underlying objective of a United States of
Africa can remain a goal, Mwencha suggested that the AUC
would be guided by more practical motives. Mwencha said that
having an AU Authority would allow Africa to speak with one
voice in international fora, particularly on matters of
foreign policy and security matters.


4. (C) Asked if the African Union Authority might reduce
member nations' sovereignty in certain areas, Mwencha said
the house was divided on how much executive power would be
concentrated in the Authority and indicated that January's AU
Summit in Addis would fine tune some of these contentious
issues on mandate and the limits of power. Regardless of the
decision in Sirte, Mwencha noted that implementation is
contingent on ratification by all member states. Just
drafting the instruments of ratification will likely take the
AUC six months before being submitted for consideration to
member nation legislative bodies. (Note: This effectively
means that progress on this issue will take place after
Qadhafi's term as chair of the AU has expired. End note.)


5. (C) There was also discussion of the creation of a defense
portfolio, separate from that of peace and security. Mwencha
indicated that this led to a spirited debate, with some
recommending that defense be rolled into the peace and
security portfolio, and others suggesting that this was too
powerful a portfolio for any one elected official. Members
also discussed the AU's budget, particularly with regard to
peace operations which are funded almost exclusively by
bilateral partners. Under review is the expansion of the
AU's revenue collection to reduce reliance on foreign
governments, including customs duties from member nations and
collaboration with non-state actors.


6. (SBU) Another hotly debated issue was the integration of
New Partnership for African Development (NEPAD) into the AU.
Mwencha suggested that on one level the integration of NEPAD
is complete, given that NEPAD's Chief Executive is already an
employee of the AUC and reports to the Commission. On
another level, however, the debate over whether NEPAD should
be codified as an organ of the AU remains open.

Somalia
--------------


7. (C) Mwencha reported that Somalia featured prominently in
the proceedings, and that there was heated debate on
Eritrea's destabilizing role. Over Qadhafi's objection, the
Assembly accepted the recommendation of the Peace and
Security Council for sanctions on Asmara.


8. (C) A/S Carson expressed satisfaction with IGAD's

ADDIS ABAB 00001607 002 OF 003


resolution and reported that he had met with League of Arab
States Secretary General Amr Musa on the margins of the
Summit in Sirte (SEPTEL). Mwencha agreed with Carson's
characterization that Somalia is extraordinarily critical and
poses a threat to the entire region. Somali refugees are
overwhelming their neighbors, unregulated merchandise
entering Somali ports is undermining regional economies,
illegal weapons and munitions are fueling crime and
insurgency, and Somalia's internal conflict has now become a
proxy battleground for Eritrea and Ethiopia.


9. (C) Summit participants discussed expanded rules of
engagement (ROE) for AMISOM, the need for additional troops,
and cutting al-Shabaab's supply lines by blockading the port
of Kismayo. Mwencha also reported that the Assembly
validated the Djibouti Process, rejecting Eritrea's position
that the Transitional Federal Government is flawed and its
request to scrap Djibouti and start over.


10. (C) A/S Carson reminded Mwencha that there would likely
be at least one UNSC meeting on Somalia this month addressing
expansion of the AMISOM mandate and the possibility that
neighboring countries (except Ethiopia and Eritrea) might
contribute troops to AMISOM. The Council may also consider a
naval blockade of Kismayo and a no-fly zone, however this
mandate would apply to the AU and IGAD but allow for
assistance from other like-minded UN member nations. Carson
stated that the AUC's position would be taken into account as
the USG formulates its policy in advance of the UNSC
meetings. Mwencha tasked his senior aides to respond through
USAU to A/S Carson's request. The Somalia issue was
discussed in several of Carson's other bilateral meetings in
Sirte (SEPTELs).

Bashir and the ICC
--------------


11. (C) Mwencha claimed that AU member nations are not
against the ICC, but are concerned about the court's
processes and the timing of the indictment against Sudanese
President Bashir. Former President Mbeki's ongoing political
initiative, African peacekeepers deployed in Darfur, and the
critical juncture for the Comprehensive Peace Agreement all
argue for postponement of the indictment, said Mwencha,
echoing the familiar refrain of many USAU interlocutors to
not sacrifice peace for justice. Mwencha reiterated that the
AU's position is not to condone impunity and revealed that
the Assembly had rebuked Bashir in closed session for not
doing enough to stabilize Darfur. (Note: A few members
called for Africa's total rejection of the ICC, but did not
carry the day. End note.)

On Mauritania's Return to the Fold
--------------


12. (C) A/S Carson questioned whether the AU's decision to
allow Mauritania to take its seat at the AU was premature and
might set a bad precedent for other nations whose processes
for the return to democracy were incomplete (e.g. Madagascar
and Zimbabwe). Mwencha reported that while there had been
spirited debate in Sirte, the AU ultimately decided that its
prerequisite of returning Mauritania to constitutional order
had been met, and that it would be inappropriate to impose
new conditions on the junta. That said, Mwencha indicated
that the AU is prepared to resume sanctions should
Mauritania's elections not be free and fair.

Food Security, Climate Change, and Development Issues
-------------- --------------


13. (SBU) Mwencha opined that Africa must adapt its food
production techniques or remain dependent on food aid. A/S
Carson informed the Deputy Chairperson that soon the Obama
Administration will announce a major food security
initiative, agreeing that agriculture must be a driver for
sustainable development. Mwencha expressed appreciation for
food security initiatives begun under the Bush Administration
and satisfaction that they would be improved and expanded.
He recommended that the Comprehensive Africa Agriculture
Development Program (CAADP) would be a useful vehicle for the
proposed USG agricultural initiatives.


14. (SBU) On genetically-modified organisms, Mwencha lamented

ADDIS ABAB 00001607 003 OF 003


that Africa is caught in the crossfire in a trade war between
the United States and Europe.


15. (SBU) On climate change, Mwencha indicated that the AU is
endeavoring for a common position in advance of the climate
change summit in Copenhagen in December and is anxious to
know the USG position.


16. (SBU) Mwencha expressed hope that A/S Carson's commitment
to strengthening regional organizations would include
transformation of the Africa Growth and Opportunity Act
(AGOA). Per Mwencha, AGOA should not be a "unilateral"
initiative, but rather expanded so that regional economic
communities can also participate and benefit. He also
suggested that AGOA be codified, saying that its lack of
permanence means that it is not as investor-friendly,
predictable, or transparent as it should be. Mwencha also
put in a plug for increased direct transportation links from
Africa to the United States.


17. (SBU) Later in the conversation Mwencha pointed out that
USG activities in Africa tend to be bilateral, specifically
mentioning the Millennium Challenge Account (MCA). He
advocated that MCA core activities should also be opened to
regional communities.

Extraordinary Summit on Peace and Security
--------------


18. (SBU) While the next scheduled summit will be in Addis in
January 2010, Qadhafi reportedly prevailed on the Assembly to
hold an extraordinary meeting on peace and security. This
extraordinary summit will be held in Libya on the eve of the
40th Anniversary of the Revolution, or September 8.
(Comment: This is clearly another clumsy attempt by Qadhafi
to impose himself as the King of Kings, showcase Sirte as the
capital of a future United States of Africa, and coopt fellow
heads of state in his national day celebrations. End
comment.)

Counternarcotics Collaboration with AFRICOM
--------------


19. (SBU) Mwencha also mentioned the growing scourge of
narcotics, particularly the use of West Africa as a
transshipment point and its toxic effect on governments, and
added that this phenomenon could expand to other regions of
Africa. He appealed to United States Africa Command
(AFRICOM) for collaboration in counternarcotics.


20. (U) A/S Carson has approved this cable.
YAMAMOTO