MELES: ETHIOPIA FOLLOWING DIFFERENT "DEMOCRATIC"

S E C R E T SECTION 01 OF 03 ADDIS ABABA 001770

SIPDIS

E.O. 12958: DECL: 07/25/2019
TAGS: PREL PGOV KDEM ET
SUBJECT: MELES: ETHIOPIA FOLLOWING DIFFERENT "DEMOCRATIC"
PARADIGM

REF: A. ADDIS 1347

B. ADDIS 1587

C. 2008 ADDIS 1154

Classified By: Ambassador Donald Yamamoto for reasons 1.4 (b) and (d).

SUMMARY
--------------


1. (S) Prime Minister Meles Zenawi told Ambassador Yamamoto
on July 23 that Ethiopia is pursuing a "democratic" paradigm
fundamentally different from that accepted by the United
States. Meles stated that he rejects President Obama's
assertion -- as posed in the President's July 11 speech in
Ghana -- that "development depends on good governance" and
democracy. Rather, Meles argued for economic
performance-based criteria for assistance, as he asserted at
the G-20 summit in April. Meles argued that history does not
support this assertion and that this "Western paradigm" of
democracy and development cannot be imported from abroad and
applied to other countries. Meles argued that the United
States' "old paradigm" is "wrong and closes off the emergence
of organic democracy in Africa." The Prime Minister asserted
that the United States' approach to development assistance
through non-governmental organizations (NGOs) simply creates
"another network of patronage" that prevents doing away with
patronage in Africa. The Ambassador emphasized the United
States' concern about Ethiopia's passage of restrictive laws
(including those regarding civil society, the press, the
financial services sector, antiterrorism, and political party
registration) over the past two years. Meles responded that
while the West may not appreciate these laws, they
fundamentally expand possibilities for the people of Ethiopia
and are not in conflict with Ethiopia's approach to
democracy. The Prime Minister argued that the United States
(and international community) must acknowledge that Ethiopia
is pursuing a "rival paradigm" regarding democracy and
development and the differences with the western paradigm are
"fundamental, not technical." This fundamental schism
between our "rival paradigms" further highlights the need for
senior bilateral dialogue between the U.S. and Ethiopia as
Embassy Addis has advocated (Ref. A). The Prime Minister's
comments should serve as a foundation around which such a
dialogue should be built and should inform how the United
States engages Ethiopia in the future. End Summary.

SETTING THE STAGE FOR SENIOR BILATERAL DIALOGUE
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2. (S) In his final call on Prime Minister Meles as
Ambassador to Ethiopia, Ambassador Yamamoto noted the United
States' interest in holding senior, interagency dialogue with
Ethiopian officials this Fall. The Ambassador emphasized
that the existing tensions between our two countries are
areas for discussion, but do not define our relationship.
The Ambassador highlighted President Obama's comments in
Ghana: Africa needs strong institutions, not strong leaders.
The Ambassador suggested that senior bilateral discussions
should focus on the nature and form of U.S. foreign
assistance to Ethiopia, political stability in Ethiopia, and
political space in Ethiopia -- particularly in light of a
series of concerning laws passed by the Ethiopian Government
(GoE) since 2005. The Ambassador noted that it will be
important for the U.S. leaders to hear the philosophy behind
Ethiopia's pursuit of these laws and whether they build or
detract from strong institutions. He noted that if these
laws, when taken together, close political space, it will be
an issue.

THE WEST CANNOT IMPOSE DEMOCRACY ON OTHER COUNTRIES
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3. (S) Prime Minister Meles responded that he agreed with
President Obama's statement that Africa needs strong
institutions, but disagreed with the president's argument
that "development depends on good governance" and democracy.
Meles argued that there is "no proof that democracy and/or
good governance are either necessary or sufficient for
development." He argued that "democracy and good governance
cannot be imported" because such an effort would be "wrong"
and would "close off the emergence of organic democracy in
Africa." The Prime Minister argued that the United States'
approach to development assistance through non-governmental
organizations (NGOs) is, in fact, attempting to impose a

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certain form of democracy on other countries and simply
creates "another network of patronage." By doing so, Meles
argued that the United States' approach actually "prevents
doing away with patronage in Africa and impedes democratic
progress." Meles continued to argue comments he made at the
G-20 summit in London on behalf of the African Union: that
economic performance-based must be the criteria for
assistance and is a better measure of development.

ETHIOPIA HAS CHOSEN A "RIVAL DEMOCRATIC PARADIGM"
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4. (S) Taking up the issue of laws recently passed by the
GoE, Meles argued that "none of these laws restrict people's
rights in any way," but rather that they actually "expand
possibilities for the Ethiopian people." While acknowledging
that provisions in these laws which western and donor
countries perceive as restrictive are counter to, and in
conflict with, the "old paradigm" of democracy, the Prime
Minister stressed that they are not in conflict with
democracy in Ethiopia. "Our approach is unified, not
piecemeal, and these laws are consistent with our approach,"
the Prime Minister argued. Meles specifically stressed that
the differences between these paradigms are "fundamental, not
technical." As such, "it will not help if we address each
individual issue (in bilateral discussions);" Meles said, "we
must address our rival paradigms. Where we agree, we will
continue. Where we disagree, it is fine, as long as (the
disagreement) does not threaten (Ethiopia's) strategic
interests." The Prime Minister went on to note that he
"cannot imagine any action (by the GoE) that is not
consistent with U.S. strategic interests." Meles went on to
argue that bilateral dialogue should "leave out the minute
policy issues" and stressed that we must discuss the
fundamentals. "While you may not agree with us," he
stressed, "you will understand where we are coming from, and
vice versa."


5. (S) The Prime Minister noted that Ethiopia wants "a new
paradigm in Washington regarding development" but lamented
that the current approach is "well-entrenched." "U.S.
assistance -- despite its many failures -- has delivered some
help," Meles said, "but we know it can do much better." The
Ambassador confirmed that Ethiopia will continue to be a
focal point for many U.S. development initiatives, but
stressed that the United States wants to move beyond the
persistent delivery of food aid to Ethiopia.

LINGERING FRICTIONS
--------------


6. (S) Meles stressed President Obama's point that democracy
is a process before venting about U.S. criticism of Ethiopia.
"We do not accuse the U.S. of having a double standard, but
we have problems when you mix apples and oranges," Meles
noted. "The U.S. just does not acknowledge that we have made
a different choice. We were created equal, so treat us
equal. Do not lump us in league with Sudan or North Korea."
The Prime Minister noted that he understands that "some in
Congress do not like us, but the Administration also has not
countered that. Resolutions (critical of Ethiopia) pass
Congress because the Administration does not push back."
Meles argued that Ethiopia is in brackets with Sudan because
of "unfair criteria." "If you used the same criteria, you
would focus on others who are far below us, but they are
ignored by Congress." Meles argued that President Obama says
that democracy is a choice, but if it is imposed, that is a
contradiction. "You should hold us to a standard consistent
with the approach, and peer group, that we choose."

WE WILL NOT CHANGE OUR LAWS
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7. (S) The Ambassador referenced his conversation with Meles
Advisor Berhanu Adello, in which Adello suggested that the
U.S. should relax its concerns over seemingly-restrictive
provisions in recently adopted laws, as the implementation of
those laws remains to be seen (Ref. B). Meles quickly
contradicted his advisor with "regardless of their
implementation, that does not change the content of those
laws. Restrictions on foreign funding to NGOs is not going
to change. Those with hesitations about the text of those
laws will have problems with their implementation. The bulk
of the criticism (about these laws) is about their substance

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and that is not going to change."

COMMENT
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8. (S) In Ambassador Yamamoto's final call on Prime Minister
Meles as Ambassador to Ethiopia, Meles finally acknowledged
verbally Ethiopia's fundamental difference with western
approaches to democracy and development. The Prime
Minister's frank statements confirm Embassy Addis Ababa's
consistent argument over the past two years: Ethiopia's
political strategy is fundamentally different from any sense
of "democracy" as commonly understood in the United States or
western countries. Despite the second word in the GoE's
prevailing ideology, "Revolutionary Democracy" (Ref. C)
reflects an approach to governance and development that,
while arguably FOR the people, is neither OF, or BY, the
people. Instead, Ethiopia is clearly (through its actions)
and intentionally (as confirmed by the Prime Minister)
pursuing a top-down approach through which political,
economic, and even social activity must be either directed or
condoned by the government (and ruling party). That which is
not will be suppressed. As we argue in Ref. A, this trend
fundamentally has eroded stability -- and, hence, U.S.
interests -- in Ethiopia. While we accept the Prime
Minister's (and President Obama's) argument that we should
not impose any system of governance on Ethiopia, it is
critical for us to understand the deep differences between
our countries and recalibrate our engagement to protect, and
better advance, U.S. interests in this fragile region. End
Comment.
YAMAMOTO