ETHIOPIAN FORMIN CALLS FOR SENIOR BILATERAL TALKS TO

UNCLAS SECTION 01 OF 02 ADDIS ABABA 000459

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: PREL EAID ET
SUBJECT: ETHIOPIAN FORMIN CALLS FOR SENIOR BILATERAL TALKS TO
CLARIFY U.S. POLICY TOWARD ETHIOPIA

REF: ADDIS 257

SUMMARY
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1. (SBU) Ethiopian Foreign Minister Seyoum Mesfin called in
Ambassador and USAID/Ethiopia Mission Director February 20 to
officially protest Congress' listing of Ethiopia in last year's
foreign operations appropriations bill (section 620) with 20 other
countries -- including Sudan, Zimbabwe and Iran -- for mandatory
submission of a special congressional notification (CN) before
assistance can be disbursed. Seyoum, reflecting the consensus view
of the ruling party and the government leadership, said the U.S. is
altering its view of Ethiopia as an important partner in Africa. He
expressed deep disappointment that Ethiopia would be lumped in a
category with Zimbabwe and Sudan as the only Sub-Saharan African
countries, not to mention Iran and Cuba, requiring such a special
notification. If the U.S. has altered its view of Ethiopia, the
Foreign Minister requested immediate senior level bilateral meetings
in Washington or in Addis.


2. (SBU) The Ambassador replied that the GoE was completely
misreading the Foreign Operations bill, and reminded Seyoum that the
bill was passed last July under the Bush Administration, which
Ethiopia's leadership viewed as more supportive of Ethiopia.
Further, Ethiopia is one of the largest recipients of U.S. foreign
assistance and the special CN requirement enforces what is already
the usual procedure for bilateral assistance for Ethiopia. The
Ambassador cautioned that the United States Government's new Africa
foreign policy team has not been named yet and that it will take
time before there can be senior bilateral meetings. Ambassador
highlighted that recent talks with the acting Assistant Secretary
(reftel) reflects the Administration's views. More important, the
Ambassador raised concerns that the U.S. has in general with
Ethiopia over human rights (especially the arrest of opposition
leader Birtukan Midekssa) and democratic governance issues which
will continue to be a focus for the Congress. The Foreign Minister
said he welcomed such discussions because it would be between two
good friends. But the listing of Ethiopia in the Foreign Operations
bill was a deep concern for Ethiopia. End Summary.

ETHIOPIA CALLS FOR SENIOR LEVEL BILATERAL DIALOGUE
-------------- --------------


3. (SBU) Foreign Minister Seyoum, accompanied by Chief of Staff
Mulugeta and Director General for Europe and the Americas Tesfaye
Yilma, called in Ambassador and USAID/Ethiopia Mission Director
Glenn Anders on February 20 to protest U.S. Congressional action,
calling it reflective of a changed attitude by the U.S. government
towards Ethiopia. The Foreign Minister cited the 2008 Foreign
Operations Appropriations Bill, section 620 in which 20 countries,
including Ethiopia, were designated for "special notification
requirements." This one paragraph in a long appropriations bill
requires the submission of a congressional notification prior to
disbursement of any assistance for Ethiopia. While Mexico, Serbia,
Pakistan are also listed, the Foreign Minister focused on Iran,
Cuba, and the African countries of Sudan and Zimbabwe to express
Ethiopia's "deep disappointment and unhappiness" with the
Congressional designation.


4. (SBU) Seyoum stated that Ethiopia felt it had a "special"
relationship with the U.S. on security and regional political
issues, and close cooperation on anti-poverty efforts. Zimbabwe and
Sudan are pariah states which oppose the U.S. while Ethiopia and the
U.S. have a close relationship. He called USAID a "great friend"
and questioned the change in attitude by the U.S. "The single
paragraph must reflect a new perspective by the U.S. towards
Ethiopia," Seyoum stated. Seyoum added that Ethiopia wants
"predictability" in the U.S. relationship. To clearly understand if
Ethiopia is important to the U.S. there should be consistency in
statements and policy. Finally, Seyoum said he welcomed senior
bilateral discussions either in Washington or in Addis Ababa and
urged that they be conducted soon.

MISREADING OF CONGRESSIONAL ACTION...
--------------


5. (SBU) USAID/Ethiopia Mission Director Anders noted that U.S.
assistance for Ethiopia has reached historic highs in the past year
with about one billion dollars in aid to Ethiopia, and that
development and humanitarian collaboration, particularly
relationships with counterpart ministries and new ministers, had
never been closer. The Director and Ambassador argued that the
section 620 language reflects only a brief paragraph in a very long

ADDIS ABAB 00000459 002 OF 002


appropriations bill. The Ambassador noted to Seyoum that the bill
was not a recent congressional action, but rather was taken last
summer when the previous U.S. Administration remained in office.
Further, senior level meetings may take time pending the selection
and Senate confirmation of the new Assistant Secretary.

...BUT, THERE ARE U.S. CONCERNS
--------------


6. (SBU) Ambassador noted deep concerns by Congress over human
rights and democracy issues in Ethiopia and emphasized that these
issues are of concern to the new Administration as well, noting the
recent visit by the acting Assistant Secretary who raised questions
on human rights and democratic governance. Seyoum said Ethiopia
welcomes such discussions because it would be between friends and
that it is, Ethiopia hopes, a mature relationship in which such
issues can be discussed. But the Foreign Minister returned to his
message that he and his government were disappointed in the change
in policy towards Ethiopia by the U.S.

COMMENT
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7. (SBU) The meeting was very brief and somber. Foreign Minister
Seyoum was clearly not willing to listen to explanations but to
transmit a specific problem. As reported previously based on the
Ambassador's private discussions with the Prime Minister and broader
Embassy reporting, the ruling EPRDF party and the leadership of the
GoE have concerns that the new U.S. Administration will bring a
changed policy position which stresses human rights and overlooks
security and regional stability, which the Ethiopians feel is the
basis of the U.S.-Ethiopian relationship.


8. (SBU) Acting Assistant Secretary Carter raised human rights
issues with Prime Minister Meles recently -- which reflects the
growing concerns in Congress as well as in the new Administration --
the treatment of the opposition, passage of restrictive laws,
narrowing of political space, and restrictions on NGOs dealing with
advancing democratic values. While the Foreign Minister argued that
he welcomed such discussions, the Prime Minister and other leaders
in both the ruling party and government have been defensive to
questions posed by the Ambassador and Embassy staff on democratic
and human rights issues. Post believes that senior bilateral talks
in Washington would be appropriate and necessary but we should also
expect that relations with Ethiopia will be challenging in the
coming year as we push the Ethiopian Government on political and
economic reforms and as we head into 2010 national elections. End
Comment.

YAMAMOTO