U.S.-FRANCE-EU DISCUSS SAHEL SECURITY ISSUES

UNCLAS SECTION 01 OF 05 PARIS 001339 SENSITIVE SIPDIS DEPT FOR AF, INL, AND S/CT LONDON AND LISBON FOR AFRICA WATCHERS DOD FOR AF:HUDDLESTON NSC FOR AF:GAVIN DEPT PLEASE PASS USAID FOR GAST E.O. 12958: N/A TAGS: PTER PREL PINR EAID EU UK MA NG MR NI AG FR SUBJECT: U.S.-FRANCE-EU DISCUSS SAHEL SECURITY ISSUES ¶1. (SBU) SUMMARY: U.S. government representatives met French, British, and European Union officials on September 10 in Paris to review efforts to address the security threat posed by terrorism in Africa's Sahel and Maghreb regions. There was broad agreement that the USG, France, and other third countries should identify areas of cooperation and mechanisms to coordinate and de-conflict efforts to improve multilateral and individual country capacity in the region to address immediate and long-term threats from al-Qaeda in the Islamic Maghreb (AQIM). The discussions focused on factors influencing the region's ability to address the AQIM threat, including the Sahel countries' lack of law enforcement and military capacity; the complexity of state relations with its nomadic populations, e.g. the Tuareg and Berbiche ethnic groups, the profitability of illicit trade and kidnapping networks; the need for Algeria to work more closely with its neighbors; the importance of better donor coordination; and undermining recruitment efforts that could expand the scope of radical Islam in West and Central Africa. Participants agreed on the need to meet in the future to exchange information regarding each other's efforts in region. END SUMMARY. ¶2. (SBU) Assistant Secretary of State for African Affairs Johnnie Carson led a high-level interagency delegation in discussions with a French delegation led by Under Secretary for Political Affairs (P)-equivalent Policy Director Jacques Audibert and Africa A/S-equivalent Stephane Gompertz. The U.S. and French delegations were joined by British and European Union counterparts for the afternoon session. The discussion began with an exchange of information on the current security and political situation in the Sahel, which Gompertz described as France's "main area of concern" in sub-Saharan Africa and was followed by exchanges on a wide range of critical factors related to the region's terrorist threat. Martin Julliard, France's Head of Transnational Threats Section, Strategic and Security Affairs Department at the MFA, said that AQIM's political agenda was not well understood and was evolving over time. He noted that AQIM is targeting westerners, but it was not clear whether it wanted to challenge the legitimacy of governments or even the states. Participants noted that while AQIM's northern group remains concentrated on Algeria, elements of the southern group have shifted away from acting primarily as logistical support for northern operations and have increased planning and operations in the Sahel. It was emphasized that the southern group remained linked with its northern leadership, but has made inroads in recruiting in the Sahel, particularly in Mauritania, and has increased the scope and sophistication of its operations in parts of the Sahel during the past year. USG and French participants considered whether there were opportunities to exploit apparent divisions within AQIM. Remi Marechaux, an Africa Advisor to President Sarkozy summed up the situation succinctly, "we feel we are losing the battle between improved development in these countries and the increasing security threats in the region." LACK OF CAPACITY -------------- ¶3. (SBU) There was broad agreement among the participants that the focus countries of the conference (Mauritania, Mali, and Niger) lack the resources to fully control their vast territories. In addition, lack of governmental capacity remains a serious hindrance in terms of military/security effectiveness and developmental progress. The EU chair noted that each country posed specific challenges for partners in addressing security threats: -- Mali, where in addition to capacity constraints, there are questions about the government's willingness to confront and engage AQIM militarily, despite clear indications that AQIM maintains a degree of impunity within its Northern Mali "sanctuaries." S/CT Coordinator Daniel Benjamin noted that Mali is perhaps becoming more helpful, but French speakers consistently referred to the Malian position as "ambiguous" and "enigmatic;" -- Mauritania, which may possess greater political will for taking-on AQIM, but political instability following the recent coup hampered efforts to support its CT efforts; and PARIS 00001339 002 OF 005 -- Niger, where recent un-democratic maneuvering by President Tandja makes it difficult to offer new assistance. NSC Senior Advisor Michelle Gavin underscored that our CT efforts cannot undercut our governance and democracy priorities in Africa. While remarking that President Tandja had already "won his gamble" to secure a third term and the French will focus their attention on pushing for credible elections, Gompertz stated that France did not have a clear strategy to balance its CT objectives with the urgency of promoting good governance and constitutional rule in the country. PROFITS FROM ILLICIT TRADE AND KIDNAPPING -------------- ¶4. (SBU) France's MOD Director of Strategic Affairs Pascal Texeira noted that AQIM is commonly understood to have only about 150 fighters in the Sahel, but it has significant financial resources for obtaining weapons and logistic support such as vehicles and radios from profitable illicit trafficking networks, including arms, people, drugs, and other contraband. Of even greater concern is AQIM's apparent success in securing large ransom sums for kidnapped westerners. When asked, U.K. FCO Director for Africa Adam Wood confirmed that following the January murder of U.K. hostage Edwin Dyer, his country would play a more active role in the region, and would certainly support an AU initiative at the UN to rally international opposition against ransom payments in cases of piracy and hostage-taking, which he believed was being spearheaded by Algeria. Participants had not yet seen a draft of the resolution. ¶5. (SBU) Developing a better understanding of Tuareg activities and motivations was seen as an important priority, especially since they develop ad-hoc agreements with AQIM elements in support of trafficking and perhaps kidnapping. Texeira stated that Mali views the threat of a new Tuareg rebellion as more dangerous than that from AQIM, and neither Mali nor Niger could count on Tuareg leaders to fight against AQIM. French and USG analysts also noted that breakdowns in traditional ethnic political, social and economic networks was potentially destabilizing. NEED TO INVOLVE ALGERIA -------------- ¶6. (SBU) A/S Carson raised the importance of getting Algeria involved in multi-national efforts to combat AQIM, and also for Algeria to work in concert directly with Mali to disrupt AQIM and criminal networks. "There can be no solution without Algeria," according to Texeira, who thought that Algeria would work with regional partners, but did not want to be implicated with "outside players." They noted that Algeria engages in limited intelligence-sharing and has made inquiries about other forms of counterterrorism assistance, but remains reticent about enhanced cooperation with potential western partners. Participants viewed positively Algeria's plans to organize a regional security summit in the coming months, but they agreed that there was relatively little information about summit objectives or the agenda. TREAT OF SPREADING RADICALISM -------------- ¶7. (SBU) The potential spread of AQIM (or some other brand of radicalized and violent Islam) in Africa was also a recurring issue. In particular, participants expressed deep concern that northern Nigeria is at risk of such influence. AQIM personnel or facilitators had also reportedly been identified in Niger and Senegal recently. Guinea-Bissau and Guinea are also at risk should AQIM make greater inroads into the West African narcotics trade, according to Gilles de Kerchove, the European Union Council's Coordinator for Counter Terrorism. Part of the problem is that disenfranchised young men from the southern parts of the Sahel are moving north and joining the group. Participants agreed on the need for a greater understanding of how AQIM successfully recruited militants/fighters/suicide bombers, especially from Mauritania. (Note: during a lunchtime conversation, France's Ambassador to Mauritania explained to INR Analyst PARIS 00001339 003 OF 005 Bernadette Graves and Embassy Paris Africa Watcher that he sees no clear trend, nor does he understand the reasons for, AQIM's apparent success in recruiting young Mauritanians. He notes that these recruits have come from a variety of backgrounds and ethnic groups and the trend does not fit the commonly held view of Mauritania as a moderate, tolerant Muslim country with Sufi traditions. End note.) DONOR COORDINATION -------------- ¶8. (SBU) One of the goals of the conference, and a recurring theme, was to improve assistance co-ordination among donors. The U.S., France, and the EU provide a range of military and security training in the region. Assistant Secretary Carson discussed the background and goals of the U.S. interagency Trans-Saharan Counter Terrorism Partnership (TSCTP). He noted that TSCTP was a broad-based holistic approach to supporting regional CT efforts that includes military and law enforcement capacity-building, public diplomacy/strategic communications, and support for local and national good governance. USAID Deputy Assistant Administrator Earl Gast observed that development indicators in the Sahel are among the worst in the world and USAID involvement in USG counter-extremism programming reflects that the regional vulnerability to terrorism is increased by the lack of employment opportunities for youth and poor or nonexistent governance and service delivery in large swaths of territory. ¶9. (SBU) France is focused on responding to Mali's request to assist its efforts to establish four forward operating bases in its northern frontier. It is also exploring how to support efforts to improve Malian administration and local governance in the north and improve customs and border security. Gompertz stated that France has security dialogues with Niger and Mali and would soon initiate discussions with Mauritania. The French also highlighted the urgency of assisting countries with judicial reform, training of prosecutors and magistrates, and criminal procedures. ¶10. (SBU) The EU completed an assessment of Mali in July and will visit Mauritania in October, but has postponed plans to visit Niger due to the current political situation. Future assistance may include border surveillance and customs services, and Sweden's Ambassador for Counter Terrorism Carin Wall highlighted the EU's desire to collaborate more closely with other actors, "not least the U.S." ¶11. (SBU) All three donors have or are considering programs in judicial processes and law-enforcement. A/S Johnson explained that the U.S. will likely establish a Regional Security Training Center in West Africa, and the EU noted that it is considering something similar: a Sahel-based "multi-functional" regional training center focusing on military, law enforcement, and border control and customs capacity building. The EU and French representatives highlighted the importance of building academies and "clearinghouses" to provide training to a range of security organs. ¶12. (SBU) The participants agreed to collect and share detailed information about the specific programs and projects each is pursuing or considering in the region as the first step for further consultations and coordination. Towards the end of the event, A/S Carson encouraged the participants to find the time and means to expand this type of dialog into other areas in need of greater mutual understanding and coordination in Africa, including the way forward in Somalia, Sudan, and the Great Lakes, and also for transboundary issues such as demographic pressures, democracy, and development priorities. A/S Johnson added judicial reform, including best practices in corrections as another timely need. "LEAD FROM THE SIDE" -------------- ¶13. (SBU) The three-plus groups agreed that supporting regional CT efforts in the Sahel was an important immediate and long-term priority, but there was a clear consensus that external actors must ensure that they limit visibility of their activities and avoid actions that would be seen as undercutting regional leadership over the issue. Elysee PARIS 00001339 004 OF 005 Advisor Marechaux noted that the French had not crafted a "Sahel plan" in order to avoid a potential backlash from Sahelian and Maghreb states suspicious of its intentions in the region. He noted that increasing the "profile" of the AQIM problem would likely enhance the group's Jihadist "credentials" and attract potential recruits from inside and outside the region. A/S Carson agreed: "We don,t want to become part of the problem by appearing to take the lead; we need to lead from the side, not from out front." He noted that raising the profile of external actors in the region risked alienating key Sahelian interlocutors and further risked assisting AQIM recruiting and resourcing efforts. Ambassador Benjamin agreed that it was vital to ensure that the counterterrorism effort had a "local face." COMMENT -------------- ¶14. (SBU) This gathering will likely prove the kick-off to further discussions and closer cooperation. The French and the EU reps were willing to share their analysis of the situation, but were clearly also ready to defer to the U.S.'s assessment. More than one French participant who later joined a POL-hosted reception noted how impressed they were with the high level of participation by the U.S. and by A/S Carson's positive role as co-Chair of the event. PARTICIPANTS -------------- ¶15. (U) U.S. - Johnnie Carson, Assistant Secretary of State for African Affairs - Michelle Gavin, National Security Council Special Assistant to the President and Senior Director for African Affairs - Daniel Benjamin, Coordinator for Counterterrorism - David Johnson, Assistant Secretary of State for International Narcotics and Law Enforcement Affairs - Vicki Huddleston, Department of Defense, Deputy Assistant Secretary of Defense for African Affairs - Janet Sanderson, Deputy Assistant Secretary of State for Near Eastern Affairs - Earl Gast, U.S. Agency for International Development Senior Deputy Assistant Administrator. - Christopher Maier, Director for Counterterrorism National Security Council - Bernadette Graves, Bureau of Intelligence and Research - Daniel Epstein, Bureau of African Affairs - Victor Nelson, Regional Officer, Office of the Coordinator for Counterterrorism - Erin Barclay, Bureau of International Narcotics and Law Enforcement Affairs - Embassy Paris Africa Watcher. FRANCE Presidency of the Republic - Remi Marechaux, Advisor on Sub-Saharan Africa Ministry of Foreign and European Affairs - Jacques Audibert, Political Director - Stephane Gompertz, Director of Africa and Indian Ocean - Patrice Paoli, Director of North Africa and Middle East - General Emmanuel Beth, Director of security and defense cooperation - Charlotte Montel, Advisor of the Minister for African Affairs, Cabinet - Laurent Bigot, Head of West Africa Section, Africa and Indian Ocean Department - Jocelyne Caballero, Head of Multilateral Affairs Section, Security and Defense Cooperation Department - Martin Julliard, Head of Transnational Threats Section, Strategic and Security Affairs Department - Alice Guitton, Head of the Democratic Governance Bureau, Global Economy and Development Strategies Department, Globalization, Development and Partnerships Directorate National Defence Secretary General - General Andre Lanata, Head of International Affairs Section, International Affairs, Strategic and Technologic Affairs Department PARIS 00001339 005 OF 005 Ministry of Defence - Colonel Benoit Houssay, Military Advisor of the Minister - Colonel Jean-Jacques Toutous, Head of Africa Bureau, Joint Head-Quarters - Colonel Emmanuel Maurin, Head of Regional Affairs Section, Strategic Affairs Delegation - Pascal Teixeira, Director of Strategic Affairs - Guy Thomas, Strategic Affairs Direction Ministry of the Interior - Michel Duclos, Diplomatic Advisor - Emile Perez, Head of the Police International and Technical Cooperation Bureau. EUROPEAN UNION Presidency of the European Union - Carin Wall, Ambassador for Counter Terrorism, Swedish Foreign Affairs - Daniel Wolven, Swedish Embassy in Paris European Commission - Manuel Lopez-Blanco, Director for West and Central Africa, Directorate general for Development European Union Council - Gilles de Kerchove, Coordinator for Counter Terrorism Member States - Adam Wood, Director for Africa, Foreign and Commonwealth Office, United Kingdom - Corin Robertson, Joint Head, Counter Terrorism Department, Foreign and Commonwealth Office, United Kingdom - Hugo Shorter, Counsellor Global Issues, British Embassy in Paris - Nina Hermann, First Secretary, German Embassy in Paris. ¶16. (U) This cable was cleared by U.S. conference participants. RIVKIN