SCENE-SETTER FOR PACOM VISIT TO TONGA

C O N F I D E N T I A L SECTION 01 OF 04 SUVA 000346

SIPDIS

E.O. 12958: DECL: 08/13/2019
TAGS: PREL PGOVPHUM MARR TN FJ
SUBJECT: SCENE-SETTER FOR PACOM VISIT TO TONGA

REF: A. A) SUVA 0345

B. B) SUVA 0295

C. C) SUVA 0215

D. D) SUVA 0142

E. E) SUVA 0101

F. F) 08 SUVA 0448

Classified By: Ambassador C. Steven McGann for reasons 1.4 (B) and (D)

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

1. (C) Your visit to Tonga comes at a time when the benefits
of our increased engagement are coming to fruition. This
past year, the Tonga Defense Service (TDS) completed a
successful deployment to Iraq. The U.S. Navy,s Pacific
Partnership 2009 mission took place in July. This joint
effort was in partnership with local non-government
organizations and with military and civilian personnel from
Australia, Canada and Singapore, as well as Tonga Defense
Service personnel. The United States and Tonga recently
signed a shiprider agreement that will help protect Tonga,s
marine resources. The United States will soon begin
processing visas in Tonga to spare its citizens the expense
of a trip to Suva. The Tongan government is still recovering
from the 2006 riots and more recently the tragic ferry
accident that claimed over 70 lives. Amid this, the
government continues its slow progress on democratic reforms.
End summary.

FRIENDLY BILATERAL RELATIONS
--------------

2. (U) The U.S. relationship with the Kingdom of Tonga has
been friendly for many years. The Tongan Defense Service
deployed to Iraq in 2003 for a six-month rotation and
returned to Iraq in 2007 for an additional three rotations.
During their most recent deployment, Tongan troops were
hand-picked to provide security for the Multinational
Force-Iraq Headquarters at Camp Victory in Iraq. This is the
first time non-U.S. forces were given such a mission and
illustrates the close MIL/MIL ties. Tonga also contributed
troops and police to the Regional Assistance Mission in the
Solomon Islands (RAMSI) and has expressed interest in
deploying to Afghanistan. The annual &Tafakula8 joint
military exercise is further proof of our close links. Many
Tongans reside in the United States, especially in Utah,
California and Hawaii. Tonga often votes with the United
States at the UNGA and in other international fora. The
Peace Corps has been active in Tonga since the 1960,s.

A MONARCHY WITH BRITISH TOUCHES
--------------

3. (C) The &Friendly Islands8 of Tonga were not a united
monarchy until the reign of King George I in the mid-1800s.
Tonga then solidified its political system via the
Constitution of 1875, which made the king head of state with
broad powers over the parliament that consists of the King,s
Cabinet (12-16 people),nine nobles (elected by the 33 nobles
of the realm),and nine people,s representatives (elected
every three years in general elections). The king chooses
the prime minister, who until recently was almost always a
royal or noble. The political system ensured parliament
would abide by the king,s wishes. Britain took a fatherly
interest in Tongan governance from the mid-1800s until
recently, but Tonga was never formally a colony.

ANTI-ROYAL, PRO-DEMOCRATIC STIRRINGS
-------------- --------------

4. (C) Not surprisingly, some Tongans chafed at the lack of
genuine democracy. Since the late 1980s, the most prominent
reform advocate has been Akilisi Pohiva, a people,s
representative from the main island, Tongatapu. For many
years, his calls for a more democratic system appeared
futile. However, popular sentiment continued to build, in
part stimulated by royal insensitivity. King Tupou IV, who
died at age 88 on September 10, 2006, chose some very odd
advisors, including an American &court jester8 who
reportedly squandered millions of dollars of Tongan
investments. The last king,s children made sweet-heart
deals with government agencies. King George V gained the
electricity monopoly, which he named &Shoreline.8 Princess
Pilolevu gained Tongasat, which leases satellite slots to
Chinese entities. The youngest child, Crown Prince
Tupouto,a Lavaka,ata, has a lucrative land lease with the
LDS Church. Many more examples remain.


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5. (C) A complicating factor was that the now-crown prince
became prime minister in 2000. His instincts were very
conservative, at a time when the public mood was stirring.
In 2005, the Tongan government began to implement
civil-service reforms that inexplicably raised the wages for
top-tier public servants before assisting those at the
bottom. Civil servants hit the streets in a strike that
lasted for seven weeks, became very bitter as the prime
minister stone-walled, and became a rallying point for
pro-democracy campaigners as well. In the end, Princess
Pilolevu capitulated on behalf of the government while the
prime minister was abroad. Almost immediately, pro-democracy
activists flexed their muscles with a demonstration that
brought thousands to the streets of the capital. Signs and
slogans were vehemently anti-royal.

SENSING THE INEVITABILITY OF REFORM -- U.S. VIEW
-------------- -

6. (C) As a result, for the first time, all elements in
Tonga began to consider if a more democratic future was
inevitable. The United States has encouraged a Tonga-managed
transition to a meaningful Tongan-style democracy at as rapid
a pace as Tongans can accept. In late 2005, parliament
established, with royal assent, a national committee for
political reform, headed by a royal cousin, Prince
Tu'ipelehake. The NCPR held discussions throughout Tonga and
in New Zealand, Australia, and the United States.
(Tu'ipelehake was killed in a car crash near San Francisco
during the U.S. leg of the trip.) The late king initiated
some reforms. For the first time he chose two People's
Representatives (one of them now-Prime Minister Fred Sevele)
to be members of Cabinet. Later, on advice of now-King
George V, the late king removed younger son Lavaka'ata as
Prime Minister and replaced him with Sevele, the first
commoner to be prime minister since a Brit in the late
1800,s. In September 2006, the NCPR issued a report to
parliament that recommended dramatic reform: a fully elected
parliament, with a majority of peoples representatives, and
with Parliament selecting its prime minister. The king
presumably would act on "advice" of parliament.

ATTEMPT AT SLOWING PACE RESULTS IN RIOT
--------------

7. (C) Some in Tonga, including Prime Minister Sevele,
worried conservative elements would forcibly resist any rapid
reforms that caused power to flow from the king to commoners.
Some presumed the king was egging Sevele on. Sevele
proposed an alternative plan that might leave the king with a
delicate balance of power in parliament. The government then
slowed Parliament's deliberative process. Pro-democracy
forces were outraged and began public demonstrations. In
November 2006, pro-government demonstrators also hit the
streets. A riot erupted from the anti-government throng that
brought destruction to many businesses in the central
district. Businesses of the king and Sevele were destroyed.
Chinese-owned businesses were also targeted. Eight rioters
died in a torched building. It was a shocking day for
normally laid-back Tonga, and it sobered everyone.

DEALING WITH CRIMES -- THE TDS ROLE
--------------

8. (C) Tonga police were ineffective in responding to the
riot. Sevele called on the TDS, with some Australian and New
Zealand assistance, to restore order and begin
interrogating/arresting wrong-doers. Many Tongans blamed
much of the violence on "deportees" from the United States.
Some "deportees" were probably involved, but almost certainly
most of those who committed crimes were home-grown. There
were reports of human-rights violations. Activists claimed
many violations; the TDS claimed very few, and it says all
were investigated and dealt with. PM Sevele was extremely
embittered by the riot, and he blamed the pro-democracy
leaders, his old friends. Those leaders have acknowledged
stirring political pressure for the reform agenda, but they
deny planning or instigating the riot. The government
declared a state of emergency to restore law and order to the
capital. The state of emergency has been repeatedly extended
and is still in place.

RE-STARTING REFORM; REAL PROGRESS MADE
--------------

9. (C) Immediately after the riot, the king gave a
forward-looking speech at the close of parliament, expressing
sorrow for the devastation but calling for continuation of
inevitable reform. For many months, Sevele was visibly

SUVA 00000346 003 OF 004


reluctant to re-start the reform agenda. However, it appears
he came to realize, as others did, that popular resentment
was beginning to stir toward the surface again. Nobody
wanted another riot. In June 2007, Parliament set up a
"Tripartite Committee" (cabinet, nobles, people's
representatives) to attempt to find the future. In a matter
of weeks, the group announced agreement on a proposal for a
new parliament with nine nobles, 17 peoples representatives,
and up to four members selected by the king, a clear majority
for the people's representatives. The parliament would
choose the prime minister from within, and the PM would
select the cabinet from within. In November 2008, parliament
endorsed the establishment of the constitutional and
Electoral Reform Commission (CEC) to draft and make
recommendations for political reform. The CEC presented its
interim report in June 2009 to both parliament and the Privy
Council. Its final report and recommendations will be
submitted to the Privy Council and parliament in November

2009.

FEELING THE IMPACT OF THE GLOBAL ECONOMIC CRISIS
-------------- ---

12. (C) The government expects the economy to grow by .15
percent in 2009/2010. A significant risk to this forecast is
the potential for delays in implementation of the
reconstruction work financed by China Eximbank. Remittances,
the largest source of foreign exchange receipts, are down by
about 13 percent this year, continuing a downward trend in
recent years. The global economic crisis has softened demand
for seasonal workers, which could put pressure on Tonga,s
economy. The government,s response to the impact of the
global economic crisis has failed to contribute to the
underlying economic performance. The economy remains highly
vulnerable to external conditions, notably remittances.
Efforts to diversify the export sector and to implement
structural reform remain critical.

THE CHINA FACTOR
--------------

13. (C) For many years, Tonga had extremely close relations
with Taiwan. The Crown Prince (now King George V) was
particularly friendly. Then in 1998, Tonga suddenly switched
recognition to Beijing, most likely through efforts of
Princess Pilolevu and her Tongasat connections. For several
years, Tonga sold "investor" passports to Chinese citizens.
To Tonga's surprise, a number of the passport holders
actually came to Tonga. Then relatives and friends followed.
Before the riot, most small retail shops in Nuku'alofa had
become Chinese owned and operated. Many Tongans, including
other businessmen like Sevele, resented the Chinese in-flow.
Thus, the targeting of Chinese shops in the riot was not
surprising. Many Chinese fled Tonga immediately afterward,
though we hear some are trickling back. The Chinese embassy
cultivates the Tongan royal family, gifts travel to other
Tongan leaders, and offers heavily tied infrastructure
projects.

INTERNAL POLITICAL-MILITARY DYNAMICS
--------------

15. (C) The future of the TDS bears pondering. It has
always been seen as the King's force, its loyalty always to
the crown. That has worked to the advantage of the United
States in the decision-making about Tonga contributing to PKO
in Iraq. All Tongan leaders understand the usefulness of
Tonga helping us to achieve international peace and
stability, but PM Sevele and then-Foreign/Defense Minister
Tu'a were doubtful about Iraq. Sevele saw political peril if
there were casualties. In defense board deliberations, the
king, assisted by Brigadier General Uta'atu, trumped, and the
deployments happened. However, Sevele and Tu'a called for a
U.S. "quid pro quo": find a way to adjudicate visas for
Tongan applicants in Tonga rather than in Suva, or Tonga
"will not be disposed" to assist the United States "in the
military and other fields." The United States is moving
forward with a remote visa processing facility to begin in
the near future in Tonga. Under the program, a consular
officer will make regular trips to Nuku,alofa to process
non-immigrant visa applications at a secure facility.

NURTURING THE APPROPRIATE TDS ROLE
--------------

16. (C) The day-to-day role the TDS has taken during the
state of emergency has reportedly raised hackles among some
in the public. BG Uta'atu has plans to dramatically expand
the size and capabilities of his force. From the perspective

SUVA 00000346 004 OF 004


of having more Tongan help in international PKO, that idea is
very attractive. However, at times Uta'atu has given the
impression he is getting quite comfortable with his powers
under the state of emergency. He is a friend of Fiji,s
Commodore Bainimarama, and he has in the past expressed some
sympathy for the Fiji military's assumption that it has a
caretaker role over politics. As Tonga's transition from
monarchy to democracy moves forward, it will be important for
the United States to encourage the TDS, to the extent
possible, to be a force that accepts and helps ensure a
democratic future for Tonga. Department of State
International Military Education Training and Foreign
Military Financing programs for Tonga totaled $195,000 and
$500,000, respectively, in 2008.

PACIFIC PARTNERSHIP 2009
--------------

17. (SBU) The U.S. Navy,s Pacific Partnership 2009 mission
took place for two weeks beginning July 13. The humanitarian
and civil assistance mission was conducted by the U.S. Navy
in partnership with local non-government organizations and
with military and civilian personnel from Australia, Canada
and Singapore, as well as Tonga Defense Service personnel.
Teams of engineers and other personnel renovated schools,
health clinics and the country,s main hospital, while other
teams provided medical, dental, optical and veterinary
services.

TONGA,S FERRY TRAGEDY
--------------

18. (C) The Tongan ferry Princess Ashika sank 53 miles
north-west of Nuku,alofa on August 8, killing an estimated
73 people. The Tongan government has been struggling to
respond to this accident, which has been felt throughout the
Tongan community. The king sparked outrage among the
population when he departed Tonga the day after the sinking
to begin his extended holiday in Europe. The government has
inquired about U.S. Navy capabilities in raising the ferry,
which still holds most of the victims, now resting at a depth
of about 110 meters. The accident cost the Minister of
Transport his job and the government is desperately seeking
ways to reassure the Tongan people. During the recent
shiprider signing, the Tongan government added the Ministry
of Transport as a means to cooperate with the U.S. Coast
Guard on maritime safety.

U.S.-TONGA SHIPRIDER AGREEMENT
--------------

19. (SBU) On August 24, Tongan Secretary for Foreign Affairs
Va'inga Tone and Commander, Fourteenth Coast Guard District
RADM Manson Brown, signed a shiprider agreement. This
agreement will allow U.S. Coast Guard (USCG) ships
enforcement powers within the Exclusive Economic Zone (EEZ)
of Tonga. This was the sixth shiprider agreement to be
concluded in the region, after Palau, Micronesia, Kiribati,
the Cook Islands, and the Marshall Islands. In addition to
allowing Tongan officials to conduct enforcement actions from
USCG ships, the agreement means that U.S. ships and aircraft
patrolling the EEZ of American Samoa can now cross over into
Tonga's EEZ in pursuit of illegal fishing vessels. According
to RADM Brown, the first patrol to include Tongan personnel
would likely take place in early 2010.
MCGANN