US embassy cable - 01HARARE1169

C O N F I D E N T I A L SECTION 01 OF 02 HARARE 001169 
 
SIPDIS 
 
LONDON FOR GURNEY 
 
PARIS FOR WILLIAMS 
 
NSC FOR SENIOR AFRICA DIRECTOR JENDAYI FRAZER 
 
PASS USAID FOR A-AA/AFR - V. DICKSON-HORTON, 
AFR/SA - C. PALMA 
 
E.O. 12958: DECL: 03/29/11 
                       CONFIDENTIAL 
 
PAGE 02        HARARE  01169  01 OF 02  291504Z 
TAGS: PGOV, PREL, ZI 
SUBJECT: UNDP RESIDENT REPRESENTATIVE CONSULTS WITH 
DONORS ON GOZ RESPONSE TO MALLOCH-BROWN LETTER 
 
REF: HARARE 1016 
 
CLASSIFIED BY CHARGE D'AFFAIRES EARL M. IRVING FOR 
REASONS 1.5 B/D. 
 
1. (C) SUMMARY: UNITED NATIONS DEVELOPMENT PROGRAM 
(UNDP) RESIDENT REPRESENTATIVE VICTOR ANGELO CONVENED 
A MEETING OF DIPLOMATIC HEADS OF MISSION MARCH 28 TO 
DISCUSS THE ZIMBABWEAN GOVERNMENT'S RESPONSE TO THE 
MALLOCH-BROWN LETTER (REFTEL).  MOST OF THE DIPLOMATS 
SAID THAT THE ZIMBABWEAN GOVERNMENT RESPONSE GAVE THE 
DONOR COMMUNITY PRECIOUS LITTLE WITH WHICH TO WORK, 
ALTHOUGH SOME SAW MERIT IN THE FACT THAT IT ANSWERED 
AT ALL.  IN GENERAL, HOWEVER, THE DONORS WERE 
UNSYMPATHETIC WITH THE GOVERNMENT'S PLEA FOR 
ASSISTANCE ON THE FAST TRACK RESETTLEMENT PROGRAM, A 
NON-NEGOTIABLE ITEM.  THE LETTER'S FAILURE TO ADDRESS 
THE ISSUE OF RULE OF LAW IN THE BROADEST SENSE WAS THE 
PRINCIPAL CONCERN OF MOST DONORS.  THEY ASKED ANGELO 
TO CONTINUE ENGAGING THE GOVERNMENT, PUTTING ACROSS 
THEIR CONCERNS AND ASKING FOR CLARIFICATION OF SOME 
THE TERMS USED IN THE LETTER.  ALTHOUGH THE MALLOCH- 
BROWN INITIATIVE APPEARS TO BE COLLAPSING, THE VICTIM 
OF THE UNDP'S MISBEGOTTEN ROLE OF TACKLING THE LAND 
QUESTION INSTEAD OF RULE OF LAW, WE CONTINUE TO 
BELIEVE IN THE UTILITY OF DIALOGUE WITH THE 
GOVERNMENT.  END SUMMARY. 
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2. (C) UNDP RESIDENT REPRESENTATIVE VICTOR ANGELO 
CONVENED DIPLOMATIC HEADS OF MISSION ON MARCH 28 FOR A 
DISCUSSION ON THE GOVERNMENT OF ZIMBABWE'S RESPONSE TO 
UNDP ADMINISTRATOR MALLOCH-BROWN'S DECEMBER 15 LETTER 
TO PRESIDENT MUGABE (REFTEL).  THERE WERE BASICALLY 
TWO GROUPS: THOSE WHO WERE VERY NEGATIVE (UK, GERMANY, 
NETHERLANDS, AND CANADA), AND THOSE WHO WERE LOOKING 
FOR SOMETHING POSITIVE IN THE RESPONSE (ITALY, FRANCE, 
BELGIUM AND ARGENTINA).  (COMMENT: THE LIKELY DONORS 
ARE IN THE FORMER, NOT THE LATTER GROUP. END COMMENT.) 
 
3.  (C) POSITIVE ASPECTS, AS PITCHED BY ANGELO, WERE 
THAT THE GOVERNMENT OF ZIMBABWE RESPONDED (RATHER THAN 
IGNORED THE LETTER), USED DIPLOMATIC LANGUAGE, AND 
ENDORSED CONTINUING DIALOGUE WITH THE DONORS, BUT 
WITHOUT SPECIFYING MODALITIES.  SOME DONORS WELCOMED 
THE GOVERNMENT'S ACCEPTANCE OF A TRUST FUND (WHICH IS 
PROVIDED FOR IN THE CONSTITUTION) AND ESTABLISHING A 
TECHNICAL UNIT WITHIN THE OFFICES OF THE UNDP, BUT NO 
ONE INDICATED THEY ARE READY TO OFFER FUNDING. 
(COMMENT: NEITHER THE BRITISH NOR WE ARE PREPARED TO 
SUPPORT A TECHNICAL UNIT WITHIN UNDP AT THIS TIME 
BECAUSE IT IS IN THE WRONG PLACE: IT ESTABLISHES DONOR 
AND NOT ZIMBABWEAN CAPACITY.  MOREOVER, ANY TECHNICAL 
SUPPORT UNIT AT THIS TIME WOULD SUPPORT THE FAST-TRACK 
RESETTLEMENT PROGRAM.  END COMMENT.)  THE GOVERNMENT'S 
APPEAL TO CONTINUED DIALOGUE WAS UNANIMOUSLY VIEWED AS 
A POSITIVE DEVELOPMENT, ALTHOUGH THERE IS NO DEARTH OF 
THOSE WHO CONSIDER IT LITTLE MORE THAN AND A COMBINED 
PUBLIC RELATIONS EFFORT AND DELAYING TACTIC.  ON THE 
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ISSUE OF DIALOGUE, VIRTUALLY ALL THE DONORS WANT A 
TIMEFRAME SPELLED OUT FOR THE PROCESS, REALIZING THAT 
DELAY (AS THE LETTER'S 90 DAY PLUS TURNAROUND HAS 
SHOWN) ONLY WIDENS THE GULF AND PLAYS INTO THE 
GOVERNMENT'S POLITICAL GAME PLAN. 
 
4.  (C) ON THE NEGATIVE SIDE, MOST OBSERVERS AGREED 
THAT THE GOVERNMENT OF ZIMBABWE'S POSITION HAS NOT 
CHANGED AND OBSERVED THAT THE FAST-TRACK RESETTLEMENT 
EXERCISE REMAINS NON-NEGOTIABLE.  THE BRITISH HIGH 
COMMISSIONER POINTED OUT THE FUNDAMENTAL CONTRADICTION 
IN THE UNDP PLAN THAT APPROACHES THE LAND REFORM 
PROGRAM AS A DEVELOPMENT INITIATIVE, RATHER THAN A 
POLITICAL POWER PLAY.  IN ADDITION, THE GOVERNMENT 
RESPONSE IGNORES THE CORE ISSUE OF THE RULE OF LAW, 
EXCEPT FOR THE CLAIM THAT ITS FAST-TRACK RESETTLEMENT 
EXERCISE IS FULLY LEGAL, AN ASSERTION THAT THE 
CANADIAN HIGH COMMISSIONER DESCRIBED AS 
"BREATHTAKING."   THE RESPONSE LETTER YIELDS NO 
CONCESSIONS TO DONOR CONCERNS AND MAKES THE ABSURD 
CLAIM THAT 60,000 FAMILIES HAVE ALREADY BEEN RESETTLED 
ON TWO MILLION HECTARES IN UNDER ONE YEAR'S TIME. 
FINALLY, THE ZIMBABWEAN GOVERNMENT BLAMES EVERYONE 
(E.G., THE DONORS AND THE COMMERCIAL FARMERS UNION) 
EXCEPT ITSELF FOR ITS CURRENT PREDICAMENT, AND FAILS 
 
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ACTION AF-00 
 
INFO  LOG-00   NP-00    AID-00   ACQ-00   CIAE-00  SMEC-00  USNW-00 
      DODE-00  SRPP-00  DS-00    EUR-00   VC-00    HHS-01   H-01 
      SSA-01   TEDE-00  INR-00   IO-00    L-00     VCE-00   AC-01 
      DCP-01   NSAE-00  OES-01   OIC-02   OMB-01   OPIC-01  PA-00 
      PM-00    PRS-00   ACE-00   P-00     SP-00    SSO-00   TRSE-00 
      USIE-00  BBG-00   R-00     PMB-00   DSCC-00  PRM-01   DRL-02 
      G-00     NFAT-00  SAS-00     /013W 
                  ------------------D8D114  291504Z /38 
O 291508Z MAR 01 
FM AMEMBASSY HARARE 
TO SECSTATE WASHDC IMMEDIATE 8533 
INFO USMISSION USUN NEW YORK IMMEDIATE 
NSC WASHDC 
SOUTHERN AFRICAN DEVELOPMENT COMMUNITY 
 
C O N F I D E N T I A L SECTION 02 OF 02 HARARE 001169 
 
SIPDIS 
 
LONDON FOR GURNEY 
 
PARIS FOR WILLIAMS 
 
NSC FOR SENIOR AFRICA DIRECTOR JENDAYI FRAZER 
 
PASS USAID FOR A-AA/AFR - V. DICKSON-HORTON, 
AFR/SA - C. PALMA 
 
E.O. 12958: DECL: 03/29/11 
                       CONFIDENTIAL 
 
PAGE 02        HARARE  01169  02 OF 02  291504Z 
TAGS: PGOV, PREL, UNDP, ZI 
SUBJECT: UNDP RESIDENT REPRESENTATIVE CONSULTS WITH 
DONORS ON GOZ RESPONSE TO MALLOCH-BROWN LETTER 
 
TO ACKNOWLEDGE THAT FIVE DONORS ACTUALLY DELIVERED 
SOMETHING TO ADVANCE THE CAUSE OF LAND REFORM IN 
ZIMBABWE.  MANY HEADS OF MISSION HAD DIFFICULTY 
VIEWING FAVORABLY THE ZIMBABWEAN GOVERNMENT'S REQUEST 
FOR ASSISTANCE TO CLEAN UP THE MESS CREATED BY ITS 
FAST-TRACK RESETTLEMENT EXERCISE, ABOUT WHICH THE 
DONORS HAD WARNED IT. 
 
5. (C) THERE WAS CONSENSUS THAT IT WAS PREMATURE TO 
BEGIN ASSISTING THE GOZ'S LAND REFORM PROGRAM, 
PARTICULARLY AS THE GOVERNMENT OF ZIMBABWE HAS NOT 
ADDRESSED THE DONORS' CONCERNS WITH THE RESPECT TO THE 
RULE OF LAW.  NEVERTHELESS, ALL DONORS EXPRESSED THE 
DESIRE TO FOSTER DIALOGUE WITHIN A SPECIFIED TIME 
FRAME WITH BOTH THE GOVERNMENT OF ZIMBABWE AND THE 
NATIONAL ECONOMIC CONSULTATIVE FORUM, A POSSIBLE 
VEHICLE FOR SUCH ENGAGEMENT.  THE DONORS REQUESTED 
VICTOR ANGELO TO SEEK CLARIFICATION ON THE 
RELATIONSHIP BETWEEN THE NECF AND THE CABINET LAND 
COMMITTEE.  REGARDING HUMANITARIAN ASSISTANCE, THE 
DONORS INSISTED THAT A CLEAR DISTINCTION HAD TO BE 
MADE BETWEEN THAT FOR THE RESETTLEMENT PROGRAM (I.E., 
THE MAN-MADE CRISIS) AND THAT FOR NATURAL DISASTERS 
(I.E., DROUGHTS AND FLOODS). 
 
6. (C) ANGELO AGREED TO CONSULT WITH THE ZIMBABWEAN 
GOVERNMENT BEGINNING MARCH 30 AND PUT ACROSS THE 
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PAGE 03        HARARE  01169  02 OF 02  291504Z 
DONORS' VIEWS.  HE WILL EXPLORE AMBIGUITIES IN THE 
LETTER, INCLUDING WHAT PRECISELY THE ZIMBABWEAN 
GOVERNMENT MEANS BY ITS LABELING OF THE CHAOTIC 
PROCESS AS A "LEGAL (HOW IT UNDERSTANDS THE RULE OF 
LAW), TRANSPARENT AND EQUITABLE (BENEFICIARY 
SELECTION) LAND REFORM PROGRAM."  THE UNDP RESREP 
UNDERSTOOD THAT HE WOULD HAVE TO PACKAGE HIS POINTS IN 
SUCH A WAY THAT THE GOVERNMENT DOES NOT SLAM THE DOOR 
IN HIS FACE. 
 
7.  (C) COMMENT: WE HAVE NUMEROUS PROBLEMS WITH THE 
UNDP'S APPROACH TO THIS ENTERPRISE.  RATHER THAN 
TRYING TO FIND A SOLUTION TO THE LAND QUESTION, IT 
SHOULD HAVE TACKLED THE OVER-ARCHING ISSUE OF THE RULE 
OF LAW THAT WILL TRIP UP ANY DONOR HEADQUARTERS AND 
MOST LEGISLATIVE BRANCHES.  THE UNITED NATIONS IS THE 
BEST PLACED, IF NOT THE ONLY, ORGANIZATION ABLE TO DO 
SO.  THE UNITED NATIONS WAS TRAPPED INTO TAKING ON THE 
LAND ISSUE, A FACT THAT HAS PLAYED INTO THE HANDS OF 
THE GOZ, WHICH HAS MADE A RHETORICAL DISTINCTION 
BETWEEN THE RULE OF LAW ON THE FARMS AND THE RULE OF 
LAW IN GENERAL.  THIS IS A NON-STARTER, AND ANGELO HAS 
NOT BEEN ABLE TO QUASH THIS CYNICAL DIFFERENTIATION. 
WE BELIEVE THAT LAND REFORM IS AN INTERNAL ZIMBABWEAN 
MATTER, AND THAT THERE SHOULD BE A FRANK AND OPEN 
DIALOGUE BETWEEN ALL STAKEHOLDERS.  WE SEE NO 
PERCENTAGE IN GETTING IN THE MIDDLE OF A GOZ-CFU 
DIALOGUE, FOR EXAMPLE.  THE MALLOCH-BROWN INITIATIVE 
APPEARS TO BE COLLAPSING, ALTHOUGH WE CONTINUE TO 
BELIEVE IN THE UTILITY OF GENUINE DIALOGUE.  END 
COMMENT. 
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IRVING 
 
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