US embassy cable - 05DJIBOUTI954

S E C R E T SECTION 01 OF 03 DJIBOUTI 000954 
 
SIPDIS 
 
STATE FOR R,P, AND AF 
 
E.O. 12958: DECL: 09/20/2015 
TAGS: KDEM, KPAO, PREL, EAID, PHUM, DJ 
SUBJECT: COMBATING EXTREMISM IN DJIBOUTI 
 
REF: SECSTATE 159129 
 
Classified By: Ambassador Marguerita D. Ragsdale. 
For Reasons 1.4 (b) and (d). 
 
Djibouti's Environment 
----------------------- 
 
1. (S) Djibouti's religious and cultural climate has been 
shaped by more than 150 years of French colonialism and 
traditional nomadic roots. The transitory nature of the Horn 
of Africa, the remnants of French culture, and the routine 
influx of foreigners from the region through the port has 
made Djibouti a relatively moderate and cosmopolitan state 
despite its ties to the Islamic world. Through all of its 
colonial history and 28 years of independence, Djibouti has 
practiced a moderate and tolerant form of Islam. However, 
influence from more traditional and fundamentalist Islamic 
countries in the region has been able to gain a significant 
foothold in the past decade. Extreme poverty, lack of 
economic opportunity and a growing disparity between 
socioeconomic classes make the population susceptible to 
fundamentalist - and occasionally extremist - influences. 
Left unchecked over the long term, these influences could tip 
the balance towards the fundamental version of Islam. 
 
2. (S) Foreign aid is the largest source of outside influence 
in Djibouti. Donors like Saudi Arabia and the Islamic 
Development Bank that can pour money into communities 
quickly, without strings attached and on a large scale, are 
gaining goodwill among the population fairly easily. While 
the United States is one of the leading donors in Djibouti, 
its projects require close monitoring relative to other 
donors, are more long-term and are systemic in nature. Arabs 
and other donors tend to build schools and mosques, renovate 
hospitals and clinics and give educational scholarships - 
projects that provide more immediate impact and relief in the 
communities. These projects gain comparatively easy 
recognition. Embassy, military and USAID programs to Djibouti 
have garnered a significant amount of goodwill among the 
population. However, the current perception is that the 
United States gives money to the government, while Arab and 
other donors give to the people. In the long run, spheres of 
influence in Djibouti will be won by the country that is 
perceived to have given the most direct help to communities. 
 
USG Programs to Counter Extremism 
---------------------------------- 
 
3. (S) Post programs have largely been designed with the view 
that improving daily conditions of life will decrease a 
person's susceptibility to extremism and violence. Integral 
to Post's public diplomacy strategy is Post's belief that 
programs that include person-to-person interaction between 
Americans and Djiboutians are the most effective way to 
improve America's image abroad, win hearts and minds and 
counter extremist propaganda. Programs include short-term and 
long-range projects with goals of both immediate, visible 
contributions and long-term, systemic change. A summary of 
Post programs are listed below: 
 
Public Diplomacy Section Programs: 
- English Language Groups- This program is a long-term 
project which started in January 2005. Its target audience is 
young Djiboutian men and women aged 18-30. Public Diplomacy 
began the program with only the PAO and the PAO assistant 
attending nightly conversation groups in private English 
language schools in several neighborhoods throughout the 
city. Each group has approximately 20-50 students in 
attendance each week. These groups discuss a different social 
topic chosen by the school each meeting and the discussion is 
reinforced by the Embassy with written material from Voice of 
America (VOA). In May 2005, PAO expanded attendance of 
Americans to include members of the U.S. military from the IO 
and PAO sections of Camp Lemonier. Post believes this is one 
of its most effective programs. It has given Embassy and 
military personnel the opportunity to learn first-hand about 
Djiboutian culture and challenges faced by youth. It has also 
introduced Americans and our values to Djiboutians, some of 
which had never met an American before this program. Many of 
the students participating in the groups attend Islamic 
schools during the day, giving the Embassy an opportunity to 
access a target audience that is otherwise difficult to reach. 
 
- Activities for youth- Throughout the year, Public Diplomacy 
hosts and provides grants for one-time or short-term 
activities aimed at the poorer youth of Djibouti. The target 
audience is usually primary and secondary school students 
throughout the city. All of these activities promote a 
message of tolerance and understanding. Past activities have 
included essay contests, soccer tournaments, movie showings, 
training workshops and art exhibitions for International 
Education Week. These programs are fairly effective in 
promoting goodwill and providing person-to-person public 
outreach. 
 
-Radio Sawa/VOA- In 2005, the International Board of 
Broadcasters' Radio Sawa transmitting station at PK-12 in 
Djibouti began 24 hour, 7 days per week broadcasting in a 
transmission arc that includes Djibouti, Sudan and the 
Arabian Peninsula. In addition, renovations were completed by 
IBB on Radio Television Djibouti's two mediumwave and one 
short-wave transmitter at its Dorale radio station. 
Negotiations have recently begun for IBB to rent airspace on 
these transmitters for broadcasting in Afar, Oromo, Amharic, 
Tigrina and English. These transmissions will reach Djibouti, 
Ethiopia and Somaliland. IBB has no permanent presence on the 
ground in Djibouti and Post's Public Diplomacy Officer serves 
as its main administrator and negotiator in country. VOA is 
also transmitted in Djibouti. VOA is highly effective in 
Djibouti and "Special English" remains one of the most 
popular radio shows among Djibouti's youth. The effectiveness 
of transmissions to Sudan and the Arabian Peninsula are hard 
to gauge from Post. 
 
-General Grants- Public Diplomacy annually gives grants to 
various civic groups throughout the country in an effort to 
establish a foothold in various communities. For example, PD 
funds provided exercise equipment for Muslim women at a 
moderate Islamic social service organization, an English 
language laboratory at the country's only university, and two 
libraries in English schools. This year PD grants will fund 
two youth centers in the districts, a Ramadan soccer 
tournament and a rap contest for International Education 
Week. These projects have been effective in gaining access to 
communities most vulnerable to extremism, especially youth 
with few alternative activities. 
 
-International Visitors- Post's International Visitors 
program focuses on the country's mid-level bureaucrats with 
broad effectiveness. Former IVs have become influential in 
the Ministry of Foreign Affairs, the Chamber of Commerce and 
one is now the Minister of Women. In addition, Post has made 
efforts in the last year to integrate its IV alumni into 
other Embassy programs. They have served as judges for 
Embassy-sponsored contests and spoken at Embassy-sponsored 
conferences about their experiences in the US and have been 
very well-received. 
 
DOD and U.S. Liaison Office Programs: 
-Mil-to-Mil Training- USLO Djibouti, with the Combined-Joint 
Task Force - Horn Of Africa (CJTF-HOA), works with host 
government military to increase Djibouti's ability to 
recognize, respond to and prevent terrorism. Training 
exercises target the Djiboutian military counter-terrorism 
forces, which number approximately 500. While many of the 
programs do not directly work towards combating extremism, 
providing the equipment and training to the forces that 
secure borders and safeguard the country allows Djibouti to 
respond to threats from outside influences. 
 
-Civil Affairs Projects- Civil Affairs battalions at Camp 
Lemonier have conducted operations throughout Djibouti and 
the entire Horn of Africa since the Camp was established in 
2002. Projects in Djibouti include well drilling, 
rehabilitation of schools and clinics, medical and veterinary 
treatment in the countryside and polio vaccination campaigns. 
The target audience for these programs are rural communities 
with little to no resources. These projects have been 
extremely effective at improving quality of life for the 
communities, establishing personal ties with the United 
States, and bolstering a positive image of the U.S. and the 
U.S. military. 
 
USAID Programs: 
-Education and Health- USAID Djibouti is currently improving 
access, equity, quality and community participation in the 
education and health sectors. It is also focusing on 
strengthening NGOs in the two sectors. The programs support 
parliamentary approved reforms and are designed to be 
implemented over several years with long-term effect. USAID 
opened a country office in Djibouti in 2003 and funds its 
programs with State Economic Support Funds. The office's 
programs have rehabilitated existing schools and clinics 
throughout the country and provided technical assistance and 
training to government officials in health and education 
administration. USAID has slightly modified the existing 
French curriculum by adapting texts which reflect a more 
positive image for young girls and that illustrate an 
expanded role of women in society. 
 
4. (S) Post's programs do not include measures to explicitly 
monitor or counter incitement and hate speech in Djibouti. As 
part of their regular duties, Public Diplomacy and Political 
Affairs Sections monitor regional and local French, Arab, and 
Somali news sources for stories of interest. Because 98 
percent of the population is Muslim, Post's normal 
programming and activities are also aimed at countering 
extremism. 
 
5. (S) A majority of Post's programs are aimed at the local 
communities. Many of these programs include a message of 
tolerance and non-violence. For programs that do not have 
this message built-in, Post takes every opportunity to share 
this message with the community within the framework of the 
program. The most frequent occurrence of this is during 
speeches given by the Ambassador at various public ceremonies 
and project inaugurations. The Public Diplomacy Section 
ensures that statements to the press or speeches given by the 
Ambassador and other members of the Mission reflect both 
Washington's and Post's counter-extremism messages. Public 
Diplomacy also works closely with the Public Affairs Office 
at Camp Lemonier to ensure that Embassy and Military messages 
are coordinated. 
 
6. (S) Post Public Diplomacy programs have identified several 
community associations that have broad influence among Muslim 
youth and the population as a whole. Al Biri, a moderate 
Islamic charitable organization, works on many fronts to 
improve the conditions of life in Djibouti. United Youth for 
Progress is an association geared towards language and civic 
activities, which puts on skits and plays to address 
difficult societal issues and raise awareness among the 
population. Shiny Flower is another youth association that 
promotes civic activities. None of these organizations are 
using the Internet as a tool to counter extremism. 
Associations tend to use radio and print media to promote 
their messages. 
 
Host Government Efforts to Counter Extremism 
-------------------------------------------- 
 
7. (S) The Government of Djibouti has not made any efforts to 
create spaces for open intellectual debate through the media 
and internet. Freedom of the Press is granted by law, but is 
not always respected in practice. 
 
8. (S) Djibouti's Renseignements Generaux (General 
Intelligence) Unit of the police has the responsibility for 
keeping tabs on the population, including identifying those 
individuals that pose a threat to the Government or foreign 
citizens. This unit reports to the National Security Service, 
which is the entity with overall responsibility for 
intelligence. Weekly sermons given in the mosques of Djibouti 
are monitored and the Government has reigned in Imams 
preaching messages that are too extreme. 
 
9. (S) The Government has not made any recognizable efforts 
to amplify voices of moderation, tolerance and freedom. 
 
10. (S) The Government has made a considerable effort in the 
past few years to encourage readily accessible public 
education. Working with USAID, it aims to reach a minimum of 
90 percent enrollment for school-age children. Since the 
beginning of the focus on education in 2000, enrollment rates 
have increased from 39 percent of the school-age population 
to 53 percent in 2005. Using the French curriculum, 
Djibouti's education system does teach pluralism and open 
intellectual exchange. The Government of Djibouti, in 
conjunction with USAID and other donors, has launched 
national campaigns to encourage schooling for girls. The 
Minister of Education has also expressed a desire to have 
access to the curriculum taught at Islamic schools throughout 
the country to ensure that it uses the Djiboutian system. The 
education system does not promote scientific learning, 
although basic science curriculums are covered. 
RAGSDALE