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Cablegate: No Progress in Dpa Implementation in Last Two Weeks

VZCZCXRO1843
OO RUEHBC RUEHDE RUEHGI RUEHKUK RUEHMA RUEHROV
DE RUEHKH #1612/01 3081553
ZNR UUUUU ZZH
O 031553Z NOV 08
FM AMEMBASSY KHARTOUM
TO RUEHC/SECSTATE WASHDC IMMEDIATE 2224
INFO RUCNFUR/DARFUR COLLECTIVE
RUEHEE/ARAB LEAGUE COLLECTIVE
RUCNIAD/IGAD COLLECTIVE
RHMFISS/CJTF HOA

UNCLAS SECTION 01 OF 02 KHARTOUM 001612

DEPT FOR AF A/S FRAZER, SE WILLIAMSON, AF/SPG
NSC FOR PITTMAN AND HUDSON
ADDIS ABABA FOR USAU
DEPT PLS PASS USAID FOR AFR/SUDAN

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: ASEC PGOV PREL KPKO SOCI AU UNSC SU
SUBJECT: NO PROGRESS IN DPA IMPLEMENTATION IN LAST TWO WEEKS

1. (SBU) SUMMARY: Contacts from the Sudan Liberation Movement of
Minni Minnawi told poloffs November 2 that there has been no
progress in implementation of the Darfur Peace Agreement (DPA) in
the last two weeks, and limited overall progress since the September
19 deal between Minnawi and Vice President Taha. The GoS continues
to stall on allocating money to the Darfur Reconstruction and
Development Fund. Frustration within the movement is rising. END
SUMMARY.

NO PROGRESS AT ALL IN LAST 2 WEEKS
- - - - - - - - - - - - - - - - - -
2. (SBU) On November 2, SLM/MM General Counsel and the
Transitional Darfur Regional Administration (TDRA) Legal Secretary,
Abdulaziz Sam, told poloff that there has been absolutely no
progress in implementation of the Darfur Peace Agreement (DPA) in
the last two weeks. Sam said that the travel of Atta Al-Mannan (one
of the NCP's key brokers of the September 19 Minnawi-Taha agreement)
has negatively impacted the negotiations. Sam also stated that it
is possible that some NCP hardliners within the NCP intentionally
sent Al-Mannan outside of Sudan to slow the peace process. Sam said
that the others who worked with Al-Mannan on the peace deal "are
worthless" and hinted that he sees NCP hardliners winning the battle
to marginalize SLM/MM again.

COMMON REFRAIN: WHERE'S THE MONEY?
----------------------------------
3. (SBU) SLM/MM still has not received any money for the TDRA or
the DRDF. This remains the primary point of contention with the GoS,
stated Sam. He added that the GoS has focused on bureaucratic
impediments, legal minutiae, and the wording of the DPA to delay
funding the DRDF. For example, stated Sam, GoS officials told
SLM/MM representatives that before funding is allocated to the DRDF
a comprehensive development plan should be completed at both the
state and federal levels. Sam also noted that SLM/MM and GoS
officials continue to dispute particular development projects, the
employment of national construction companies, and the percentage of
funds delivered in seed money vs. in-kind development. Sam added
that DRDF Chairman Abduljabar Dausa (also SLM/MM's former political
chief) traveled to London approximately two weeks ago, and that he
will not return to Sudan unless the DRDF is funded.

"THIS IS A POLITICAL DECISION."
- - - - - - - - - - - - - - - -
4. (SBU) Sam acknowledged that the problem of funding the DRDF is
not one of mechanics, details, or bureaucracy, but rather a
political decision by the NCP. "They [the NCP] have told us [in the
SLM/MM] that you will take the money we give to the DRDF, and go buy
weapons in preparation for the next war," stated Sam. Sam added
that the NCP also fears that if they deliver money to SLM/MM,
Minnawi may become less flexible in his willingness to accept a new
Darfur Peace deal with non-signatory movements in the next round of
negotiations.

LITTLE PROGRESS IN OTHER AREAS
- - - - - - - - - - - - - - - -
5. (SBU) Although there has not been direct conflict between
SLM/MM and GoS forces in Darfur since September 19, Sam
characterized GoS-SLM/MM military cooperation as "slow." With
respect to bringing the DPA into the national constitution, Sam said
that the National Constitutional Review Commission has held up the
process, and that he was less optimistic that the DPA would be
legally recognized in the next month. (Note: This represents a
change from our last meeting with Sam two weeks ago when he was very
confident that the DPA would be quickly adopted into the interim
constitution. End Note.) Sam said that although there has been
agreement on expanding Darfuri participation in the national civil
service and senior diplomatic and government positions, SLM/MM has
been slow to provide lists of names and put pressure on their NCP
interlocutors.

MINNAWI'S PLANS
- - - - - - - -
6. (SBU) Minnawi returned to Darfur on October 30 after
participating in the Sudan People's Initiative, reported Sam. The
GoS authorized Minnawi to pursue outreach to non-signatory rebel
movements. While in Darfur, Minnawi will attempt to meet with JEM,
SLA-Unity, and URF. According to Sam, Minnawi realizes that the
Government "used" him for their propaganda campaign, and that he
received little in return. Sam said that Minnawi will travel back
and forth between his camps in North Darfur as well as to and from
El-Fasher and Khartoum for the foreseeable future. Sam added
Minnawi recognizes that he needs to balance his attention on
political matters in El-Fasher and Khartoum as well as focusing on
his military organization. (Note: Minnawi is scheduled to speak

KHARTOUM 00001612 002 OF 002


with A/S Frazer on October 3 via satellite phone. End Note)

COMMENT
- - - - -
7. (SBU) Compared to our last meeting with Sam two weeks ago,
there was a dramatic change in his tone, demeanor, and outlook.
Increasingly frustrated and pessimistic, Sam may be representative
of SLM/MM as a whole. The NCP's tactic of focusing on the details
and bureaucracy of a peace deal (while neglecting inconvenient
passages, the timeframe of its implementation, and its overall
spirit) has been all too evident in the DPA, CPA, and ESPA. Given
its weak position, SLM/MM will have to continue to cooperate with
the NCP while also recognizing its supporting role in the latter's
political strategy.

FERNANDEZ

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