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Viewing cable 05OTTAWA1972, INTERNATIONAL COMMUNITY COMMITS TO MAINTAIN
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 05OTTAWA1972 | 2005-06-29 14:00 | 2011-04-28 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Ottawa |
This record is a partial extract of the original cable. The full text of the original cable is not available.
UNCLAS SECTION 01 OF 07 OTTAWA 001972
SIPDIS
SENSITIVE
E.O. 12958: N/A
TAGS: HA MOPS PGOV PREL KPKO CA
SUBJECT: INTERNATIONAL COMMUNITY COMMITS TO MAINTAIN
MOMENTUM ON HAITI IN MONTREAL CONFERENCE
¶1. (SBU) Summary: Approximately 90 senior level officials
from Haiti, international organizations, and donor
governments met June 17 in Montreal to discuss the future of
Haiti. The conference's key theme was the importance of
maintaining momentum in the lead-up to the November
elections. Participants agreed on the need for more
aggressive actions to neutralize political and criminal
gangs. They expressed that to do so will necessitate
considerable material and advisory assistance for the police
and better integration between Civ/Pol, the HNP, and the
MINUSTAH Force. There was a call for a better public
information campaign, both to bolster support for MINUSTAH
and to prepare the people for elections. While Haiti's
material needs were acknowledged to be considerable, special
attention was given to short-term high-impact projects which
would demonstrate real improvements in daily life as a way to
underwrite stability in places such as Cite Soleil. The
report on election preparation was encouraging, with 257
registration sites expected to be opened in the coming week,
and a positive sense of continued progress thereafter.
Several participants also made a pitch for continued close
coordination among donors so that scarce donor dollars are
put to the best use. End Summary
IMPETUS
-------
¶2. (U) On June 17 approximately 90 officials gathered in
Montreal to discuss international assistance for the future
of Haiti. The Government of Canada organized the conference
to provide a bridge between the Cayenne
Conference in March 2005 and the elections in November.
Representatives from Haiti included Minister of Planning
and External Cooperation Roland Pierre, Minister of Economy
and Finance Henry Bazin, Minister of Foreign Affairs Herard
Abraham, Provisional Electoral Council Max Mathurin, and HNP
Spokesperson Dr. Cameau Coicou. MINUSTAH was
represented by SRSG Valdes and Civ/Pol Commissioner Beer.
The OAS, World Bank, IMF, IDB, and the Francophone
Organization had senior representatives, and bilateral donors
represented included Spain, Mexico, France, Japan,
the EU, the Dominican Republic, Brazil, and Chile.
OPENING STATEMENTS
------------------
¶3. (SBU) Three Haitian ministers captured the sense of the
conference in their opening statements. Minister Bazin
said that Haiti is at a critical juncture and must move
forward quickly to maintain the momentum of Cayenne. While
Haiti needs help from many quarters, the responsibility is
Haiti's alone. He called for an integrated program that
would synergize efforts to improve security, the economy, and
the political dialogue. Minister for Planning Pierre
said he initially believed the conference was too soon after
Cayenne, but with the deterioration in security
over the past several weeks now believes the timing is right.
He called for short term actions with a
long-term focus. Minister for Foreign Affairs Abraham
reviewed the long deterioration that brought Haiti to this
point, and stressed the commitment of the transitional
government to fully focus on turning over power to a new
government chosen through free and fair elections.
MINUSTAH
--------
¶4. (SBU) MINUSTAH SRSG Ambassador Juan Gabriel Valdes opened
by saying that there is a need to recapture momentum
among donors. This conference, he said, is more critical
than Cayenne because of the recent "drama" in Haiti, and
there is an urgent need to bring to bear all available tools
to produce stability. He outlined three key goals:
-- Reduction in violence
-- Valid elections acceptable to all parties
-- Fully legitimate government by February
¶5. (SBU) To achieve this, Valdes said, five conditions must
be met:
-- First, cohesive leadership and better coordination must be
developed between the security forces in Haiti
(MINUSTAH, Civ/Pol, and HNP).
-- Second, there should be greater strength in confronting
gangs, ex-military, and criminal elements. Valdes
suggested the need to review the MINUSTAH mandate
contextually, such that it allows for more intrusive
operations when necessary, in coordination with the HNP.
-- Third, there is a need to undertake social programs along
the way, especially in key barrios e.g.
Belair, Martison, and Cite Soleil. Valdes reported that many
people are seeing no improvement in their daily lives
and are beginning to despair. Without an infusion of
resources in these areas, he said, applying force is like
inoculating a body that is already diseased. He also
mentioned the problem of NGOs that cannot work where there
are military forces present because they so value their
neutrality, thus creating worse problems in the very areas
that need the most help.
-- Fourth, there must be a mobilization of the Haitian
people against violence and in favor of elections.
There is currently a negative sense about the UN in Haiti
which needs to be reversed. There is a need to show that
the country will move forward in the long term because it is,
in fact, moving forward in the short term. MINUSTAH
must be seen as not only providing security but also helping
people.
-- Fifth, there is a need to strengthen the electoral
process. Things are largely on track but
continued effort is needed, and there must be a mobilization
of public opinion in support of the process.
STRENGTHENING THE POLICE
------------------------
¶6. (SBU) Civ/Pol Commissioner Beer then briefed the delegates
on the security environment, which he described
as "fragile" because of in upsurge in violence (although the
violence is localized in Port au Prince). The threat is of
increasingly organized anti-democratic elements which are
attacking the political and economic heart of the country,
and increasingly a shift in attacks from the government and
MINUSTAH to the business community.
¶7. (SBU) Beer expressed a basic problem with how MINUSTAH
organizes itself. This type of operation, he said, has not
been done before and leaders are wrestling with how to do it.
He talked about the challenges of coordination between
the HNP and MINUSTAH, and the lack of coordination among
donors for police programs, complaining that donors, with
the exception of the U.S., are not prepared to spend money
expeditiously. Of importance, Beer said, are the small
projects which could be implemented quickly to improve
morale. Beer said there are 800 new members of the HNP
completing academy courses and 800 more in training, with the
key short-term goal of being ready to provide security for
the elections. Beer went on to praise the HNP, which are
being killed at the rate of one every 5 days. There is a
core of officers, Beer said, who are willing to go out and
serve every day, despite their lack of equipment and limited
evidence that the international community will be there with
them to make sustainable change.
¶8. (SBU) HNP Spokesperson Dr. Marie Gessy Cameau Coicou
discussed the challenges and development of the police force.
She described the social-political context as extremely
challenging and getting worse. There is increasing violence,
the growing presence of armed groups, widespread criminality,
kidnappings (which are new to Haiti and now include the rape
and torture of hostages), car theft, arson, and murder. A
key threat is of Lavalas instigators seeking destabilization.
Since 30 September the gangs have perpetrated Operation
Baghdad, in which they killed 50 HNP, two of which in the
past several weeks were also mutilated. The HNP is beginning
to see alliances among criminal groups, and Cameau said there
is a need for demobilization and re-entry programs for
ex-soldiers and gang members to get them off the streets
and working productively. She also mentioned the problem of
the deportation of violent criminals from the US which then
join gangs in Haiti.
¶9. (SBU) Cameau then described the context for international
support. Past police programs, she said,
such as the 7,000 police trained between 1995-1997, have
suffered from the mix of trainers from various countries
who brought different models to the force. In any event, the
police largely crumbled in February 2004, with many
fleeing the force and taking their weapons with them. The
current HNP has basically started from scratch to rebuild
the force.
¶10. (SBU) Cameau said there are currently not enough officers
to manage the elections. The HNP originally
planned to train 3,600, but has scaled that down to 2,400.
There is a need for 7,000 officers for the elections, with
a long-term requirement for 12,000, although 18,000 would
provide the best ratio of officers to citizens, given the
youthfulness of the Haitian population. There is a chronic
lack of resources -- when the former regime fled, police
took communications gear and weapons, much of which is now in
the hands of former regime members. The police have
insufficient vehicles and many stations have been destroyed.
The HNP received USD 2.6 million from the U.S.,
which is helpful, but there remain considerable needs.
¶11. (SBU) MINUSTAH has helped to fill the gap, but language
barriers have hindered effectiveness -- the 6,000 mostly
Spanish and Portuguese-speaking troops cannot communicate
with the populace, and among the 1,600 police advisors
there are few French speakers. MINUSTAH is also hindered by
very tight rules of engagement. Cameau also said there
is a basic misunderstanding among the Haitian people of the
role of MINUSTAH, which is often not well received by
people who do not see improvements in their day to day lives.
She expressed a need for stronger coordination
between MINUSTAH, the HNP, and Civ/Pol, especially with
regards to planning operations. Military planning, Cameau
complained, often slowed the effectiveness of operations.
She also said that there is a basic lack of intelligence for
the police, and thanked Canada for its help in this area.
¶12. (SBU) Cameau outlined a series of imperatives needed to
restore the police to operational effectiveness:
-- First, recover operational capacity. As of February
there were 5000 police, 800 are now in courses,
600 more will enter training in August. There are also 37
new commissioners and 49 new inspectors. The HNP will
create an Operational Unit for the West, fully equipped with
65 police.
-- Second, depoliticize the HNP. They will seek to
transfer or release officers with political influence in
order to purge the institution.
-- Third, fix the personnel and career structure. A
program is being developed to fix the salary structure
and pay system, ensure two meals per day for police officers
on duty, improve the career development structure,
offer bonuses for deserving police, implement a large-scale
program for rehabilitation of equipment and infrastructure
in collaboration with the United States, improve work
conditions for officers, and rework the logistical
system.
-- Fourth, develop synergy and partnership between police
and populace through community policing activities
with certain communities.
-- Fifth, improve morale.
-- Sixth, fight corruption through a strong campaign at all
levels.
¶13. (SBU) The required resources to carry out these
improvements are:
-- Transport: $6.7 million
-- Communication: $1.3 million
-- Infrastructure: $8.9 million
-- Protective Equipment: $2 million
-- Arms and Munitions: $3.8 million
-- Total $22.7 million
PREPARATION FOR ELECTIONS
-------------------------
¶14. (SBU) Max Mathurin, Provisional Electoral Council (CEP)
President, briefed the group on preparations for the
elections. He expressed satisfaction with the information
exchange June 16, which was needed to accelerate the
electoral process. He said there is concern with the
deteriorating security situation and slippage of
international support which is leading to fiscal, logistical,
and security delays. In short, Mathurin said
the conditions under which the CEP functions are challenging
-- it has started from the ground up with no
personnel, infrastructure, or equipment, and needs constant
assistance.
¶15. (SBU) MINUSTAH Head of Electoral Assistance Gerardo Le
Chevelier reported that one half of the registration
centers are open. With the US commitment of USD 8 million
and the EU commitment of 8 million euros, the deficit for
running the election is now down to USD 4 million.
¶16. (SBU) Mr. Pierre-Richard Duchemin, Head of the
Registration Committee of the CEP, reviewed the status of
the registration process. While not a panacea for Haiti's
ills, Duchemin said that elections will help with
stability. He mentioned difficulty with i.d.'s and the
challenges of insecurity and limitations in staff and
equipment. He sought a stronger partnership with civil
society and expressed the need for more civic educators at
all levels, something which would especially help with
getting to remote areas for the vote. Duchemin also
suggested the need for a clear commitment for funding and
security, and for the support of the parties.
¶17. (SBU) For the OAS, Elizabeth Spehar stressed the
importance of breaking the cycle of big, dramatic elections
that leave nothing in their wake. This time, she said, we
must leave in place an electoral structure. She also
stressed the importance of coordination, saying that while
there has been an acceleration in the opening of
registration offices, there will be challenges to keeping the
process on track.
¶18. (SBU) With regards to election observation, Pauris Jean
Baptiste, head of the CEP Observation Committee, stressed
the need for outsiders to help point out errors and make
corrections. This, he said, would be critical to help
validate the results of the elections for the Haitian people.
¶19. (SBU) Elections Canada's Jean Pierre Kingsley expressed
satisfaction with the Steering Committee meeting held on
June 16 with representatives from 8 countries, the HNP,
MINUSTAH, and the OAS. He talked of the basic role to
monitor the elections, but also to offer assistance in terms
of validation. His office is ready to offer advice
and has established a list of 15 validation criteria. One
key piece of this process, Kingsley said, is ensuring the
elections have credibility with the Haitian people. He
mentioned that there had been additional funding from
Canada announced by Ministers Carroll and Pettigrew earlier
that day.
ECONOMIC REFORM AND STABILIZATION
---------------------------------
¶20. (SBU) Minister of Economy and Finance Bazin chaired the
economic discussion. Bazin said that Haiti
inherited a very difficult situation from the previous
government, facing extraordinary challenges. He seeks to
clean up public finances. The 2004 growth rate of 2%, Bazin
said, is better than expected. In March 2005 the government
prepared an amended budget which took account of several
unexpected expenses, such as the flood in Gonaives and
pensions for ex-soldiers. The 2005/2006 budget, prepared in
conjunction with civil society, will focus heavily on basic
services, education and fighting poverty. Barzin also noted
the persistent challenge of revenues lost to border
contraband, estimated at $250 million annually. Streamlining
and new leadership at the customs agency will aim to stem
this financial bleeding.
¶21. (SBU) Haiti has been working with the IMF, Barzin said,
which has given it reasonably good grades. He hopes this
will help reassure donors, as donor support is essential in
the short to medium term. For energy supplies alone, Haiti
needs some USD 8 million per month in support. Haiti must
also begin to deal with corruption. It was recently tagged
by Transparency International as the most corrupt country in
the world.
¶22. (SBU) Minister of Planning and Economic Cooperation
Roland Pierre discussed implementation of the Interim
Cooperation Framework (ICF), suggesting that from Cayenne to
Montreal there has been progress in the structure of
support, if not in actual numbers. With regards to current
priorities, Pierre said that Haiti seeks a minimum of USD
24 million for the police (although more may be required when
a full assessment is made). He also stressed the need
for USD 60 million to improve power generation, which must
continue to be subsidized because of its centrality to the
economy and security. He said that USAID provided 23 million
for fuel last year but that funding is now exhausted. More
needs to be done to make this sector more efficient. The GOH
would like to get power generation up to 12-18 hours a day.
¶23. (SBU) World Bank representative Caroline Anstey said that
the Bank pledged $150 million for Haiti during last
year's donor conference. Funds will come from the Bank's
international development association (IDA), which is the
concessional window that provides very low-interest loans to
the poorest countries. Two-thirds of that amount would be in
grants and not re-payable to the Bank. This amount is
extraordinary because Haiti would not have otherwise
qualified for this assistance, but the Bank saw this an
opportunity to support reform and Haiti during a crisis.
This
was highly unusual, she said, as Haiti would have otherwise
only qualified for a maximum of USD 45 million over 3 years
in assistance versus $150 mn over two years from IDA. Some
USD 54 million has been disbursed to the IGOH, much of it in
long term assistance, and 51% of the disbursements are in
grants. Anstey made a pitch to participants to encourage
their governments to include Haiti in the HIPC initiative and
the G8 Agreement on 100% debt relief.
¶24. (SBU) Anstey sounded a cautionary note, however,
reminding participants that 10 years ago the international
community committed to Haiti USD 1.4 billion, which was later
reduced to USD 200 million due to donors' lack of trust in
the government on transparency and poor donor coordination.
She stressed that donor communication is paramount. She also
suggested that donors should not just assess progress based
on raw numbers (e.g. disbursements),
but also on what actually is being accomplished in Haiti.
Anstey pressed all to highlight tangible accomplishments
(e.g. 2,000 children inoculated, 47 schools built, rather
than simply recounting the amounts of aid).
¶25. The IMF representative said that overall aid coordination
seems to be better. He credited the interim
government with following a credible process for the new
budget, and for maintaining financial stability through a
difficult period. He urged donors to pay attention to the
need for adequate resources which would keep inflation low
by maintaining adequate foreign exchange reserves to ease
pressure on the exchange rate. He said the IMF agrees with
the Bank of the inclusion of Haiti in the HIPC and G8 debt
relief initiatives.
DELEGATE COMMENTARIES
---------------------
¶25. (SBU) Throughout the conference there were interventions
by national and IO delegates:
-- The IDB rep supported the move to improve security
during elections and said the Bank has fulfilled
its commitment with USD 260 million by July 2004.
-- Mexico said it would be focused on supporting the
socio-economic framework with technical assistance and
believes that security is the key to successful elections.
-- The French representative expressed concern regarding
the deterioration of the security situation over the past
year, especially in Port au Prince. He suggested that we
must act on a priority basis to link security to economic
development. A newly empowered HNP with MINUSTAH support
must take charge of security, and MINUSTAH's image will
improve if security gets better. He urged better
coordination between HNP - Civ/Pol - and MINUSTAH on an
urgent basis. He was heartened by progress on registration
centers for the elections, and saw success in the elections
as critical for overall success on other fronts.
-- The EU representative decried the perception of a
climate of impunity and expressed concern with security of
the border. Nothing, he said, can stand in the way of the
electoral calendar. He urged strict adherence to the
current calendar and accelerating support to that end. The
EU could be sending an independent observer mission, which
would be coordinated with the general observers. The EU will
disburse EU 126 million by the end of the ICF in an
accelerated disbursement.
-- The OAS rep suggested that MINUSTAH needs a new approach
to security, a more muscular capacity that could
credibly disarm the gangs and provide security in slum areas.
But he added that MINUSTAH could be worse, and the
constant criticism by its enemies on the ground is unhelpful.
The OAS will undertake small projects with the
media to help prepare for the elections.
-- The Spanish representative reiterated the importance of
better coordination on security and a rapid
response on the economic front. He expressed the importance
of the Haitian people not being passive and
actively helping with the effort. He also urged MINUSTAH to
pay attention to the daily needs of the people, and the
importance not only of elections but of the development of a
national dialogue that would outlast the elections.
-- Representatives of Haitian Society appealed to donors to
help increase the size of the HNP to 15,000.
They also urged the development of specialized units provided
with the appropriate weapons and training to accomplish the
security tasks they are given. They suggested more attention
be paid to the funding of new police stations, and weapons
and ammunition for the police, and further focus on
demobilization and follow-on training
for demobilized gang members.
-- The representative of Brazil urged consideration of
quick impact economic projects to combat the pervasive
poverty which is causing instability. He suggested looking
at economic improvement, security, and the political
process in an integrated way. He said Brazil strongly
supports the extension of MINUSTAH. On elections, he
suggested that the vote must be free, fair, and transparent,
but also must be fully accepted as such by the
Haitian people.
-- Canada highlighted its disbursement of USD 154 million
to the ICF as of May 3. The Canadian
representative also encouraged donors to keep up the data
base which Canada developed for the conference and will
maintain, to help track and coordinate funding (Note: The
Canadian tracking mechanism focuses on disbursements by
quarter under each ICF axis, and is separate from the IGOH
tracking mechanism used currently by donors. End Note.
-- Chile's representative expressed concern with the slow
progress on voter registration and on demobilization.
He mentioned one group of individuals whom his soldiers
disarmed but for which there was not a viable follow-on
retraining program.
-- The Japanese representative said that Japan is
considering an offer of support for a public awareness
campaign.
PETTIGREW ATTACKED
------------------
¶26. (SBU) FM Pettigrew offered the keynote speech at dinner
on June 16, and then arrived on the day of the conference
for a press conference and brief speech to the delegates. As
he began the press conference with key heads of
delegation, however, a demonstrator attacked him with a red
dye before he was pulled out by police. The incident caused
the FM to cut his remarks to the delegates short so that he
could go to the police station and file a complaint. He
simply reiterated to the delegates the importance of
maintaining momentum and not allowing enthusiasm for the
Haiti project to drop off.
¶27. (SBU) All through the day there was a modest
demonstration in front of the hotel by supporters of
Aristide. The demonstrators held anti-occupation,
anti-Bush/Martin placards and gave speeches with a Haitian
band in the background. The Pettigrew attacker was not a
Haitian exile, but rather a failed student with a record of
participation in violent demonstrations. He apparently made
his way into the press conference with a false press
pass.
¶28. (SBU) PM Martin's Special Coordinator for Haiti Denis
Coderre wrapped up the conference by stating that the
international community must be firm in not allowing any
intimidation by criminal groups or political parties as
Haiti moves towards elections. The time for words is over,
and it is time to deliver, he said. To the Haitian people
he sent the message "you are not alone, we are all Haitian."
Visit Canada's Classified Web Site at
http://www.state.sgov.gov/p/wha/ottawa
WILKINS