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Viewing cable 07NAIROBI1669, ACHIEVING USG GOALS IN KENYA'S ELECTION

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Reference ID Created Released Classification Origin
07NAIROBI1669 2007-04-17 09:24 2011-08-25 00:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Nairobi
VZCZCXRO7666
RR RUEHROV
DE RUEHNR #1669/01 1070924
ZNR UUUUU ZZH
R 170924Z APR 07
FM AMEMBASSY NAIROBI
TO RUEHC/SECSTATE WASHDC 9024
INFO RUCNIAD/IGAD COLLECTIVE
UNCLAS SECTION 01 OF 05 NAIROBI 001669 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
FOR AF/E AND INR/AA 
 
E.O. 12958: N/A 
TAGS: KE PGOV PHUM EAID
SUBJECT: ACHIEVING USG GOALS IN KENYA'S ELECTION 
 
REF: A. NAIROBI 733 AND PREVIOUS 
 
     B. NAIROBI 1514 
 
1. (SBU) Summary and Introduction:  Kenya has an opportunity 
this year to enhance its position as a leading African 
democracy.  USG goals for Kenya's December 2007 general 
elections are that 1) they are transparent and competitive, 
producing credible, widely accepted results; 2) candidates 
and their supporters eschew violence and ethnic polarization; 
and 3) candidates discuss issues important to the electorate, 
including priority issues for the USG such as insecurity and 
corruption.  U.S. Mission Kenya's comprehensive interagency 
strategy to achieve these goals consists of public diplomacy 
themes; advocacy at all levels of government, political 
parties, the press, civil society, and religious leadership; 
and direct assistance, including donor-coordinated support to 
the Electoral Commission of Kenya, political party 
strengthening and fielding observers in a joint diplomatic 
observation mission.  Campaign themes and the outcome of the 
election itself will largely determine the Kenyan political 
agenda for the following five years, and so will have a major 
effect on Kenya's receptivity to USG priorities.  The 
Ambassador will delineate U.S. views on the elections in a 
major speech in early May (which will be cleared with the 
Department).  End Summary. 
 
Public Diplomacy Themes 
 
2. (SBU) In speeches, editorials and press statements, the 
U.S. mission will communicate the following themes. 
 
3. (SBU) Positioning:  Some civil society leaders and 
opposition members of Parliament have complained recently 
that the U.S. mission is not close enough to the opposition. 
In fact, we have close contacts with the opposition from the 
top levels through the Ambassador to to all levels.  However, 
the opposition longs for the days in 2005 when Foreign 
Minister Tuju publicly condemned the U.S. mission for 
supposedly desiring "regime change" in Kenya.  They also cite 
the period in the 1990s when the U.S. mission openly sided 
against the Moi administration in favor of the multiparty 
democracy movement.  However, the present government, for all 
its flaws, was elected under conditions widely considered 
free and fair.  As for its indulgence of corrupt members of 
the political class, we note that the opposition has taken no 
disciplinary action against notoriously corrupt members 
within its own ranks.  Corruption plagues the entire 
political class.  We will continue to publicly condemn it as 
a major impediment to Kenya's progress.  We will continue to 
work closely with the Kibaki administration to achieve USG 
goals, but we will continue to assert ourselves as completely 
neutral concerning the election itself.  Our strategy is to 
build capital with the government to be spent as needed over 
the course of the campaign to address critical electoral 
issues.  We started that process through emphasis on the 
U.S.-Kenya partnership (reftel B).  While we will be strictly 
neutral among the contending political parties, we will be 
fiercely partisan in support of the democratic process. 
 
4. (SBU)  Ethnic Incitement & Ethnic Bloc Voting:  Political 
observers are raising alarms about the prospects of ethnic 
violence during the upcoming campaign at rates higher than 
the historically low levels of the 2002 national election and 
the 2005 national referendum.  We consider that the 
opposition is more likely than the government to play the 
ethnic card as a means of mobilizing its supporters. 
However, the governing coalition also has violence-prone 
youth supporters and outright criminal gangs at its disposal 
to counter opposition "militants" and to pursue local "ethnic 
mobilization" where it suits their interests.  We will make 
our message of ethnic harmony a central theme in all our 
public and private outreach.  We will stress that all leaders 
in Kenya, whether political, religious or civil society, have 
a responsibility to promote ethnic harmony and to condemn 
those who incite ethnic violence.  Political party leaders in 
particular have a duty to discipline and disown their members 
who employ this tactic.  We will also urge that campaigns 
focus on issues rather than simply encouraging ethnic bloc 
voting through promises of patronage and other means, which 
has been the tradition.  We will recommend public debates and 
town hall meetings as ways of communicating candidates' 
platforms to the voters. 
 
5. (SBU) Inclusiveness:  Historically, women and youth have 
been underrepresented among actual voters due to intimidation 
and bureaucratic hurdles to obtaining necessary 
identification documents.  Similarly, preliminary voter 
registration numbers indicate that some regions (notably 
pro-government central province) have considerably higher 
rates of voter registration than others (notably the 
 
NAIROBI 00001669  002 OF 005 
 
 
underpopulated and logistically challenging northern half of 
the country).  Kenyan Muslims have long complained of 
disenfranchisement due to the considerable difficulty they 
experience when applying for national identification 
documents.  The majority of the potential electorate is 
female and under 30 years old.  We will urge the government 
to register all eligible citizens without regard to gender, 
age, region, religion or ethnicity.  This will require 
commitment from both the Ministry of Immigration and 
Registrar of Persons (national identification cards) and the 
Electoral Commission of Kenya (voter identification cards). 
We will also support efforts to mobilize participation 
through voter awareness and education. 
 
6. (SBU) Neutrality of Administration & Prohibition on Use of 
Government Resources for Partisan Purposes:  We will publicly 
review the record of the July 2006 by-elections in this 
regard, and the condemnation of government abuses at that 
time made by the Chairman of the Electoral Commission of 
Kenya and the Chairman of the Kenya Human Rights Commission. 
We will emphasize the importance of a level playing field so 
that the true voice of the Kenyan people may be heard.  We 
are working to bolster the independence of the Electoral 
Commission of Kenya. 
 
Advocacy Efforts 
 
7. (SBU) We are conducting both bilateral and multilateral 
advocacy regarding the elections.  Our multilateral efforts 
are described in paras 9 and 15 below.  As for our bilateral 
effort, U.S. mission officials will discuss specific 
electoral issues related to the themes outlined above with 
key decisionmakers in government, the Electoral Commission of 
Kenya, the political parties, religious organizations, the 
press and civil society both pro-actively and as 
election-related crises arise.  We will urge adherence to 
democratic principles, avoidance of inflammatory and divisive 
language, effective voter and civic education, and 
campaigning focused on national issues rather than parochial 
and ethnic interests.  We will stress freedom of assembly and 
association, a level electoral playing field, the importance 
of an independent and effective electoral commission and 
provincial administration, and the need for increasing the 
availability of objective campaign information for voters. 
We will encourage candidates and political parties to speak 
out on issues of particular interest to the electorate, as 
evidenced in polling.  Polling data shows that issues 
important to the USG, such as corruption and insecurity, also 
top the list for Kenya's voters.  We will emphasize in all 
our discussions that Kenya has a great opportunity in this 
election to strengthen its democracy and to form a national 
consensus on how best to address issues that hinder Kenya's 
economic and social progress. 
 
8. (SBU) Electoral Reform:  As reported in reftel B, 
electoral reform continues to be a hotly debated topic in 
Kenya.  There is a consensus among all political parties and 
civil society that reform is required.  There are no 
prominent defenders of the status quo.  However, there is no 
consensus on the scope of reforms and the particulars of 
those reforms.  Since the 2002 general election and the 2005 
referendum on the draft constitution were both held under the 
present electoral system and were deemed free and fair, and 
since Kenyan society is adequately debating electoral reform, 
we see no reason for the USG to enter the fray.  However, we 
have urged on all parties a spirit of compromise and an 
emphasis on the longterm best interests of the nation rather 
than short term electoral advantage.  An opposition leader 
recently threatened a boycott of elections if his party's 
electoral reform demands are not met.  We made it clear to 
him that such intemperate language is not constructive and 
that boycotts are not acceptable.  He stopped issuing boycott 
threats. 
 
Direct Action:  Donor Coordination, Election Observation & 
Strengthening Political Parties 
 
9. (SBU)  As agreed with the donors, the U.S. Mission is 
taking the lead on coordination.  USAID/Kenya chairs the 
Electoral Process Donor Coordination Group, which includes 
representatives from 13 bilateral and multilateral 
organizations.  We are playing a leading role within the 
Like-Minded Donors Group (LIMID, which includes Canada, the 
UK, Norway, Japan, Switzerland and Germany) through the 
participation of the Ambassador, USAID/Kenya's Democracy and 
Governance office, and the Embassy political section.  We 
drafted a document adopted by LIMID (and the EU) containing 
shared guiding principles to inform a common political 
message to be delivered consistently over the next nine 
months by members of all LIMID-EU missions to government 
 
NAIROBI 00001669  003 OF 005 
 
 
officials (including the President), political party leaders, 
and the media (see text in para 15 below).  The same message 
will be presented at a joint heads of mission press 
conference closer to the election.  In addition to this 
proactive strategy, the agreed-upon common principles will 
allow the LIMID-EU group to respond quickly to any instances 
of misconduct or other concern.  Within the LIMID-EU group, 
thematic working groups will track and address issues such as 
media freedom and electoral violence.  Complementing 
political advocacy in the capital, inter-mission teams, with 
U.S. Mission  participation, will visit identified "hotspots" 
outside of Nairobi to meet with local electoral officials, 
provincial administration, police, and civil society groups, 
again delivering a common message. 
 
10.  (SBU) The culmination of the year-long coordinated LIMID 
electoral process support effort will be a joint diplomatic 
observer mission, with the possibility of participation by 
the EU Commission and other diplomatic missions from 
democratic states (Community of Democracies member states 
with representation in Kenya).  Observers from all 
participating missions will witness campaigning and polling 
in prioritized constituencies.  UNDP (with USAID support, see 
para 13 below) is considering a proposal to fund an 
observation coordinator to provide support for accreditation, 
observer training, transportation coordination, and to 
maximize coverage and minimize overlap.  The U.S. mission 
plans to field approximately 100 two-member teams comprised 
of one Kenyan and one American staff member, as it did in 
2002 and 2005.  The joint diplomatic observer mission at its 
conclusion will submit a single report to the Electoral 
Commission of Kenya, as well as issue a public statement 
immediately after election day.  Based on past experience, 
the EU is likely to release its own report and not be a 
signatory to the joint report. 
 
11. (SBU) USAID/Kenya funded a pre-electoral assessment in 
February 2006. Based on that assessment and on discussions 
within the USG, with key Kenyan partners, particularly the 
Electoral Commission of Kenya (ECK), and other donor 
partners, USAID/Kenya has expanded current electoral 
assistance in preparation for the 2007 national elections. 
Electoral support consists of enhanced ongoing assistance in 
the fields of elections administration, public opinion 
polling and political party strengthening; and new program 
assistance as described below. 
 
12. (U) Ongoing Assistance:  USAID/Kenya has ongoing support 
in the areas of electoral administration, public opinion 
polling and political party strengthening.  Program 
activities include the following: 
 
-- Elections Administration: Developing the capacity of the 
Electoral Commission of Kenya (ECK) to effectively administer 
elections has been the largest single component of USAID,s 
electoral processes support. The International Foundation of 
Election Systems (IFES) began implementing this program in 
March 2001. Activities have emphasized providing appropriate 
technology for more efficient, secure and transparent 
elections administration while improving the skills of the 
ECK technical staff.  This assistance also serves to 
reinforce the independence of the ECK. 
 
-- Public Opinion Polling:  The International Republican 
Institute began implementing a public opinion program in 
2005.  The program seeks to achieve two results: increasing 
the availability of objective and reliable polling data; and 
providing an independent source of verification of electoral 
outcomes via exit polls.  These results make an important 
contribution to elections and political processes.  First, 
genuine free and fair elections require that citizens make 
informed choices. The polling data adds to the objective data 
available to citizens on key electoral issues.  Second, the 
exit polls provide an independent assessment of the accuracy 
of the official electoral results, thereby supporting the 
assessment of the credibility of Kenyan electoral processes. 
This program also enhances democratic political parties by 
enhancing the likelihood that candidates base their platforms 
on the key issues and concerns of their constituents, 
evidenced in the polling data, rather than the traditional 
focus on ethnicity and personalized political wrangling. 
 
-- Strengthening Political Parties:  In 2006 NDI began 
assisting political parties to achieve three results: 
developing predictable party structures that encourage 
genuine participation of women and youth, increasing the 
emphasis on issues in campaigns, and articulating the need 
for electoral reforms. This program is at the core of efforts 
to promote democratic political parties. Its activities will 
culminate in the long-term goals of issues-based public 
 
NAIROBI 00001669  004 OF 005 
 
 
policy and campaigning; women and youth serving in meaningful 
party leadership positions; and a legislative environment 
that promotes transparency and levels the electoral playing 
field. 
 
13. (U) New Program Assistance: USAID is in the final stages 
of awarding a grant to UNDP as part of a two-year multi-donor 
funded, comprehensive electoral assistance program, which 
will promote the legitimate contest for ideas through 
democratic processes reflecting Kenyans, will.  The goal: 
Kenyan national elections will be free and fair with minimal 
violence or electoral irregularities.  The program's 
activities will include increasing the efficiency and 
professional management of the electoral process (implemented 
in cooperation with the IFES program outlined above); 
enhancing information available to voters; empowering them to 
make informed choices regarding candidates through such 
events as debates and town hall meetings; adding to citizens' 
knowledge of the electoral process; improving the accuracy of 
media reporting on electoral issues; reducing incidences of 
electoral violence; and enhancing the effectiveness of 
domestic observation.  This mechanism provides opportunities 
to harmonize the efforts of 10 donors while significantly 
leveraging funds.  It also allows for maximum host country 
ownership.  A Program Steering Committee, including four 
members of the Electoral Commission of Kenya and three 
donors, and led by USAID, oversees the program.  USG funds 
account for approximately 25% of the overall program costs. 
 
An Historic, Agenda-Setting Election 
 
14. (SBU)  Kenya today easily has more civic freedoms than at 
any time in its 112 year history as a political entity.  This 
will be the first multiparty election organized by a Kenyan 
government that has credible democratic credentials and broad 
domestic and international legitimacy.  The issues that 
candidates and the media emphasize in this election will 
greatly influence Kenya's political agenda for the next five 
years.  We will make every effort to assist Kenyans to 
strengthen and institutionalize their democracy.  A credible 
process will contribute to improved governance more 
responsive to Kenya's citizenry and more prepared to address 
the issues of greatest concern to both the Kenyan people and 
the USG, namely corruption, insecurity and tribalism. 
 
Coordinated Donor Advocacy Text 
 
15. (U)  Support for Kenya,s 2007 Elections:  We, the Heads 
of Missions of (names of Missions in alphabetical order; 
confirmed by 17APR07: Canadian High Commission, UK High 
Commission, Embassy of Switzerland, Embassy of Noway, Embassy 
of the United States of America) support Kenya,s dynamic 
democracy and are therefore committed to supporting a fair, 
inclusive, transparent and non-violent electoral process 
during this election year. In doing so we shall be guided by 
the following principles: 
 
-- Elections are vital to the enjoyment of civil and 
political rights, and helping       Kenya promote and protect 
the rights of its citizens is an important aspect of our 
partnership with Kenya; 
 
-- We shall remain non-partisan and entirely neutral with 
regard to the political parties or candidates contesting the 
election; our support is for the Kenyan people and the 
country,s democratic development; 
 
-- We intend to help Kenya promote a peaceful and fair 
campaign as well as transparent and effective voting in 
accordance with Kenyan law, the Electoral Code of Conduct, 
and international elections standards; 
 
-- We support the Electoral Commission of Kenya as the body 
charged with administering Kenya,s elections.  The ECK 
should be unhindered in fulfilling its mandate, including the 
provision of voter education so that all voters are well 
informed of electoral procedures.  Continuity of ECK 
leadership will contribute to the credibility of the 
electoral process; 
 
-- There should be no effort to intimidate the media; the 
media is expected to provide objective and unbiased reporting 
of the electoral process and refrain from ethnic incitement. 
 
-- All civil servants, including Provincial and District 
Administration officials, are expected to abide by the Public 
Officer,s Ethics Act, to remain politically neutral and 
should not interfere in the election process.  They are 
expected to create conditions in which all candidates, 
voters, members of the media and civil society may move 
 
NAIROBI 00001669  005 OF 005 
 
 
throughout the country and assemble freely; 
 
-- The government and political parties should seek to 
discourage tribalism; 
 
-- There should be zero tolerance for any elections-related 
violence; and 
 
-- Consistent with existing codes and legislation, government 
resources should not be used to carry out political campaigns 
or to influence the electoral process. 
 
 
RANNEBERGER