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### Viewing cable 09NAIROBI1273, INTERNATIONALIZING CAPACITY BUILDING FOR EAST

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
09NAIROBI1273 | 2009-06-25 09:09 | 2011-04-28 00:12 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Nairobi

`

    VZCZCXRO8593
    PP RUEHBZ RUEHDU RUEHGI RUEHJO RUEHMA RUEHMR RUEHPA RUEHRN RUEHTRO
    DE RUEHNR #1273/01 1760921
    ZNR UUUUU ZZH
    P 250921Z JUN 09
    FM AMEMBASSY NAIROBI
    TO RUEHC/SECSTATE WASHDC PRIORITY 9968
    INFO RUEHZO/AFRICAN UNION COLLECTIVE PRIORITY
    RUEHBJ/AMEMBASSY BEIJING PRIORITY 0490
    RUEHRL/AMEMBASSY BERLIN PRIORITY 0360
    RUEHBS/AMEMBASSY BRUSSELS PRIORITY 2143
    RUEHCP/AMEMBASSY COPENHAGEN PRIORITY 0216
    RUEHHE/AMEMBASSY HELSINKI PRIORITY 0066
    RUEHLO/AMEMBASSY LONDON PRIORITY 3246
    RUEHMD/AMEMBASSY MADRID PRIORITY 0136
    RUEHMO/AMEMBASSY MOSCOW PRIORITY 0326
    RUEHNY/AMEMBASSY OSLO PRIORITY 1330
    RUEHFR/AMEMBASSY PARIS PRIORITY 3118
    RUEHRO/AMEMBASSY ROME PRIORITY 5495
    RUEHSM/AMEMBASSY STOCKHOLM PRIORITY 0543
    RUEHTC/AMEMBASSY THE HAGUE PRIORITY 1076
    RUEHKO/AMEMBASSY TOKYO PRIORITY 0770
    RUZEFAA/HQ USAFRICOM STUTTGART GE PRIORITY
    RHMFIUU/CJTF HOA  PRIORITY
    RUZEFAA/CDR USAFRICOM STUTTGART GE PRIORITY
    RUEKJCS/SECDEF WASHDC//ISA AFRICA PRIORITY

` `

    UNCLAS SECTION 01 OF 03 NAIROBI 001273

    SENSITIVE
    SIPDIS

    EMBASSY ADDIS ABABA: PLEASE PASS TO USAU
    DEPARTMENT FOR AF/RSA

    E.O. 12958: N/A
    TAGS: MARR MASS PREL XA CA UK AS
    SUBJECT: INTERNATIONALIZING CAPACITY BUILDING FOR EAST
    AFRICA'S AU STANDBY FORCE

    REF: A. NAIROBI 994
         ¶B. NAIROBI 43

    -------
    Summary
    -------

    ¶1. (SBU) On June 23, the British High Commissioner convened a
    meeting with Canada, Australia, and the United States to
    garner support for their efforts to internationalize Kenya's
    peacekeeping training centers.  The British see this step as
    necessary to maintain the momentum to turn the East African
    Standby Brigade (EASBRIG) into a viable standby force.  While
    the assembled group supported the strengthening of East
    Africa's regional security capacity, others' ability to
    contribute and opinions on how to get there from here were
    diverse.  We reiterated that the lack of a Presidential
    Determination limits how we can engage with EASBRIG.  We also
    advised that because we deal on a bilateral basis with
    Kenya's training centers, their internationalization would
    require a re-assessment of how (or whether) we can continue
    to provide funding and manpower to support them.

    ¶2. (SBU) The assembled group agreed to consider a joint
    demarche to the Government of Kenya to follow through on
    their alleged commitment to internationalize the peacekeeping
    training centers and the importance of promoting a regional
    approach to building security capacity.  There was also
    general agreement that the donor community should consider
    using the next Friends of EASBRIG meeting, tentatively
    scheduled for July 14 in Addis Ababa, and the EASBRIG Chiefs
    of Defense Staff and Ministers' Summit, tentatively planned
    for August in Addis Ababa, as opportunities to talk more
    about the way forward.  End Summary.

    ¶3. (U) This cable contains an action request. See para 12.

    --------------------------------------------- --
    UK Investment in East African Security Capacity
    --------------------------------------------- --

    ¶4. (SBU)  On June 23, British High Commissioner Robert
    Macaire convened a meeting that included the Chiefs of
    Mission and Defense Advisors of Canada, Australia, and the UK
    as well as PolOff and Deputy KUSLO.  Also present was COL
    Andy Mason, the UK's liaison officer to the EASBRIG
    Coordination Mechanism (EASBRICOM).

    ¶5. (SBU) Macaire said that the British government is anxious
    to ensure its investment in developing a regional training
    platform for East African security forces through the
    International Peace Support Training Center (IPSTC) and the
    Humanitarian Peace Support School (HPSS - formerly known as
    the International Mine Action Training Center (IMATC)), both
    located on the outskirts of Nairobi, are not in vain.  To
    keep these organizations viable, he argued, their management
    must be internationalized in the form of a donor-led board of
    directors.  The Kenyan military is operationally in charge of
    both organizations and as a result they do not function as
    true regional organizations, Macaire said.  Also, the
    European Union would like to support the development of East
    Africa's regional security capacity, and the establishment of
    an international board of directors for a merged IPSTC-HPSS
    training facility would allow EU member states to donate
    funding more easily.  The ultimate goal of these
    institutions, Macaire continued, is to create a viable
    standby force in the form of EASBRIG, the only organization
    that has the African Union (AU) mandate for maintaining peace

    NAIROBI 00001273  002 OF 003

    and security in the region. (Note: The UK Ministry of Defense
    through the British Peace Support Team has indeed made a
    significant investment in establishing and developing all
    three of these institutions with a good degree of success to
    date, and their guiding hand is still very much visible.  End
    Note.)

    ¶6. (SBU) Macaire asked the Canadians, Australians, and
    Americans together to get a sense of their willingness to (a)
    jointly demarche the Kenyans on the need to follow through on
    their alleged commitment to internationalize the management
    of the training institutions, and (b) provide additional
    support to keep the training institutions sustainable,
    particularly in the form of trainers posted to HPSS's new
    Tactical Peace Support Operations School.  (Note: While
    Macaire said that the British Government is not planning to
    pull their security assistance away from Kenya in the same
    way they have in parts of West Africa, he emphasized that
    they could not maintain their current level of military
    support. End Note.)
    -------------------
    Diplomats' Reaction
    -------------------

    ¶7. (SBU) The Canadians and Australians discussed their
    current and potential future support to capacity building.
    In both cases, support is limited and still on a year-to-year
    basis.  Neither mission appeared to have strong opinions on
    the internationalization issue, although Australian High
    Commissioner Lisa Filipetto did express the need to work
    through the AU and asked whether it would be possible to fund
    IPSTC through the AU, perhaps through a memorandum of
    understanding.

    ¶8. (SBU) We reiterated our EASBRIG policy: the United States
    is happy to provide bilateral support to Kenya's training
    centers in the form of funding and liaison officers.  We also
    support bilateral assistance to EASBRIG member countries that
    can be used to support EASBRIG's ultimate goals; however, the
    lack of a Presidential Determination ties our hands in
    providing direct support to EASBRIG, and any
    internationalization of Kenya's training centers may
    constrain our ability to support them as well.

    -------------
    The Way Ahead
    -------------

    ¶9. (SBU) Comment: It is Post's understanding that the
    Department is not ready to move forward with a request for a
    Presidential Determination on EASBRIG because the
    organization is not formally recognized by the member states'
    parliaments and is, therefore, not yet robust enough to be
    recognized as an international organization.  In Post's view,
    EASBRIG has some serious sustainability and commitment
    problems, as described in ref B.  Potential U.S. funding
    implications aside, the goal to internationalize IPSTC's
    management would almost certainly make the institutions
    easier to donate to for the rest of the international
    community should they decide to do so.  However, it could
    also decrease member states' incentive to take real ownership
    of their own regional security capacity, which is one of the
    major factors holding EASBRIG back.

    ¶10. (SBU) Comment, cont.: We also have our doubts, frankly,
    about the level of sophistication that the UK is trying to
    infuse in its training regimen (e.g., combined military,
    police and civilian planning and operations); these goals are

    NAIROBI 00001273  003 OF 003

    too ambitious to become a reality any time soon, especially
    given the current skill levels of member states' security
    forces.  How can EASBRIG member states take ownership of a
    template they will never be able to maintain without outside
    assistance?  Western countries have certainly not mastered
    the art of such combined operations.  On the other hand, it
    is EASBRIG (not the East African Community) that has the AU's
    mandate for peace and security in East Africa.  How, then, to
    move forward?

    ¶11. (SBU) Comment, cont.: In our view, it is worth
    considering beginning a more strategic dialogue, perhaps at
    both the member state and AU level, about the Presidential
    Determination issue with an eye toward encouraging greater
    ownership by EASBRIG member countries.  The British believe
    that helping member states finalize the draft Harmonized
    Policy Framework will be a step in the right direction.  We
    at Post think this may be of assistance, but it will be more
    important to listen to what the EASBRIG member states
    themselves are prepared to commit to vice projecting our
    plans onto them.  The next Friends of EASBRIG meeting,
    tentatively scheduled to take place in Addis Ababa on July
    14, will allow the Friends to discuss these issues among
    ourselves.  An ideal place for commencing this larger
    dialogue with the AU and EASBRIG member states is at the
    EASBRIG Chiefs of Defense Staff and Ministers' Summit,
    tentatively planned for August in Addis Ababa.  Although
    non-EASBRIG members (i.e., Friends of EASBRIG) have not
    regularly attended such summits, we believe that including
    the "Friends" either in the summit or in the margins of the
    summit would initiate a constructive and direct dialogue
    between AU/EASBRIG members and donor partners/governments.
    End Comment.

    ¶12. (SBU) Action Request: The UK is hosting a meeting on July
    3 to explain in more detail the IPSTC board proposal, and is
    inviting UNDP, Germany, Kenya, and the United States among
    others.  Post requests that the Department review existing
    policy on U.S. support to IPSTC and HPSS to identify any
    potential difficulties with future funding streams and/or
    manning should these institutions fall under the management
    of an international board of directors.  Post also requests
    that the Department outline more fully the steps needed for
    EASBRIG to gain recognition as an international organization
    under a Presidential Determination and consider turning this
    into a larger outreach strategy.  Finally, we expect the
    British to circulate draft talking points for a joint
    demarche to the Kenyans soon.  We will forward these to the
    Department for approval on receipt.  End Action Request.
    RANNEBERGER

`