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PHUM PINR PTER PGOV PREL PREF PL PM PHSA PE PARM PINS PK PUNE PO PALESTINIAN PU PBTS PROP PTBS POL POLI PA PGOVZI POLMIL POLITICAL PARTIES POLM PD POLITICS POLICY PAS PMIL PINT PNAT PV PKO PPOL PERSONS PING PBIO PH PETR PARMS PRES PCON PETERS PRELBR PT PLAB PP PAK PDEM PKPA PSOCI PF PLO PTERM PJUS PSOE PELOSI PROPERTY PGOVPREL PARP PRL PNIR PHUMKPAL PG PREZ PGIC PBOV PAO PKK PROV PHSAK PHUMPREL PROTECTION PGOVBL PSI PRELPK PGOVENRG PUM PRELKPKO PATTY PSOC PRIVATIZATION PRELSP PGOVEAIDUKNOSWGMHUCANLLHFRSPITNZ PMIG PREC PAIGH PROG PSHA PARK PETER POG PHUS PPREL PS PTERPREL PRELPGOV POV PKPO PGOVECON POUS PGOVPRELPHUMPREFSMIGELABEAIDKCRMKWMN PWBG PMAR PREM PAR PNR PRELPGOVEAIDECONEINVBEXPSCULOIIPBTIO PARMIR PGOVGM PHUH PARTM PN PRE PTE PY POLUN PPEL PDOV PGOVSOCI PIRF PGOVPM PBST PRELEVU PGOR PBTSRU PRM PRELKPAOIZ PGVO PERL PGOC PAGR PMIN PHUMR PVIP PPD PGV PRAM PINL PKPAL PTERE PGOF PINO PHAS PODC PRHUM PHUMA PREO PPA PEPFAR PGO PRGOV PAC PRESL PORG PKFK PEPR PRELP PREFA PNG PGOVPHUMKPAO PRELECON PINOCHET PFOR PGOVLO PHUMBA PRELC PREK PHUME PHJM POLINT PGOVPZ PGOVKCRM PGOVE PHALANAGE PARTY PECON PEACE PROCESS PLN PRELSW PAHO PEDRO PRELA PASS PPAO PGPV PNUM PCUL PGGV PSA PGOVSMIGKCRMKWMNPHUMCVISKFRDCA PGIV PRFE POGOV PEL PBT PAMQ PINF PSEPC POSTS PHUMPGOV PVOV PHSAPREL PROLIFERATION PENA PRELTBIOBA PIN PRELL PGOVPTER PHAM PHYTRP PTEL PTERPGOV PHARM PROTESTS PRELAF PKBL PRELKPAO PKNP PARMP PHUML PFOV PERM PUOS PRELGOV PHUMPTER PARAGRAPH PERURENA PBTSEWWT PCI PETROL PINSO PINSCE PQL PEREZ PBS
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### Viewing cable 02HANOI3055, THE DILEMMA OF THE CENTRAL HIGHLANDS

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
02HANOI3055 | 2002-12-23 09:36 | 2011-08-25 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Hanoi

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

    230936Z Dec 02

                               UNCLASSIFIED     PTQ1265

    PAGE 01        HANOI  03055  01 OF 04  231019Z
    ACTION EAP-00

    INFO  LOG-00   NP-00    AID-00   AMAD-00  ACQ-00   CIAE-00  DINT-00
          DODE-00  DOEE-00  SRPP-00  DS-00    EB-00    ED-01    FBIE-00
          UTED-00  VC-00    HHS-01   H-01     TEDE-00  INR-00   IO-00
          L-00     VCE-00   AC-01    DCP-01   NSAE-00  NSCE-00  OIC-02
          OMB-01   OPIC-01  PA-00    PM-00    PRS-00   ACE-00   P-00
          SP-00    SSO-00   STR-00   TEST-00  TRSE-00  USIE-00  PMB-00
          DSCC-00  PRM-00   DRL-02   G-00     NFAT-00  SAS-00     /011W
                      ------------------1BB286  231019Z /38
    FM AMEMBASSY HANOI
    TO SECSTATE WASHDC IMMEDIATE 8448
    INFO AMCONSUL HO CHI MINH CITY
    AMEMBASSY PHNOM PENH
    AMEMBASSY VIENTIANE
    USCINCPAC HONOLULU HI

` `

    UNCLAS SECTION 01 OF 04 HANOI 003055

    SIPDIS

    SENSITIVE

    STATE FOR EAP/BCLTV AND DRL

    E.O. 12958:  N/A
    TAGS: PHUM PGOV PINS PREL SOCI VM HUMANR ETMIN RELFREE
    SUBJECT:  THE DILEMMA OF THE CENTRAL HIGHLANDS

    REF:  HANOI 2975

                           UNCLASSIFIED

    PAGE 02        HANOI  03055  01 OF 04  231019Z

    ¶1.  (U) THIS IS A JOINT EMBASSY/CONGEN MESSAGE.

    ¶2.  (SBU) SUMMARY:  THE REAL STORY OF THE CENTRAL HIGHLANDS
    IS A LONG-TERM STRUGGLE FOR MODERNIZATION AND DEVELOPMENT IN
    A REGION DEFINED BY ETHNIC RESENTMENT, ECONOMIC IMBALANCE,
    POVERTY AND ISOLATION, LAND ISSUES, RELIGIOUS DIFFERENCES,
    INTOLERANCE OF POLITICAL ACTIVITY, AND AN ALMOST XENOPHOBIC
    FEAR OF OUTSIDE INFLUENCE.  BY THE STANDARDS OF THE GVN AND
    CPV, THIS DEVELOPMENT HAS NECESSITATED AND WILL CONTINUE TO
    INVOLVE TOP-DOWN CONTROL, FORCED ECONOMIC DECISIONS THAT ARE
    SOMETIMES UNWISE, AND HEAVY-HANDED ORGANIZATIONAL EFFORTS
    THAT LEAVE TOO LITTLE SCOPE FOR TRADITIONAL PRACTICES AND
    VALUES, AS WELL AS FOR RELIGIOUS WORSHIP OUTSIDE THE CONTEXT
    OF "LEGAL" RELIGIOUS BODIES.

    ¶3.  (SBU) HOWEVER, WE DO NOT/NOT BELIEVE THAT THERE IS ANY
    SYSTEMATIC EFFORT TO PERSECUTE THE ETHNIC MINORITIES IN
    THESE AREAS, NOR TO WIPE OUT RELIGIOUS BELIEF, INCLUDING THE
    PROTESTANT FAITH.  PERIODIC UNREST, ONGOING ALLEGATIONS OF
    POLITICAL AND RELIGIOUS PERSECUTION OF ETHNIC MINORITIES,
    AND NUMEROUS INSTANCES OF BAD GOVERNANCE IN THE CENTRAL
    HIGHLANDS CONTINUE TO RAISE CONCERNS WITHIN THE USG AND
    AMONG INTERNATIONAL OBSERVERS, BUT ARE NOT ALL THAT
    DIFFERENT FROM SIMILAR PROBLEMS IN OTHER PARTS OF THE
    COUNTRY.  GVN OFFICIALS WILL CONTINUE TO HAVE DEEP
    SUSPICIONS OF THE SEPARATIST GOALS OF SOME INDIVIDUALS AND
    GROUPS, NOTABLY THE "DEGAS," AND ARE NOT ENTIRELY OFF THE
    MARK WHEN DESCRIBING "PLOTS" BY OUTSIDE AGITATORS.  WHILE
    USG INFLUENCE MAY BE LIMITED, WE MUST CONTINUE TO PRESS FOR
    HOLDING GVN AND CPV OFFICIALS ACCOUNTABLE FOR CREDIBLE
                           UNCLASSIFIED

    PAGE 03        HANOI  03055  01 OF 04  231019Z
    INSTANCES OF HUMAN RIGHTS ABUSES AND FOR GREATER
    INTERNATIONAL ACCESS.  ACCURATE INFORMATION IS OFTEN
    LOGISTICALLY IMPOSSIBLE TO OBTAIN.  THE BOTTOM LINE WILL
    REMAIN THAT NOT MUCH IS LIKELY TO CHANGE VERY QUICKLY IN THE
    CENTRAL HIGHLANDS, FOR BETTER OR FOR WORSE.  END SUMMARY.

    ¶4.  (U) THE 2001 AND 2002 HUMAN RIGHTS REPORTS AND
    INTERNATIONAL RELIGIOUS FREEDOM REPORTS FOR VIETNAM
    HIGHLIGHT THE EXTENT TO WHICH PROBLEMS IN THE CENTRAL
    HIGHLANDS REMAIN A KEY ISSUE OF CONCERN BOTH FOR THE USG AND
    FOR THE GVN.  SOME OF THOSE PROBLEMS INCLUDE THE
    FEBRUARY/MARCH 2001 DEMONSTRATIONS AND SUBSEQUENT FLIGHT OF
    ABOUT 1,000 MONTAGNARDS TO CAMBODIA, THE COLLAPSE OF A UNHCR-
    BROKERED PROGRAM OF VOLUNTARY REPATRIATION IN FEBRUARY 2002,
    CONTINUED HUMAN RIGHTS ABUSE ALLEGATIONS (PHYSICAL
    MISTREATMENT, DEPRIVATION OF POLITICAL RIGHTS, FORCED
    RENUNCIATION OF RELIGIOUS FAITH, CLOSURE OF CHURCHES, ETHNIC
    DISCRIMINATION), CREDIBLE REPORTS OF CORRUPTION AND BAD
    GOVERNANCE BY GVN OFFICIALS, AND DISPUTES OVER LAND.  TO A
    LARGE DEGREE, HOWEVER, TODAY'S PROBLEMS ARE NOT ENTIRELY
    NEW, BUT RATHER REFLECT THE HISTORICAL STRAINS OF DAILY LIFE
    IN FOUR OF THE POOREST, MOST ISOLATED PROVINCES IN VIETNAM:
    DAK LAK, GIA LAI, KON TUM, AND LAM DONG.

    --------------------------------------------- ---
    A COMPLEX MIX OF HISTORY, CULTURE, AND ECONOMICS
    --------------------------------------------- ---

    ¶5.  (SBU) CONDITIONS IN THE CENTRAL HIGHLANDS DO NOT LEND
    THEMSELVES TO A SNAPSHOT APPROACH.  THE ETHNIC MINORITIES
    ARE NOT MONOLITHIC, DESPITE THE MISLEADING APPELLATION OF
                           UNCLASSIFIED

    PAGE 04        HANOI  03055  01 OF 04  231019Z
    "MONTAGNARDS" TO THESE VARIOUS GROUPS.  THEIR INTERACTIONS
    WITH THE GVN VARY, AS DO THEIR LEVELS OF INTEGRATION, THEIR
    WILLINGNESS TO SIGN ON TO THE GVN'S AND CPV'S CAMPAIGNS AND
    EFFORTS, THEIR DEGREE OF RELIGIOUS FAITH AND TYPE OF BELIEF,
    ETC.  NOR ARE ACROSS-THE-BOARD CHARACTERIZATIONS OF GVN
    PERFORMANCE POSSIBLE.  THERE ARE MANY WELL-MEANING,
    COMPETENT OFFICIALS WORKING TO BETTER THE LIVES OF THESE
    CITIZENS UNDER VERY DIFFICULT CONDITIONS AND WITH TOO FEW
    RESOURCES, JUST AS THERE ARE ILL INFORMED, PREJUDICED,
    AND/OR CORRUPT OFFICIALS WHO CAN ALL TOO EASILY EXERCISE
    ARBITRARY POWER TO MAKE THE LIVES OF THESE CITIZENS EVEN
    MORE DIFFICULT.

    ¶6.  (SBU) CURRENT CONDITIONS IN THE CENTRAL HIGHLANDS ARE
    FUELED BY LONG-STANDING RESENTMENTS BETWEEN THE ETHNIC
    MINORITIES AND THE MAJORITY KINH, AS WELL AS BY POVERTY,
    ISOLATION, INADEQUATE PUBLIC SERVICES, AND A GENERAL LACK OF
    OPPORTUNITY AND CHOICE.  COMPLICATING THE MIX ARE RELIGIOUS
    FACTORS, PROPERTY ISSUES, LOCAL CORRUPTION, AND OUTSIDE
    INFLUENCES.  THESE FOUR PROVINCES ARE AMONG THE POOREST IN
    VIETNAM AND HAVE NEVER IN HISTORY BEEN FULLY INTEGRATED INTO
    THE BODY POLITIC.  ISOLATED BY DISTANCE, AND INCREASINGLY IN
    TERMS OF ACCESS TO INFORMATION ON EVENTS AND DEVELOPMENTS
    OUTSIDE THE REGION, THE CENTRAL HIGHLANDS CONTINUE TO LAG
    BEHIND MOST OF THE REST OF VIETNAM.  THE DRAMATIC DECLINE IN

                           UNCLASSIFIED

                               UNCLASSIFIED     PTQ1266

    PAGE 01        HANOI  03055  02 OF 04  231019Z
    ACTION EAP-00

    INFO  LOG-00   NP-00    AID-00   AMAD-00  ACQ-00   CIAE-00  DINT-00
          DODE-00  DOEE-00  SRPP-00  DS-00    EB-00    ED-01    FBIE-00
          UTED-00  VC-00    HHS-01   H-01     TEDE-00  INR-00   IO-00
          L-00     VCE-00   AC-01    DCP-01   NSAE-00  NSCE-00  OIC-02
          OMB-01   OPIC-01  PA-00    PM-00    PRS-00   ACE-00   P-00
          SP-00    SSO-00   STR-00   TEST-00  TRSE-00  USIE-00  PMB-00
          DSCC-00  PRM-00   DRL-02   G-00     NFAT-00  SAS-00     /011W
                      ------------------1BB29B  231019Z /38
    O 230936Z DEC 02
    FM AMEMBASSY HANOI
    TO SECSTATE WASHDC IMMEDIATE 8449
    INFO AMCONSUL HO CHI MINH CITY
    AMEMBASSY PHNOM PENH
    AMEMBASSY VIENTIANE
    USCINCPAC HONOLULU HI

    UNCLAS SECTION 02 OF 04 HANOI 003055

    SIPDIS

    SENSITIVE

    STATE FOR EAP/BCLTV AND DRL

    WORLD COMMODITY PRICES, SUCH AS COFFEE AND PEPPER, HAS
                           UNCLASSIFIED

    PAGE 02        HANOI  03055  02 OF 04  231019Z
    DASHED WHAT HAD BEEN RISING EXPECTATIONS VIS--VIS LOCAL
    ECONOMIC PROSPECTS.  TENSIONS BETWEEN THE LOWLAND VIETNAMESE
    KINH AND MANY ETHNIC MINORITY HIGHLANDERS ARE ANOTHER
    HISTORICAL FACT, PREDATING WESTERN INVOLVEMENT IN VIETNAM.

    ¶7.  (SBU) EXACERBATING THAT VOLATILE MIX OF ISSUES ARE
    PERCEIVED THREATS TO CULTURAL IDENTITY AND MAJORITY STATUS
    BORNE OF INTERNAL MIGRATION PATTERNS, AS ECONOMIC MIGRANTS
    HAVE MOVED INTO THE REGION FROM PROVINCES IN THE NORTH AND
    ALONG THE CENTRAL COAST SINCE 1975.  RIGHTLY OR NOT, CENTRAL
    HIGHLANDERS OFTEN VIEW THE VIETNAMESE KINH AS COMPETITORS IN
    A ZERO SUM GAME.  TRANSFORMATION OF TRADITIONAL COMMUNAL
    LANDS (ALMOST NEVER WITH ANY FORMAL TITLE DEEDS) INTO
    DESIGNATED PLOTS FOR THE MIGRANTS FURTHER CREATED
    ANIMOSITIES, BOTH AGAINST THE NEW ARRIVALS AND AGAINST THE
    SOMETIMES CORRUPT GVN OFFICIALS IMPLEMENTING THESE PROGRAMS.
    MANY OF THESE CONFLICTS WERE PROBABLY UNAVOIDABLE BY-
    PRODUCTS OF AN OFTEN BADLY RUN ECONOMIC DEVELOPMENT PROCESS
    GRAPPLING WITH SOMETIMES PRE-MODERN ETHNIC GROUPS.  IN THE
    VIEW OF SOME OF THE ETHNIC GROUPS, HOWEVER, SUCH PROCESSES
    ARE ILL-DISGUISED ATTEMPTS TO ELIMINATE MINORITY CULTURE.

    -------------------
    THE RELIGIOUS ANGLE
    -------------------

    ¶8.  (SBU) THE MAJORITY OF GVN AND CPV OFFICIALS PROFESS NO
    RELIGIOUS BELIEF, WHILE PERHAPS MOST VIETNAMESE KINH ARE AT
    LEAST NOMINALLY BUDDHIST.  MANY OF THE ETHNIC MINORITIES IN
    THE CENTRAL HIGHLANDS -- PARTICULARLY THOSE WHO FLED TO
    CAMBODIA IN THE AFTERMATH OF LAST YEAR'S UNREST -- ARE
                           UNCLASSIFIED

    PAGE 03        HANOI  03055  02 OF 04  231019Z
    PROTESTANT, WHILE OTHERS ARE CATHOLIC AND SOME REMAIN
    ANIMIST.  IN RECENT DISCUSSIONS WITH EMBASSY OFFICERS, GVN
    OFFICIALS HAVE CONTENDED THAT THESE ANIMIST BELIEFS ARE A
    "TRADITIONAL CULTURE" THAT MUST BE SAFEGUARDED AGAINST
    "FOREIGN" INTRUSIONS OF PROTESTANTISM.

    ¶9.  (SBU)  MANY OF THE PROTESTANTS IN THE CENTRAL HIGHLANDS
    ARE FAIRLY RECENT CONVERTS, AS EVANGELISTS -- SOME LOCAL,
    SOME BASED OVERSEAS -- INCREASINGLY CANVASS THE AREA.  THESE
    PROTESTANTS USUALLY WORSHIP IN "HOUSE CHURCHES" THAT ARE NOT
    AFFILIATED WITH ANY OF THE OFFICIAL GVN-RECOGNIZED RELIGIOUS
    BODIES.  AS SUCH, THEIR ACTIVITIES ARE TECHNICALLY ILLEGAL.
    ALTHOUGH THE GVN OFTEN TACITLY TOLERATES THEIR ACTIVITIES,
    OFFICIALS MAY ABRUPTLY LOWER THE BOOM IN REACTION TO
    SPECIFIC EVENTS OR INDIVIDUAL WHIM.  THE GVN AND CPV TEND TO
    ASSUME THAT SUCH "ILLEGAL ACTIVITIES" MAY HAVE A COVERT
    POLITICAL AGENDA, SUCH AS UNDERMINING STATE AUTHORITY OR
    "DESTROYING NATIONAL SOLIDARITY."  THE LINKS OF SOME OF
    THESE GROUPS IN THE CENTRAL HIGHLANDS WITH FOREIGN RELIGIOUS
    INDIVIDUALS AND GROUPS ONLY HEIGHTEN SUCH SUSPICIONS, AS
    RELIGION IS OFTEN SEEN BY THE GVN AS PARTICULARLY
    SUSCEPTIBLE TO OUTSIDE INFLUENCE.

    ¶10.  (SBU) ONE DILEMMA GVN OFFICIALS FACE IS HOW TO
    DISTINGUISH BETWEEN THE AUTONOMY/INDEPENDENCE-MINDED "DEGA"
    PROTESTANTS AND MORE MAINSTREAM PROTESTANTS SEEKING MERELY
    TO PRACTICE THEIR RELIGION AND ORGANIZE THEMSELVES FREELY
    INTO RELIGIOUS COMMUNITIES.  REPORTS OF DEGA PROTESTANTS
    INFILTRATING THEMSELVES INTO MAINSTREAM CONGREGATIONS
    COMPLICATE THE SITUATION THAT MUCH FURTHER.  AGAIN, THERE
    APPEAR CLEARLY TO BE FOREIGN AGITATORS ENCOURAGING THE DREAM
                           UNCLASSIFIED

    PAGE 04        HANOI  03055  02 OF 04  231019Z
    OF A "DEGA" STATE AS WELL AS RESISTANCE TO ANYTHING SMACKING
    OF INTEGRATION WITH OTHER ETHNIC MINORITIES, MUCH LESS THE
    MAJORITY KINH.  THE GVN IS NOT ENTIRELY OFF THE MARK IN
    MAKING THESE CLAIMS.

    ¶11.  (SBU) WE HAVE NO CONCRETE EVIDENCE OF A SUSTAINED OR
    SYSTEMATIC GOVERNMENT EFFORT INTENDED TO PERSECUTE EITHER
    ETHNIC MINORITIES IN GENERAL OR PROTESTANTS MORE
    SPECIFICALLY.  MOREOVER, WE BELIEVE MORE SCRUTINY MUST BE
    GIVEN TO VERIFY OF THE AUTHENTICITY OF DOCUMENTS IN
    CIRCULATION BOTH IN VIETNAM AND OVERSEAS THAT PURPORT TO
    DESCRIBE SUCH FORMAL GVN CAMPAIGNS.  WE ARE PARTICULARLY
    CONCERNED THAT MANY OF THE ALLEGATIONS OF PERSECUTION WE
    RECEIVE MAY BE EXAGGERATED, OR GENERATED BY A SMALL NUMBER
    OF INDIVIDUALS IN A CIRCULAR FASHION.

    -----------------------
    WHAT DOES THE GVN WANT?
    -----------------------

    ¶12.  (SBU) AS ELSEWHERE IN VIETNAM, INCLUDING OTHER AREAS
    WITH SIGNIFICANT ETHNIC MINORITY POPULATIONS (REFTEL), THE
    GVN AND CPV FIRST AND FOREMOST WANT TO ASSERT THEIR CONTROL,
    ENSURE THEIR CONTINUED LEADERSHIP MONOPOLY, AND CREATE
    CONDITIONS OF "POLITICAL STABILITY."  THEY ARE -- AT LEAST

                           UNCLASSIFIED

                               UNCLASSIFIED     PTQ1270

    PAGE 01        HANOI  03055  03 OF 04  231020Z
    ACTION EAP-00

    INFO  LOG-00   NP-00    AID-00   AMAD-00  ACQ-00   CIAE-00  DINT-00
          DODE-00  DOEE-00  SRPP-00  DS-00    EB-00    ED-01    FBIE-00
          UTED-00  VC-00    HHS-01   H-01     TEDE-00  INR-00   IO-00
          L-00     VCE-00   AC-01    DCP-01   NSAE-00  NSCE-00  OIC-02
          OMB-01   OPIC-01  PA-00    PM-00    PRS-00   ACE-00   P-00
          SP-00    SSO-00   STR-00   TEST-00  TRSE-00  USIE-00  PMB-00
          DSCC-00  PRM-00   DRL-02   G-00     NFAT-00  SAS-00     /011W
                      ------------------1BB2AC  231020Z /38
    O 230936Z DEC 02
    FM AMEMBASSY HANOI
    TO SECSTATE WASHDC IMMEDIATE 8450
    INFO AMCONSUL HO CHI MINH CITY
    AMEMBASSY PHNOM PENH
    AMEMBASSY VIENTIANE
    USCINCPAC HONOLULU HI

    UNCLAS SECTION 03 OF 04 HANOI 003055

    SIPDIS

    SENSITIVE

    STATE FOR EAP/BCLTV AND DRL

    SINCE 1986 THROUGHOUT VIETNAM AND ESPECIALLY SINCE 2001 IN
                           UNCLASSIFIED

    PAGE 02        HANOI  03055  03 OF 04  231020Z
    THE CENTRAL HIGHLANDS IN PARTICULAR -- ALSO COMMITTED TO
    ECONOMIC DEVELOPMENT, MODERNIZATION, AND INTEGRATION OF
    VIETNAM INTO THE REGION AND THE INTERNATIONAL ECONOMY.
    THEIR PROGRAMS IN THE CENTRAL HIGHLANDS REFLECT THESE GOALS,
    BUT EMPLOY A HEAVY COMPONENT OF REPRESENTATION FROM THE CPV,
    THE PUBLIC SECURITY FORCES, AND THE ARMED FORCES TO CREATE
    AND MAINTAIN PUBLIC ORDER AND COMMUNIST RULE.

    ¶13.  (SBU) AT THE SAME TIME, NEWER ASSISTANCE PROGRAMS --
    INCLUDING THE OFTEN ILL-CONCEIVED EFFORTS TO CREATE LARGE
    PLANTATIONS FOR CASH-CROPS AS WELL AS NEW POTS OF MONEY
    AVAILABLE FOR MOUNTAINOUS AREAS UNDER PROGRAM 135 -- ARE
    WELL-INTENTIONED (IF NOT ALWAYS WELL-IMPLEMENTED) EFFORTS
    AIMED AT PROMOTING ECONOMIC DEVELOPMENT AND IMPROVING THE
    LIVES OF THESE CITIZENS.  SOME WORK BETTER THAN OTHERS.
    INFRASTRUCTURE HAS BEEN IMPROVED, ALTHOUGH NEW ROADS OFTEN
    BRING NEW MIGRANTS, NEW COMPETITION FOR LAND, AND NEW
    ENVIRONMENTAL THREATS.  NEW SCHOOLS AND HEALTH CLINICS
    PROVIDE BETTER LIVING STANDARDS, BUT OFTEN WORK TOWARD
    ASSIMILATION, NOT THE PRESERVATION OF CULTURAL HERITAGE.
    ELECTRIFICATION AND CLEAN WATER PROGRAMS ARE PART AND PARCEL
    WITH SIMILAR GVN EFFORTS ELSEWHERE, BUT IN THESE REMOTE
    LOCATIONS ALSO SOMETIMES CREATE NEW FINANCIAL BURDENS FOR
    ALREADY POOR FAMILIES.  THE GVN DESERVES SOME CREDIT FOR
    WHAT IT IS TRYING TO DO, EVEN IF RESULTS ARE UNEVEN.  STILL,
    MANY OF THESE PROGRAMS RELY ON TRADITIONAL COMMUNIST TOP-
    DOWN TACTICS THAT RARELY LEAD TO SUSTAINED SUCCESS.

    ----------------------
    CENTER VS. LOCAL NEXUS
    ----------------------
                           UNCLASSIFIED

    PAGE 03        HANOI  03055  03 OF 04  231020Z

    ¶14.  (SBU) ONE OF THE KEYS TO UNDERSTANDING THE CENTRAL
    HIGHLANDS IS WHETHER THE CRUCIAL DECISIONS ARE MADE AT THE
    NATIONAL OR LOCAL LEVEL.  THE REALITY PROBABLY LIES
    SOMEWHERE IN BETWEEN, WITH DECISIONS MADE BY EITHER OR BOTH,
    DEPENDING ON THE MATTER TO BE DECIDED.  CLEARLY, OVERALL
    POLICY -- GOOD OR BAD -- IS SET IN HANOI.  ALSO CLEARLY,
    OFFICIALS ON THE GROUND IN THE CENTRAL HIGHLANDS FREQUENTLY
    IMPLEMENT POLICY BADLY.  IN OTHER CASES, THEY UNDERTAKE
    ACTIONS THAT MAY GO AGAINST NATIONAL POLICY.  WE DO NOT
    BELIEVE, FOR EXAMPLE, THAT IT IS GVN POLICY TO BEAT PEOPLE
    UP (ALTHOUGH WE KNOW IT HAPPENS, AND NOT ONLY IN THE CENTRAL
    HIGHLANDS) OR HARASS RELIGIOUS BELIEVERS (NOT ONLY IN THE
    CENTRAL HIGHLANDS), BUT THIS HAPPENS, TOO.  WE DO NOT
    BELIEVE IT IS GVN POLICY TO DISPOSSESS CITIZENS OF THEIR
    LAND, BUT IT HAPPENS (AND AGAIN, NOT ONLY IN THE CENTRAL
    HIGHLANDS).  IT APPEARS THAT PROVINCIAL LEADERSHIP STYLES --
    AND MISSION REPORTING HAS NOTED THE SOMETIMES MARKEDLY
    DIFFERENT ATTITUDES AND COMPETENCE OF OFFICIALS OF THESE
    FOUR PROVINCES -- MAY MAKE A DIFFERENCE IN THE CONDUCT OF
    LOCAL OFFICIALS AND LEVELS OF ETHNIC TENSION.  THIS
    HIGHLIGHTS THE IMPORTANCE OF CONTINUING TO BUILD
    CONSTRUCTIVE RELATIONSHIPS WITH PROVINCIAL AND DISTRICT
    AUTHORITIES.

    ------------------------------------------
    THE U.S. ROLE: HAVING AN IMPACT -- OR NOT
    ------------------------------------------

    ¶15.  (SBU) IN VIETNAM, IT IS EASY TO FALL INTO THE TRAP OF
    DWELLING ON THE PAST.  GIVEN THE DEGREE TO WHICH SO MANY OF
                           UNCLASSIFIED

    PAGE 04        HANOI  03055  03 OF 04  231020Z
    THE DISTORTIONS AND SUSPICIONS ON BOTH THE AMERICAN AND
    VIETNAMESE SIDES ARE ROOTED IN THE WAR, THIS IS ESPECIALLY
    TRUE IN THE CENTRAL HIGHLANDS.  THE CLOSE LINKS OF THE
    "MONTAGNARDS" WITH US FORCES AND THE CONTINUED STRONG
    SUPPORT THEY ENJOY FROM US-BASED INDIVIDUALS AND GROUPS HAVE
    BEEN MAJOR FACTORS IN HEIGHTENING THE SUSPICIONS WITH WHICH
    THE GVN AND CPV VIEW THESE MINORITY GROUPS IN THEIR OWN
    COUNTRY.  YET THIS IS A NEW GENERATION OF MONTAGNARDS, NOT
    THE GENERATION THAT, IN MANY CASES, FOUGHT SIDE BY SIDE WITH
    US FORCES.  REPEATED ITERATIONS BY USG OFFICIALS AT SENIOR
    LEVELS THAT THE USG DOES NOT SUPPORT THE DEGA MOVEMENT AND
    THAT THE USG EXPLICITLY RECOGNIZES THE TERRITORIAL INTEGRITY
    OF VIETNAM DO NOT SEEM TO GET THROUGH TO MANY IN THE GVN AND
    CPV, UNFORTUNATELY.  IT IS A MESSAGE WE NEED TO REPEAT
    OFTEN.

    ¶16.  (SBU)  CONTINUED INTERNATIONAL ATTENTION HAS MADE THE
    GVN AND CPV (AT LEAST AT THE CENTRAL LEVEL) ACUTELY AWARE OF
    THE NEED TO DEAL WITH THEIR IMAGE PROBLEMS IN THE CENTRAL
    HIGHLANDS, ALTHOUGH LOCAL OFFICIALS ARE SOMETIMES SEEMINGLY
    OBLIVIOUS TO INTERNATIONAL OPINION.  THE GVN AND CPV WILL --
    NOT SURPRISINGLY -- CONTINUE TO BELIEVE THAT THEY KNOW BEST
    (ALTHOUGH THEY INCREASINGLY ADMIT PAST "MISTAKES"), THAT
    THEY HAVE THE WELFARE OF THESE POPULATIONS AT HEART, AND
    THAT "HOSTILE FOREIGN FORCES" HAVE SINISTER ULTERIOR

                           UNCLASSIFIED

                               UNCLASSIFIED     PTQ1271

    PAGE 01        HANOI  03055  04 OF 04  231020Z
    ACTION EAP-00

    INFO  LOG-00   NP-00    AID-00   AMAD-00  ACQ-00   CIAE-00  DINT-00
          DODE-00  DOEE-00  SRPP-00  DS-00    EB-00    ED-01    FBIE-00
          UTED-00  VC-00    HHS-01   H-01     TEDE-00  INR-00   IO-00
          L-00     VCE-00   AC-01    DCP-01   NSAE-00  NSCE-00  OIC-02
          OMB-01   OPIC-01  PA-00    PM-00    PRS-00   ACE-00   P-00
          SP-00    SSO-00   STR-00   TEST-00  TRSE-00  USIE-00  PMB-00
          DSCC-00  PRM-00   DRL-02   G-00     NFAT-00  SAS-00     /011W
                      ------------------1BB2B0  231020Z /38
    O 230936Z DEC 02
    FM AMEMBASSY HANOI
    TO SECSTATE WASHDC IMMEDIATE 8451
    INFO AMCONSUL HO CHI MINH CITY
    AMEMBASSY PHNOM PENH
    AMEMBASSY VIENTIANE
    USCINCPAC HONOLULU HI

    UNCLAS SECTION 04 OF 04 HANOI 003055

    SIPDIS

    SENSITIVE

    STATE FOR EAP/BCLTV AND DRL

    MOTIVES.   WE MUST NONETHELESS CONTINUE TO HOLD THE GVN
                           UNCLASSIFIED

    PAGE 02        HANOI  03055  04 OF 04  231020Z
    ACCOUNTABLE FOR CREDIBLE INSTANCES OF HUMAN RIGHTS ABUSES IN
    THE CENTRAL HIGHLANDS -- AS ELSEWHERE IN VIETNAM -- AND TO
    PRESS FOR GREATER ACCESS, INCLUDING ROLES FOR HUMANITARIAN
    ASSISTANCE BY FOREIGN NGOS.  WHEN WE LEARN OF SPECIFIC CASES
    OF ABUSE BY LOCAL OFFICIALS, WE MUST URGE THE GVN TO
    INVESTIGATE AND DISCIPLINE THOSE FOUND GUILTY AND TAKE STEPS
    TO ADDRESS THE LOCAL GRIEVANCES.

    ¶17.  (SBU) AT THE SAME TIME, HOWEVER, WE MUST BE CAREFUL TO
    AVOID A HEAVY-HANDED APPROACH THAT SENDS THE MESSAGE THAT
    THE LARGER US-VIETNAM RELATIONSHIP HINGES ONLY ON WHAT
    HAPPENS IN THE CENTRAL HIGHLANDS.  THE BILATERAL
    RELATIONSHIP IS TOO IMPORTANT, IN AND OF ITSELF, TO BE HELD
    HOSTAGE TO ANY ONE ISSUE.

    ¶18.  (SBU) AT THE END OF THE DAY, THE CENTRAL HIGHLANDS WILL
    REMAIN LESS WELL DEVELOPED THAN ELSEWHERE IN VIETNAM AND
    ETHNIC TENSIONS ARE UNLIKELY TO DISAPPEAR ENTIRELY.
    FURTHERMORE, NEW ALLEGATIONS -- OF VARYING DEGREES OF
    CREDIBILITY -- OF NEW HUMAN RIGHTS ABUSES WILL CONTINUE TO
    SURFACE, WHICH WILL CONTINUE TO WARRANT OUR BEST EFFORTS TO
    VERIFY OR DISPROVE THEM. WHILE WE HAVE MADE SOME PROGRESS IN
    BUILDING TRUST WITH SPECIFIC LOCAL LEADERS, WE SHOULD EXPECT
    CONTINUING SUSPICION AND SOMETIMES EVEN OPPOSITION FROM SOME
    GVN OFFICIALS, WHO WILL ALWAYS REMAIN CONVINCED THAT WE ARE
    STIRRING UP TROUBLE OR ACTING UNDER DUBIOUS MOTIVES.
    BURGHARDT

                           UNCLASSIFIED

`