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C O N F I D E N T I A L SECTION 01 OF 04 SUVA 000066 
 
SIPDIS 
 
SIPDIS 
 
E.O. 12958: DECL: 01/24/2017 
TAGS: PREL MARR EAID PHUM ASEC CH TN
SUBJECT: TONGA AND THE FUTURE: RECONCILE; REFORM; AND 
REBUILD 
 
REF: SUVA 61 
 
Classified By: Amb. Dinger.  Sec. 1.4 (B,D). 
 
Summary 
------- 
¶1. (C) Two months after last November's riot, the 
Ambassador's Jan. 16-18 visit to Tonga found most everyone 
still licking their wounds.  But many people realize they 
must look forward.  A state of emergency may continue for 
several more months.  The Tonga Defense Service (TDS) hopes 
to reduce its visibility soon, seemingly a good idea. 
Widespread criticism of the Tonga Police has brought a 
request to Australia and New Zealand for aid.  Several 
leaders see a great need for reconciliation of angry 
political factions, though some believe punishment of alleged 
riot leaders must come first.  The King and PM both say 
political reform will continue in 2007, though sticky issues 
like the King's role and the pace of electoral change remain. 
 Tongans seem hungry for true leadership, but some believe PM 
Sevele is still in shock from the riot. 
 
¶2. (C) The need to rapidly rebuild Nuku'alofa's central 
business district (CBD) is acknowledged by all.  Funding the 
$200 million bill is a big problem.  Australia and New 
Zealand have offered around US$1 million each to soften 
commercial lending for reconstruction.  Banks say their local 
assets are insufficient.  PM Sevele is seeking major grants 
from China.  Given Tonga's recent decision to send a second 
deployment to the "Coalition of the Willing" in Iraq, Sevele 
is preparing a request to the U.S. military engineers to 
undertake a major infrastructure project in the CBD.  We 
comment that Tonga's saving grace is remittances from abroad. 
 They provide an essential cushion during the interim before 
the economy rebuilds.  We will continue advocating the 
"democracy" theme in Tonga.  Given the long U.S.-Tonga 
friendship and the coming redeployment to Iraq, we advocate 
exploring if more concrete support for political reform and 
for a reconstruction project is possible.  End summary. 
 
A rolling state of emergency; TDS at the fore 
--------------------------------------------- 
¶3. (C) Reftel described the dynamics of Tonga's devastating 
Nov. 16 riot.  In the subsequent two months, most attention 
in Nuku'alofa has focused on security issues: re-imposing law 
and order on the streets; investigating who committed crimes; 
and beginning a punishment phase.  PM Sevele declared a 
formal state of emergency, though not marshal law, 
immediately after the riot.  Tonga law permits a state of 
emergency for only 30 days at a time, with the possibility of 
multiple extensions.  Sevele told us he expects several more 
iterations.  He said he continues to receive threats 
personally.  He noted he now has a protective detail, a 
reality he dislikes.  Tonga's AG told us she believes the 
continuing presence of the TDS on the streets provides a 
useful sense of security. 
 
¶4. (C) TDS Commander Uta'atu said he is gradually reducing 
the visible army presence on the streets; but he sees a need 
to maintain emergency powers, at least until the cases of the 
most prominent pro-democracy leaders are adjudicated.  Those 
arrests and potential convictions could stress the public 
mood yet again.  During the state of emergency, the TDS and 
police, but particularly Uta'atu, have taken on very broad 
authority.  The TDS has 92 troops, about a fifth of the 
force, on the streets.  Troops have established and enforced 
new security-related rules, including bar close-down times, 
without any consultation with the civilian government. 
 
Anecdotes of abuses; alienation setting in? 
------------------------------------------- 
¶5. (C) While many seem to appreciate the prominent TDS role 
since the riot, there have been anecdotes of abuses. 
Reportedly a couple of evenings after the riot, a middle-aged 
man drove up to a check point not far from the King's villa. 
Soldiers took him from his car and beat him until he 
mentioned a brother in the Army.  The man said he had no role 
in the riot or in politics.  In another frequently heard 
anecdote, TDS troops entered a home, alleging the new 
furnishings inside had been looted during the riot.  They 
moved everything to the lawn, to the shock of the grandmother 
at the scene.  When the owner came home and showed receipts 
for all purchases, the TDS troops acknowledged they had come 
to the wrong house.  They then departed, leaving everything 
 
SUVA 00000066  002 OF 004 
 
 
still on the lawn.  Several prominent figures in Nuku'alofa, 
not pro-democracy activists, said the continued TDS role has 
been over-done and is alienating people.  They said, in their 
view, there is no need for the state of emergency to 
continue.  Pro-democracy figures presume a reason that the 
state of emergency continues is to make it very difficult for 
political discussions to take place.  Any meeting of more 
than three or four people supposedly requires a permit. 
 
Complications from a "no transit" list 
-------------------------------------- 
¶6. (C) A sub-issue regarding security is a list 
TDS-intelligence reportedly prepared of several dozen people 
who are not permitted through military check points.  Because 
Nuku'alofa's airport is beyond such a check point, the list 
has kept a number of people from traveling overseas.  The 
preparation of the list was opaque.  Three people stopped 
from entering the airport to take flights filed an emergency 
suit in the Tonga courts just before Christmas.  Chief 
Justice Ford did not rule on the legality of such a list, but 
he did allow all three to travel since the TDS argued in 
court that the only concern was possible terrorism at the 
airport, not flight from prosecution.  Ford was convinced 
none of the people were terrorists. 
 
Professionalizing the Police 
---------------------------- 
¶7. (C) As reported reftel, the Tonga Police are almost 
universally criticized for their failures at the time of the 
riot.  PM Sevele has lost all faith in them, and the Police 
Commander has quietly resigned.  Sevele has asked for an 
Australian or New Zealander to command the force.  Sevele has 
also asked the Aussies and Kiwis to design and implement a 
broad-scale "police development" program.  The two donors are 
seriously considering both requests. 
 
Anger and a search for regret 
----------------------------- 
¶8. (C) As described reftel, most everyone in Tonga currently 
is angry.  Minister of Finance 'Utoikamanu noted that many 
commoners have been "ill served" by the current political and 
social systems and were very upset even before the riot.  PM 
Sevele remains very angry personally at the trashing of his 
store, endangerment of his family, and several public attacks 
on his performance.  Many people are embarrassed by the riot, 
by the lawless image displayed.  Many mention their sense 
that the perpetrators have not expressed regret.  Not 
surprisingly, perpetrators, subject to criminal prosecution, 
have not stepped forward to confess to planning or 
encouraging the riot.  Conservative Tongans generally blame 
the pro-democracy movement for being the impetus, whether 
planned or not.  Interestingly, the Friendly Islands Human 
Rights and Democracy Movement did issue a press release 
immediately after the riot condemning the perpetrators, 
whomever they might be, and reaffirming the Movement's belief 
in rule of law. 
 
Reconciliation imperative; King's speech 
---------------------------------------- 
¶9. (C) Several contacts pointed out a need for all sides, 
angry as they are, to work at reconciliation.  All figure 
that goal will be difficult or impossible to accomplish until 
"justice has been served" via trials of perceived riot 
leaders.  Still, the King's speech at the closing of 
Parliament on Nov. 22 was a start.  He expressed deep regret 
that the riot had occurred and had so negatively affected so 
many, and he stressed that the political reform process must 
continue.  He urged all sides to work out a compromise reform 
plan to present to the next session of Parliament when it 
commences in May.  Not everyone bought the message.  Asked 
about the King's speech, People's Rep Clive Edwards 
responded: "Nice words but insincere."  Still, the point 
remains that, as Foreign Secretary Tone repeatedly stressed, 
all sides need to engage in "dialogue", even if actual 
reconciliation takes some time.  The Finance Minister 
suggested there is scope for the donor community to 
contribute funds and expertise to the reconciliation process. 
 
Reform still in the cards; tough issues remain 
--------------------------------------------- - 
¶10. (C) To actually achieve the King's requested political 
compromise in the next few months is problematic.  Most all 
decision-makers, including the King, the PM, and the AG, seem 
now to agree that Tonga must have a fully elected Parliament. 
 
SUVA 00000066  003 OF 004 
 
 
 Sticky details remain, though.  Beyond parliamentary 
numbers, the pro-democracy movement has long pushed for a 
formal diminution of the King's constitutional role.  Sevele 
says the King has made clear he intends in general to act "on 
advice" of the PM on Cabinet appointments and policy issues, 
de facto accepting a Japan- or UK-like model.  The AG told us 
her Ministry expects to prepare constitutional amendments to 
formally incorporate such changes.  However, the Lord 
Chamberlain told us he is certain the King intends only an 
informal arrangement.  That, of course, would leave open an 
opportunity for the present King, or his successor (likely to 
be his younger brother, Sevele's predecessor as PM, and a 
very conservative force) to say "never mind." 
 
Pace of reform still a volatile consideration 
--------------------------------------------- 
¶11. (C) Another issue is "pace."  Should all reforms be in 
place before Tonga's next election in 2008, or should some or 
all be deferred to sometime later?  Some argue that the 
riot's shock has set back the impetus for immediate change: 
"If this is what comes from reform, who wants it?!"  Cabinet 
Minister Akolo suggested it is obvious that all efforts at 
political reform must be put off until "justice is served." 
On the other hand, People's Rep. Edwards told us his sense is 
that, after the riot, the mood for reform is strengthening 
even more.  People still feel estranged from a closed, 
traditional system, and they are angry at the PM and army for 
post-riot actions. 
 
PM sees stumbling block re quick action 
--------------------------------------- 
¶12. (C) PM Sevele assured us that he will continue the move 
to political reform; however, he noted a practical stumbling 
block.  There may be nobody from the People's Representative 
side of Parliament who can be included in the tripartite 
negotiating committee proposed before the riot to work 
through the details of reform.  With an expectation that all 
seven pro-democracy People's Reps will soon be under 
indictment, who is left?  (Note: the other two of the nine 
People's Reps in Parliament are not democracy advocates and 
would not be publicly perceived as representing the 
"pro-democracy" faction.) 
 
A need for real leadership 
-------------------------- 
¶13. (C) The Lord Chamberlain to the King assured us His 
Majesty is fully on board for major political reform and 
retains confidence in the PM to obtain that result.  The key 
really does seem to be the PM.  Several savvy observers said 
Sevele is still in a state of shock from November.  He is not 
exerting leadership at a time when leadership is desperately 
needed.  Nobody else is exuding reform leadership either. 
 
Everybody on board for rebuilding the CBD 
----------------------------------------- 
¶14. (C) The issue that clearly is capturing attention right 
now is the need to rebuild Nuku'alofa's CBD.  Tonga cannot 
rebound unless its economy rebounds.  For the economy to 
rebound, Nuku'alofa businesses must rebuild and prosper.  The 
Tonga Government has already commissioned an architectural 
sketch for a model city center to replace the ramshackle, 
rather shabby business district of old.  Unfortunately, from 
our perspective, the drawing recalls a California shopping 
center more than a charming South Pacific capital. 
Undoubtedly, other concepts will be considered, too.  The 
City of Manukau in New Zealand has offered its town planners 
to provide ideas. 
 
But who has $200 million? 
------------------------- 
¶15. (C) A hugely important issue will be cost.  The Tonga 
Government was already cash strapped before the riot.  It 
will not be able to finance rebuilding on its own.  Most 
business losses from the riot were not covered by riot 
insurance.  The few who had such insurance have had no 
success yet in receiving settlements.  Tonga is looking to 
foreign donors.  The World Bank, the Asian Development Bank, 
Australia, and New Zealand have all reportedly expressed 
sympathy but have not offered up the US$200 million Tonga 
says the rebuilding will cost.  (Note: we heard that figure 
actually came from the King, with an instruction for the 
Government to build a case to buttress it.)  Australia and 
New Zealand have tentatively agreed to each provide about 
US$1 million in grants to "soften" commercial-bank interest 
 
SUVA 00000066  004 OF 004 
 
 
rates to make finance more affordable.  However, the 
commercial banks report they have nowhere near the assets in 
Tonga to finance reconstruction.  To bring more cash in, the 
banks will insist on someone guaranteeing a "no loss" result 
if exchange rates fluctuate. 
 
How about China? 
---------------- 
¶16. (C) Given the huge need for funds, PM Sevele is looking 
to China, which has provided significant aid ever since 
establishing diplomatic relations with Tonga in 1998 (in 
place of Taiwan).  In April 2006, Chinese Premier Wen 
announced plans for more than US$300 million in future aid to 
the Pacific.  Tonga wants to tap that money, which has yet to 
be seen on the ground.  Reportedly, initial queries about a 
large grant received positive murmurs.  PM Sevele told us 
Foreign Minister Tu'a and Finance Minister 'Utoikamanu would 
travel to Beijing this week to discuss how much assistance is 
possible.  'Utoikamanu noted that China, as always, wants 
Chinese workers to build any Chinese assistance projects; but 
the King objects to that, not wanting "shoddy workmanship" in 
his rebuilt capital. 
 
Or the U.S. Army Corps of Engineers? 
------------------------------------ 
¶17. (C) PM Sevele asked how the USG might assist, 
particularly given the Tonga Defense Board's approval in 
December of a second deployment of TDS soldiers to the 
"Coalition of the Willing" in Iraq.  We recalled the long 
friendship between the U.S. and Tonga, reiterated 
Washington's deep appreciation for the Iraq-deployment 
decision, and noted the significant military assistance we 
are providing to support the deployment.  We also noted 
USAID's departure from the region in the mid-1990s and the 
reality that Tonga does not yet qualify for Millennium 
Challenge funds because of its scores on political openness. 
Thus, sizable economic-development assistance is difficult 
for the U.S. to deliver in the South Pacific.  Sevele then 
asked, given the upcoming TDS deployment, if U.S. military 
engineers might undertake a major infrastructure project, 
perhaps the water and sewer systems for the new CBD.  We 
noted that U.S. military engineers are heavily engaged 
elsewhere, but Embassy Suva would be happy to forward any 
Government of Tonga request for USG consideration, with no 
guarantees.  Sevele said he would write a formal letter, 
which has yet to arrive. 
 
Comment 
------- 
¶18. (C) Tonga faces huge challenges at a time when most 
everyone in Nuku'alofa is still stressed out from the riot, 
when political rivals remain incensed at opponents, when the 
economy is a basket case, and when the Government's fiscal 
coffers are bare.  A saving grace is remittances.  At least 
as many Tongans live abroad (New Zealand, the U.S., and 
Australia) as in Tonga, and they are remarkably generous to 
their relatives back home.  Even before the riot, remittances 
reportedly totaled more than the rest of the Tonga GDP 
combined; and thankfully the poorest families have tended to 
receive the most remittances, an extremely handy safety net. 
A banker reports post-riot remittances have spiked.  That 
comforting reality would seem to provide the Government and 
people of Tonga some cushion for working through their 
multitude of issues in hopes of emerging as a reconciled, 
more-democratic, and rebuilt nation. 
 
¶19. (C) We expect Tonga's pro-democracy forces have suffered 
a setback from being associated, rightly or wrongly, with 
instigating the riot.  Still, it appears that at least on 
Tonga'tapu the grassroots sentiment for a democratic system 
remains strong.  That seems much less true on the outer 
island groups, but Tonga'tapu has some 70-80% of the total 
population.  The King struck the right note at his 
end-of-Parliament speech by stressing the inevitability of a 
more democratic system and the need for Tongans to focus 
ahead to a new day.  Embassy Suva will continue encouraging 
the reform process.  Ideally the USG could add programmatic 
support to our rhetoric.  Given the long U.S.-Tonga 
friendship and the welcome reality of the intended TDS 
re-deployment to Iraq, we urge Washington to consider if the 
USG can in some useful way help meet Tonga's reconstruction 
needs. 
DINGER