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RHHJJAA/JICPAC HONOLULU HI

C O N F I D E N T I A L SECTION 01 OF 04 SUVA 000346 
 
SIPDIS 
 
E.O. 12958: DECL: 08/13/2019 
TAGS: PREL PGOVPHUM MARR TN FJ
SUBJECT: SCENE-SETTER FOR PACOM VISIT TO TONGA 
 
REF: A. A) SUVA 0345 
     ¶B. B) SUVA 0295 
     ¶C. C) SUVA 0215 
     ¶D. D) SUVA 0142 
     ¶E. E) SUVA 0101 
     ¶F. F) 08 SUVA 0448 
 
Classified By: Ambassador C. Steven McGann for reasons 1.4 (B) and (D) 
 
SUMMARY 
------- 
¶1.  (C) Your visit to Tonga comes at a time when the benefits 
of our increased engagement are coming to fruition.  This 
past year, the Tonga Defense Service (TDS) completed a 
successful deployment to Iraq.  The U.S. Navy,s Pacific 
Partnership 2009 mission took place in July.  This joint 
effort was in partnership with local non-government 
organizations and with military and civilian personnel from 
Australia, Canada and Singapore, as well as Tonga Defense 
Service personnel.  The United States and Tonga recently 
signed a shiprider agreement that will help protect Tonga,s 
marine resources.  The United States will soon begin 
processing visas in Tonga to spare its citizens the expense 
of a trip to Suva.  The Tongan government is still recovering 
from the 2006 riots and more recently the tragic ferry 
accident that claimed over 70 lives.  Amid this, the 
government continues its slow progress on democratic reforms. 
 End summary. 
 
FRIENDLY BILATERAL RELATIONS 
---------------------------- 
¶2.  (U) The U.S. relationship with the Kingdom of Tonga has 
been friendly for many years.  The Tongan Defense Service 
deployed to Iraq in 2003 for a six-month rotation and 
returned to Iraq in 2007 for an additional three rotations. 
During their most recent deployment, Tongan troops were 
hand-picked to provide security for the Multinational 
Force-Iraq Headquarters at Camp Victory in Iraq.  This is the 
first time non-U.S. forces were given such a mission and 
illustrates the close MIL/MIL ties.  Tonga also contributed 
troops and police to the Regional Assistance Mission in the 
Solomon Islands (RAMSI) and has expressed interest in 
deploying to Afghanistan.  The annual &Tafakula8 joint 
military exercise is further proof of our close links.  Many 
Tongans reside in the United States, especially in Utah, 
California and Hawaii.  Tonga often votes with the United 
States at the UNGA and in other international fora.  The 
Peace Corps has been active in Tonga since the 1960,s. 
 
A MONARCHY WITH BRITISH TOUCHES 
------------------------------- 
¶3.  (C) The &Friendly Islands8 of Tonga were not a united 
monarchy until the reign of King George I in the mid-1800s. 
Tonga then solidified its political system via the 
Constitution of 1875, which made the king head of state with 
broad powers over the parliament that consists of the King,s 
Cabinet (12-16 people), nine nobles (elected by the 33 nobles 
of the realm), and nine people,s representatives (elected 
every three years in general elections).  The king chooses 
the prime minister, who until recently was almost always a 
royal or noble.  The political system ensured parliament 
would abide by the king,s wishes.  Britain took a fatherly 
interest in Tongan governance from the mid-1800s until 
recently, but Tonga was never formally a colony. 
 
ANTI-ROYAL, PRO-DEMOCRATIC STIRRINGS 
--------------------------------------------- ------- 
¶4.  (C) Not surprisingly, some Tongans chafed at the lack of 
genuine democracy.  Since the late 1980s, the most prominent 
reform advocate has been Akilisi Pohiva, a people,s 
representative from the main island, Tongatapu.  For many 
years, his calls for a more democratic system appeared 
futile.  However, popular sentiment continued to build, in 
part stimulated by royal insensitivity.  King Tupou IV, who 
died at age 88 on September 10, 2006, chose some very odd 
advisors, including an American &court jester8 who 
reportedly squandered millions of dollars of Tongan 
investments.  The last king,s children made sweet-heart 
deals with government agencies.  King George V gained the 
electricity monopoly, which he named &Shoreline.8  Princess 
Pilolevu gained Tongasat, which leases satellite slots to 
Chinese entities.  The youngest child, Crown Prince 
Tupouto,a Lavaka,ata, has a lucrative land lease with the 
LDS Church.  Many more examples remain. 
 
 
SUVA 00000346  002.2 OF 004 
 
 
¶5.  (C) A complicating factor was that the now-crown prince 
became prime minister in 2000.  His instincts were very 
conservative, at a time when the public mood was stirring. 
In 2005, the Tongan government began to implement 
civil-service reforms that inexplicably raised the wages for 
top-tier public servants before assisting those at the 
bottom.  Civil servants hit the streets in a strike that 
lasted for seven weeks, became very bitter as the prime 
minister stone-walled, and became a rallying point for 
pro-democracy campaigners as well.  In the end, Princess 
Pilolevu capitulated on behalf of the government while the 
prime minister was abroad.  Almost immediately, pro-democracy 
activists flexed their muscles with a demonstration that 
brought thousands to the streets of the capital.  Signs and 
slogans were vehemently anti-royal. 
 
SENSING THE INEVITABILITY OF REFORM -- U.S. VIEW 
--------------------------------------------- - 
¶6.  (C) As a result, for the first time, all elements in 
Tonga began to consider if a more democratic future was 
inevitable.  The United States has encouraged a Tonga-managed 
transition to a meaningful Tongan-style democracy at as rapid 
a pace as Tongans can accept.  In late 2005, parliament 
established, with royal assent, a national committee for 
political reform, headed by a royal cousin, Prince 
Tu'ipelehake.  The NCPR held discussions throughout Tonga and 
in New Zealand, Australia, and the United States. 
(Tu'ipelehake was killed in a car crash near San Francisco 
during the U.S. leg of the trip.)  The late king initiated 
some reforms.  For the first time he chose two People's 
Representatives (one of them now-Prime Minister Fred Sevele) 
to be members of Cabinet.  Later, on advice of now-King 
George V, the late king removed younger son Lavaka'ata as 
Prime Minister and replaced him with Sevele, the first 
commoner to be prime minister since a Brit in the late 
1800,s.  In September 2006, the NCPR issued a report to 
parliament that recommended dramatic reform: a fully elected 
parliament, with a majority of peoples representatives, and 
with Parliament selecting its prime minister.  The king 
presumably would act on "advice" of parliament. 
 
ATTEMPT AT SLOWING PACE RESULTS IN RIOT 
--------------------------------------- 
¶7.  (C) Some in Tonga, including Prime Minister Sevele, 
worried conservative elements would forcibly resist any rapid 
reforms that caused power to flow from the king to commoners. 
 Some presumed the king was egging Sevele on.  Sevele 
proposed an alternative plan that might leave the king with a 
delicate balance of power in parliament.  The government then 
slowed Parliament's deliberative process.  Pro-democracy 
forces were outraged and began public demonstrations.  In 
November 2006, pro-government demonstrators also hit the 
streets.  A riot erupted from the anti-government throng that 
brought destruction to many businesses in the central 
district.  Businesses of the king and Sevele were destroyed. 
Chinese-owned businesses were also targeted.  Eight rioters 
died in a torched building.  It was a shocking day for 
normally laid-back Tonga, and it sobered everyone. 
 
DEALING WITH CRIMES -- THE TDS ROLE 
----------------------------- 
¶8.  (C) Tonga police were ineffective in responding to the 
riot.  Sevele called on the TDS, with some Australian and New 
Zealand assistance, to restore order and begin 
interrogating/arresting wrong-doers.  Many Tongans blamed 
much of the violence on "deportees" from the United States. 
Some "deportees" were probably involved, but almost certainly 
most of those who committed crimes were home-grown.  There 
were reports of human-rights violations.  Activists claimed 
many violations; the TDS claimed very few, and it says all 
were investigated and dealt with.  PM Sevele was extremely 
embittered by the riot, and he blamed the pro-democracy 
leaders, his old friends.  Those leaders have acknowledged 
stirring political pressure for the reform agenda, but they 
deny planning or instigating the riot.  The government 
declared a state of emergency to restore law and order to the 
capital.  The state of emergency has been repeatedly extended 
and is still in place. 
 
RE-STARTING REFORM; REAL PROGRESS MADE 
-------------------------------------- 
¶9.  (C) Immediately after the riot, the king gave a 
forward-looking speech at the close of parliament, expressing 
sorrow for the devastation but calling for continuation of 
inevitable reform.  For many months, Sevele was visibly 
 
SUVA 00000346  003 OF 004 
 
 
reluctant to re-start the reform agenda.  However, it appears 
he came to realize, as others did, that popular resentment 
was beginning to stir toward the surface again.  Nobody 
wanted another riot.  In June 2007, Parliament set up a 
"Tripartite Committee" (cabinet, nobles, people's 
representatives) to attempt to find the future.  In a matter 
of weeks, the group announced agreement on a proposal for a 
new parliament with nine nobles, 17 peoples representatives, 
and up to four members selected by the king, a clear majority 
for the people's representatives.  The parliament would 
choose the prime minister from within, and the PM would 
select the cabinet from within.  In November 2008, parliament 
endorsed the establishment of the constitutional and 
Electoral Reform Commission (CEC) to draft and make 
recommendations for political reform.  The CEC presented its 
interim report in June 2009 to both parliament and the Privy 
Council.  Its final report and recommendations will be 
submitted to the Privy Council and parliament in November 
¶2009. 
 
FEELING THE IMPACT OF THE GLOBAL ECONOMIC CRISIS 
--------------------------------------------- --- 
¶12.  (C) The government expects the economy to grow by .15 
percent in 2009/2010.  A significant risk to this forecast is 
the potential for delays in implementation of the 
reconstruction work financed by China Eximbank.  Remittances, 
the largest source of foreign exchange receipts, are down by 
about 13 percent this year, continuing a downward trend in 
recent years.  The global economic crisis has softened demand 
for seasonal workers, which could put pressure on Tonga,s 
economy.  The government,s response to the impact of the 
global economic crisis has failed to contribute to the 
underlying economic performance.  The economy remains highly 
vulnerable to external conditions, notably remittances. 
Efforts to diversify the export sector and to implement 
structural reform remain critical. 
 
THE CHINA FACTOR 
---------------- 
¶13.  (C) For many years, Tonga had extremely close relations 
with Taiwan.  The Crown Prince (now King George V) was 
particularly friendly.  Then in 1998, Tonga suddenly switched 
recognition to Beijing, most likely through efforts of 
Princess Pilolevu and her Tongasat connections.  For several 
years, Tonga sold "investor" passports to Chinese citizens. 
To Tonga's surprise, a number of the passport holders 
actually came to Tonga.  Then relatives and friends followed. 
 Before the riot, most small retail shops in Nuku'alofa had 
become Chinese owned and operated.  Many Tongans, including 
other businessmen like Sevele, resented the Chinese in-flow. 
Thus, the targeting of Chinese shops in the riot was not 
surprising.  Many Chinese fled Tonga immediately afterward, 
though we hear some are trickling back.  The Chinese embassy 
cultivates the Tongan royal family, gifts travel to other 
Tongan leaders, and offers heavily tied infrastructure 
projects. 
 
INTERNAL POLITICAL-MILITARY DYNAMICS 
------------------------------------ 
¶15.  (C) The future of the TDS bears pondering.  It has 
always been seen as the King's force, its loyalty always to 
the crown.  That has worked to the advantage of the United 
States in the decision-making about Tonga contributing to PKO 
in Iraq.  All Tongan leaders understand the usefulness of 
Tonga helping us to achieve international peace and 
stability, but PM Sevele and then-Foreign/Defense Minister 
Tu'a were doubtful about Iraq.  Sevele saw political peril if 
there were casualties.  In defense board deliberations, the 
king, assisted by Brigadier General Uta'atu, trumped, and the 
deployments happened.  However, Sevele and Tu'a called for a 
U.S. "quid pro quo": find a way to adjudicate visas for 
Tongan applicants in Tonga rather than in Suva, or Tonga 
"will not be disposed" to assist the United States "in the 
military and other fields."  The United States is moving 
forward with a remote visa processing facility to begin in 
the near future in Tonga.  Under the program, a consular 
officer will make regular trips to Nuku,alofa to process 
non-immigrant visa applications at a secure facility. 
 
NURTURING THE APPROPRIATE TDS ROLE 
---------------------------------- 
¶16.  (C) The day-to-day role the TDS has taken during the 
state of emergency has reportedly raised hackles among some 
in the public.  BG Uta'atu has plans to dramatically expand 
the size and capabilities of his force.  From the perspective 
 
SUVA 00000346  004 OF 004 
 
 
of having more Tongan help in international PKO, that idea is 
very attractive.  However, at times Uta'atu has given the 
impression he is getting quite comfortable with his powers 
under the state of emergency.  He is a friend of Fiji,s 
Commodore Bainimarama, and he has in the past expressed some 
sympathy for the Fiji military's assumption that it has a 
caretaker role over politics.  As Tonga's transition from 
monarchy to democracy moves forward, it will be important for 
the United States to encourage the TDS, to the extent 
possible, to be a force that accepts and helps ensure a 
democratic future for Tonga.  Department of State 
International Military Education Training and Foreign 
Military Financing programs for Tonga totaled $195,000 and 
$500,000, respectively, in 2008. 
 
PACIFIC PARTNERSHIP 2009 
------------------------ 
¶17.  (SBU) The U.S. Navy,s Pacific Partnership 2009 mission 
took place for two weeks beginning July 13.  The humanitarian 
and civil assistance mission was conducted by the U.S. Navy 
in partnership with local non-government organizations and 
with military and civilian personnel from Australia, Canada 
and Singapore, as well as Tonga Defense Service personnel. 
Teams of engineers and other personnel renovated schools, 
health clinics and the country,s main hospital, while other 
teams provided medical, dental, optical and veterinary 
services. 
 
TONGA,S FERRY TRAGEDY 
--------------------- 
¶18.  (C) The Tongan ferry  Princess Ashika  sank 53 miles 
north-west of Nuku,alofa on August 8, killing an estimated 
73 people.  The Tongan government has been struggling to 
respond to this accident, which has been felt throughout the 
Tongan community.  The king sparked outrage among the 
population when he departed Tonga the day after the sinking 
to begin his extended holiday in Europe.  The government has 
inquired about U.S. Navy capabilities in raising the ferry, 
which still holds most of the victims, now resting at a depth 
of about 110 meters.  The accident cost the Minister of 
Transport his job and the government is desperately seeking 
ways to reassure the Tongan people.  During the recent 
shiprider signing, the Tongan government added the Ministry 
of Transport as a means to cooperate with the U.S. Coast 
Guard on maritime safety. 
 
U.S.-TONGA SHIPRIDER AGREEMENT 
------------------------------ 
¶19.  (SBU) On August 24, Tongan Secretary for Foreign Affairs 
Va'inga Tone and Commander, Fourteenth Coast Guard District 
RADM Manson Brown, signed a shiprider agreement.  This 
agreement will allow U.S. Coast Guard (USCG) ships 
enforcement powers within the Exclusive Economic Zone (EEZ) 
of Tonga.  This was the sixth shiprider agreement to be 
concluded in the region, after Palau, Micronesia, Kiribati, 
the Cook Islands, and the Marshall Islands.  In addition to 
allowing Tongan officials to conduct enforcement actions from 
USCG ships, the agreement means that U.S. ships and aircraft 
patrolling the EEZ of American Samoa can now cross over into 
Tonga's EEZ in pursuit of illegal fishing vessels.  According 
to RADM Brown, the first patrol to include Tongan personnel 
would likely take place in early 2010. 
MCGANN