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RUEHLO/AMEMBASSY LONDON PRIORITY 0253
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S E C R E T SECTION 01 OF 04 GABORONE 000853 
 
SIPDIS 
 
NSC FOR SENIOR AFRICA DIRECTOR 
STATE FOR AF/S, AF/FO 
LONDON, PARIS FOR AFRICA WATCHERS 
 
E.O. 12958: DECL: 10/30/2019 
TAGS: PREL PGOV ECON KHIV MASS SENV KPKO OVIP BC
SUBJECT: BOTSWANA: SCENESETTER FOR PRESIDENT IAN KHAMA'S 
VISIT TO WASHINGTON NOVEMBER 5-7, 2009 
 
REF: A. GABORONE 665 
     ¶B. GABORONE 674 
     ¶C. GABORONE 682 
     ¶D. GABORONE 754 
     ¶E. GABORONE 785 
 
Classified By: Ambassador Stephen J. Nolan. 
Reasons: 1.4 (b) and (d). 
 
------- 
Summary 
------- 
 
¶1. (C) Botswana's President Ian Khama visits Washington 
November 5-7 to chair the Conservation International annual 
meeting in a confident mood, fortified by a strong election 
victory on October 16 that allowed him to assume the 
presidency for a 5-year term.  Khama has emerged as a 
principled, outspoken defender of human rights and good 
governance in Africa and has been especially tough on 
Zimbabwe's President Mugabe.  Botswana has also begun to 
project a positive regional influence in assisting some 
neighbors to train their militaries.  On domestic issues such 
as investing in its people, governance, mineral resource 
management and civilian-military relations, Botswana is a 
model for the region.  Khama emphasizes the importance of 
Botswana diversifying from reliance on diamonds (more than 
one-third of the country's GDP and an estimated 70 percent of 
export earnings).  He spends less time on working with 
regional colleagues to effect change on political issues, in 
part because as a career military officer he has little 
patience for traditional politics and in part because he 
thinks regional colleagues are not as committed to good 
governance and transparency.  While we value Khama's 
outspoken approach, we should encourage him to work with 
like-minded colleagues to shape regional consensus in favor 
of good governance rather than remain distant from a 
consensus shaped by others.  Khama's visit is also an 
opportunity to highlight the fact that Botswana is the most 
stable and reliable friend of the United States in southern 
Africa, commend Botswana's stewardship of its resources, 
encourage additional peacekeeping deployments by the Botswana 
Defense Force, and -- as a prominent environmentalist -- 
solicit Khama's views on environmental management in Africa. 
End Summary. 
 
--------------------------------------------- - 
Newly-Elected President Will Focus on Delivery 
--------------------------------------------- - 
 
¶2. (C) Ian Khama is Botswana's fourth President and the son 
of its revered first President, Seretse Khama.  As vice 
president in April 2008, he assumed the presidency when 
then-incumbent Festus Mogae resigned.  On October 16, Khama 
led the ruling Botswana Democratic Party (BDP) to victory in 
the 10th consecutive peaceful, free, and fair elections in 
the country's history.  With 53 percent of the vote, the BDP 
won 45 of the 57 seats in Parliament.  President Khama is a 
no-nonsense and hardworking leader.  When he moved into the 
presidency in 2008, Khama promised he would focus on "four 
D's" as President: democracy, development, dignity and 
discipline.  After his recent election he added a "fifth D" 
to the list: delivery.  Khama recognizes that the GOB must 
Qto the list: delivery.  Khama recognizes that the GOB must 
speed up infrastructure and other development projects and 
ensure that civil servants are more responsive to citizens. 
 
¶3. (C) The BDP holds a large majority in Parliament and 
should have no trouble passing any initiatives it proposes. 
However, the ruling party has been plagued by factional 
fighting over the past several months, and Khama will need to 
find a way to appease his rivals within the party to avoid 
obstacles in implementing his agenda.  While critics contend 
that Khama is "authoritarian" or "militaristic," it is more 
accurate to view him as impatient with traditional politics. 
President Khama has approved private discussions between the 
GOB and representatives of the San minority tribe aimed at 
 
GABORONE 00000853  002 OF 004 
 
 
resolving human rights and humanitarian concerns about San 
residency in the Central Kalahari Game Reserve.  Local human 
rights groups have endorsed this approach and are optimistic 
that the ongoing private dialogue will lead to an acceptable 
solution.  Khama is temperamentally uncomfortable with the 
give-and-take of "normal" politics and can be expected to 
continue to irritate his critics with his governing style. 
Still, Khama's immense personal popularity as the son of the 
country's first president will afford him considerable 
latitude in governing. 
 
--------------------------------------------- -- 
Botswana's Principled Stance on Regional Crises 
--------------------------------------------- -- 
 
¶4. (C) Botswana is consistent and courageous in urging 
democracy and the rule of law in Africa, especially in 
Zimbabwe.  President Khama has refused to bow to the SADC 
consensus of "quiet diplomacy" on Zimbabwe and has often 
spoken out against the Mugabe regime.  Botswana provided 
refuge and moral support to now-Prime Minister Tsvangirai 
during the negotiations of the Global Political Agreement, 
and since the formation of the unity government has 
ceaselessly encouraged full GPA implementation.  Khama told 
reporters in mid-October that the unity government was in 
"real danger of collapse" and he warned that should the MDC 
pull out of the coalition, Botswana would not recognize 
Mugabe as the legitimate President.  Botswana has been vocal 
on other regional crises include Madagascar and Sudan, 
regularly announcing that Botswana would arrest and extradite 
Sudanese President Bashir should he visit.  In 2008, Botswana 
voted with the United States on all key UNGA human rights 
resolutions, in violation of the "African consensus" against 
single country resolutions, and we expect it to do the same 
in 2009. Still, Khama has been reluctant to engage in the 
business of building coalitions within SADC and the AU to 
create a regional consensus in favor of his positions.  He 
appears to regard such efforts as not worth the time he would 
have to expend on them, in part because he has a low regard 
for regional colleagues' commitment to governance and 
transparency.  As a biracial leader of a relatively small 
country that did not go through a bloody anti-colonial 
struggle to achieve independence, Botswana faces additional 
challenges in persuading others of the virtues of its 
positions. 
 
------------------------------------- 
Prosperous Economy Needs to Diversify 
------------------------------------- 
 
¶5. (C) Botswana has risen from extreme poverty to 
middle-income status in only 40 years, thanks to a 
combination of diamond wealth, good leadership, and sound 
macroeconomic policies.  Botswana's GDP per capita (PPP) is 
over USD 13,000, but thirty percent of its 1.8 million 
citizens are living in poverty, many in isolated rural 
communities.  Khama recognizes that diamonds are not forever, 
Qcommunities.  Khama recognizes that diamonds are not forever, 
and that mineral wealth alone will not improve the living 
standards for Botswana's poor.  Economic diversification is 
the key to Botswana's future success, and the Khama 
government is promoting diversification both within the 
mineral sector and more broadly.  The country is attempting 
to move beyond mining and into value-added activities like 
sorting and cutting and polishing.  A DeBeers-GOB joint 
venture (the Diamond Trading Center) opened in Gaborone in 
2008, and 16 jewelry firms which have opened production 
facilities here are now able to buy rough stones locally. 
However, the diamond industry was hit hard by the global 
economic crisis.  Botswana's economy is expected to contract 
by ten percent in 2009, and many of its new jewelry 
manufacturers have postponed or scaled back local production, 
so it is too soon to tell how this new industry will fare. 
Botswana recognizes that due to its location and small 
population size, it is not likely to be a traditional 
manufacturing center, and instead is focusing on developing a 
service economy.  While its high value/low impact tourism is 
 
GABORONE 00000853  003 OF 004 
 
 
its greatest success so far, Botswana has a thriving 
financial services industry, and is hoping to expand into 
information technology (perhaps call centers or back office 
support) and regional medical centers.  The Batswana were 
traditionally farmers and ranchers, and the Khama government 
also hopes to encourage the agricultural sector and reduce 
the country's dependence on imported food.  Khama is 
intensely interested in the Administration's Food Security 
Initiative. 
 
---------------------------------------- 
Together Reducing the Impact of HIV/AIDS 
----------------------------------------- 
 
¶6. (U) Botswana is one of the countries hardest hit by 
HIV/AIDS, but throuh partnership with the United States, we 
are makng enormous progress to reduce the reach and impact 
of the disease.  Our partnership with the GOB on PEPFAR works 
because the GOB has upheld its side of the bargain, spending 
an estimated USD 754 million of Botswana government funds on 
HIV/AIDS since 2005.  In turn, we have invested some USD 390 
million since 2005 to support them, implemented through Peace 
Corps, CDC, USAID, DOD, and the State Department.  The strong 
USG-GOB partnership has encouraged Harvard, Baylor, Johns 
Hopkins, and the University of Pennsylvania to join us, 
providing the GOB management and clinical experience, 
knowledge, and financial backing.  The universities also 
cooperate not only with the GOB but also with the Bill and 
Melinda Gates, Merck, and Clinton foundations, all of whom 
are active here.  The World Bank and Global Fund lend 
essential multilateral dimensions and expertise to the fight. 
 The results are astounding: the GOB has virtually eliminated 
mother-to-child transmission of HIV; over 80 percent of 
Batswana who need anti-retroviral therapy get it; and new HIV 
infections appear to be slowing.  The struggle remains 
intense because 24 percent of Batswana are HIV positive and 
131,000 people are on therapy.  The GOB is redoubling its 
prevention efforts because it recognizes that to succeed in 
the long-term, Botswana must significantly reduce the rate of 
new HIV infections. 
 
------------------------------ 
Professional, Capable Military 
------------------------------ 
 
¶7. (C) The Botswana Defense Force is a capable, professional, 
civilian-controlled military that serves as a model for the 
continent.  Rather than repress its citizens or threaten its 
neighbors, the BDF supports civil authorities in the area of 
anti-poaching operations, border control, and domestic law 
enforcement.  Increasingly the BDF also projects its positive 
values abroad.  Botswana's military training programs for 
both officers and NCOs are exemplary, and Botswana is 
offering this training to neighbors.  Botswana is willing to 
host specialized training for SADC militaries, both on 
special topics such as counterterrorism and as part of the 
BDF's vibrant State Partnership Program with the North 
QBDF's vibrant State Partnership Program with the North 
Carolina National Guard -- commonly regarded as the best in 
Africa.  The United States already has a productive 
military-to-military relationship with the BDF, and an even 
stronger USG relationship would bolster the BDF's military 
effectiveness and its critical civilian support roles, and 
also have a multiplier effect on military professionalization 
in other African countries. 
 
¶8. (S) The BDF has frequently participated in PKOs in the 
past including Somalia, Mozambique and Lesotho.  Senior BDF 
officials tell us that the GOB has offered an infantry 
battalion to UNMIL in Liberia and is in discussions with 
UNDPKO.  No matter how this turns out, the BDF's most likely 
commitment, at least in the near term, to peacekeeping on the 
continent would be to provide airlift.  The BDF's tactical 
airlift capability is easily one of the most effective in 
Africa.  This capability is currently suffering from a pilot 
shortage that could severely decrease its effectiveness. 
Increased USG assistance, including through establishing an 
 
GABORONE 00000853  004 OF 004 
 
 
exchange officer program with the USAF, could help to train 
pilots and equip the BDF for potential PKO deployments. 
 
---------------------------------- 
Environmental Advocates in Africa? 
---------------------------------- 
 
¶9. (U) Khama is deeply committed to environmental 
conservation.  He serves on the board of Conservation 
International and plays an active role in its deliberations. 
Botswana is a semi-arid country that values water 
conservation; through USAID, we are helping Botswana to 
partner with its neighbors on sustainable trans-boundary 
water management in the Okavango and Zambezi river basins. 
Botswana was the first African country to qualify for 
Tropical Forest Conservation Act benefits.  In 2006, our 
governments signed an agreement which combines USD 7 million 
in debt relief with USD 8.3 million for conservation of 
Botswana's forests, to be administered through a locally 
created trust fund, overseen by a Board with representatives 
from the USG and GOB.  Botswana's citizens realize that their 
natural heritage, including the Okavango Delta and Chobe 
river basin, has enormous tourism potential and therefore 
economic benefits.  The country has chosen a high-cost, 
low-volume tourism strategy to allow visitors to experience 
the country's beauty without destroying it.  Public education 
and awareness activities are being undertaken by the GOB and 
by private environmental organizations, and in the last 
decade there has been an increase in community participation 
in natural resource management.  Botswana is currently facing 
an energy crisis, like most of the southern African region. 
The country currently imports 80 percent of its power from 
South Africa, and its sole electric plant is coal-fired. 
Botswana has large coal reserves and plans to expand its 
coal-fired generating capacity.  However, Botswana is also in 
talks with an independent power producer that hopes to 
utilize the country's coal-bed methane supply for cleaner 
electricity as well as eventually cooking gas and other 
commercial applications. 
 
---------------------------------------- 
Unleashing the U.S.-Botswana Partnership 
---------------------------------------- 
 
¶10. (S) As Ian Khama begins his five-year term as the 
President of Botswana, a peaceful, democratic American friend 
in Africa, our policy opportunity is how to leverage 
Botswana's excellent domestic governance and resource 
management to achieve broader regional goals.  We recommend 
that senior USG officials acknowledge Botswana as a political 
and economic success story in Africa.  We should find ways to 
publicize Botswana's achievements and promote the country as 
a model, thereby "rewarding success."  Khama has made 
expanding Botswana's agricultural sector a key priority, so 
perhaps the new Food Security Initiative is a new area of 
potential partnership.  Second, we should solicit Khama's 
opinion on ways that the USG could work more closely in 
Qopinion on ways that the USG could work more closely in 
southern Africa with like-minded countries such as Botswana. 
Khama's unique insights into the inner-workings of SADC, for 
example, may aid our policy planning on Zimbabwe or 
Madagascar.  As a committed environmentalist, Khama may also 
offer insights on how we can engage successfully African 
countries on important USG initiatives.  Our overarching 
effort should be to encourage Khama to build upon his 
courageous policy positions with more concerted efforts to 
work with regional allies.  Botswana has matured politically 
in recent years and is increasingly willing to speak out 
against a regional consensus it finds distasteful.  Ensuring 
that Khama is effective in the region as well as "right" on 
the issues offers considerable potential policy benefits for 
the USG. 
NOLAN