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C O N F I D E N T I A L SECTION 01 OF 04 SUVA 000471 
 
SIPDIS 
 
SIPDIS 
 
ROME PLEASE PASS TO AMB. LAROCCO, HQ MFO SINAI 
 
E.O. 12958: DECL: 11/03/2016 
TAGS: PREL MARR CASC ASEC FJ
SUBJECT: FIJI PM SEEKS HELP FROM FRIENDLY FOREIGN 
GOVERNMENTS 
 
REF: A. SUVA 469 
 
     ¶B. SUVA 466 
     ¶C. SUVA 460 (AND PREVIOUS) 
 
Classified By: Amb. Dinger.  Sec. 1.4 (B,D). 
 
Summary 
------- 
¶1. (C) In a meeting with selected diplomats on Nov. 3, Fiji 
PM Qarase thanked governments for publicly supporting Fiji's 
democratic system in recent days.  He responded to complaints 
by Republic of Fiji Military Forces (RFMF) Commander 
Bainimarama about controversial bills, stressed his "open 
door" to dialogue, and said he is flexible about RFMF 
participation in Fiji's National Security Council (NSC). 
Qarase described a variety of internal Fiji efforts to find a 
way out of the crisis.  How might foreign governments help 
defuse the situation?  Qarase and Pacific Island Forum (PIF) 
SecGen Urwin discussed invoking the region's Biketewa 
process.  Qarase urged governments to hit the RFMF where it 
hurts by threatening/implementing restrictions on support for 
PKO, military aid, and senior-officer travel.  He told the 
group that he used the talking points re military support 
during a phone conversation earlier in the p.m. with EAP A/S 
Hill and received a "very supportive" response.  The Aussie 
said FM Downer has advocated such restrictions.  We comment 
that, no doubt, Qarase was putting his own spin on history 
and the current crisis; but Bainimarama has consistently 
presumed the worst, and his barrage of public threats to 
remove the government are blatantly unconstitutional.  Action 
request: we seek guidance on how to respond re Qarase's 
request for restrictions on the U.S.-RFMF military 
relationship.  Per ref C, a particular issue will be whether 
to rescind Bainimarama's participation in PACOM's CHODS 
conference the week after next.  End summary. 
 
Thanks to foreign governments 
----------------------------- 
¶2. (C) Following on reftels, on the afternoon of Friday, Nov. 
3, PM Qarase called in the Ambassadors/High Commissioners of 
Australia, New Zealand, Papua New Guinea, the UK, France, and 
the U.S., plus the representative of the EU and the Secretary 
General of the Pacific Island Forum (PIF).  He began with 
"sincere thanks" for all those governments' and 
organizations' "strong expressions of support for elected 
government," democracy, and the rule of law in Fiji. 
 
Police investigations v. Bainimarama 
------------------------------------ 
¶3. (C) Qarase said he met in the a.m. with Acting RFMF 
Commander Capt. (N) Teleni, who said there will be "no coup." 
 Still, the PM observed, Commodore Bainimarama's "erratic 
behavior underlines a need to watch the situation carefully." 
 Qarase noted that Fiji Police investigations against 
Bainimarama are under way on several fronts: for public 
outbursts aimed to force the government to resign; for 
manipulation of Fiji's President regarding an investigation 
about sackings of RFMF senior officers in 2003; for 
mismanagement of the RFMF's budgeted funds; and for the 
killing of mutiny soldiers who were taken from police custody 
in November 2000.  Many of those investigations are 
long-standing, and til now Bainimarama has managed to 
frustrate them. 
 
Controversial bills and the GCC 
------------------------------- 
¶4. (C) The PM said the Great Council of Chiefs (GCC) meeting 
he has called for next Thursday (Nov. 9) is a "good step." 
Under the Constitution, the GCC must be consulted on all 
matters seriously affecting the Fijian people, and Qarase 
reiterated that the parliamentary bills Bainimarama has 
complained about were all endorsed by the GCC before being 
tabled.  On the two such bills currently before Parliament 
(relating to land issues), the RFMF has made submissions to 
sector committees, an appropriate role.  However, Qarase 
argued, the RFMF has no other constitutional role in the 
making of laws. 
 
A reformed reconciliation bill in the works 
------------------------------------------- 
¶5. (C) On the Reconciliation, Truth and Unity Bill (RTUB), 
the third issue, Qarase noted the initial, controversial bill 
lapsed with the end of the previous Parliament and has not 
 
SUVA 00000471  002 OF 004 
 
 
yet been reintroduced.  He said there have been "substantial 
changes" in the draft, including deletion of the "amnesty 
clause" and replacement with new language that would make 
much more transparent a current process that allows 
"immunity" for convicted prisoners under some circumstances. 
Another aspect of the bill would set up a permanent National 
Council for Reconciliation, a step that Qarase believes is 
much needed in Fiji and is non-controversial.  Regarding 
"amnesty," Qarase said police investigations into illegal 
activities from 2000 are "almost completed," which may raise 
a question whether amnesty or immunity provisions are still 
live issues.  Qarase said he does not expect the draft bill 
to reach Cabinet until late 2006 or early 2007. 
 
VP, PM, Commander discussions 
----------------------------- 
¶6. (C) Qarase recalled the tripartite discussions that 
commenced among the Vice President, the PM, and Bainimarama 
after tensions rose last January.  While meetings between the 
VP and the Commander have continued, Qarase said Bainimarama 
"opted out" of direct discussion with the PM after only a 
couple sessions.  Still, Qarase said he made clear at the 
time that his "door is always open."  It is that assurance 
that lies behind his latest offer to resume dialogue. 
 
RFMF participation in the NSC 
----------------------------- 
¶7. (C) On Bainimarama's unhappiness in being excluded from 
National Security Council meetings, Qarase said the 
convention over the years had been for the Commander RFMF and 
Commissioner of Police to be invited.  After the events of 
2000 when Qarase had just become PM, he invited both security 
officials all the time.  Their participation was useful. 
Later, when Bainimarama began threatening the government, 
Qarase stopped inviting him, since "the threat was actually 
coming from the Commander, after all."  Still, Qarase said he 
can be flexible on that issue...if Bainimarama stops his 
threats. 
 
Internal Fiji efforts to resolve the mess 
----------------------------------------- 
¶8. (C) When we asked for comment about any ongoing efforts, 
beyond those mentioned, within Fiji to promote resolution of 
the current crisis, Qarase reiterated his willingness to 
engage in dialogue with Bainimarama and his invoking of the 
GCC which might cause the whole affair to "fade away." 
Qarase noted that the attempt to "discipline" Bainimarama 
(via Presidential suspension) "fell flat on our faces." 
Still, he is pursuing that avenue, since "there are grounds 
for it."  Qarase also mentioned the possibility of "easing 
him out to a posting abroad."  But rewarding the threats is 
not the ideal solution from the PM's point of view.  Qarase 
stressed, "the Commander IS the problem," and he suggested 
"the rank and file (in the RFMF) are embarrassed."  He said 
"over 90% of military personnel" voted SDL (Qarase's party) 
in the May elections, and the sentiment is "still there." 
Asked if the suspension order remains in effect, Qarase 
responded: "That's a good question."  Asked about any recent 
dialogue with RFMF senior officers, Qarase said he has spoken 
only with Teleni, who indicated the RFMF is "receptive to 
dialogue when the Commander gets back." 
 
Other Fiji political party responses 
------------------------------------ 
¶9. (C) The UK rep reported that he and his EU colleagues met 
with FLP leader Chaudhry today and urged a public statement 
in support of rule of law.  (Note: Chaudhry just returned 
from a trip to China and has made no public comment in Fiji 
yet.)  Chaudhry made no commitment but said he would discuss 
the issue with colleagues.  Qarase noted that Opposition 
Leader Beddoes has made a variety of comments, though his 
most recent have been helpful.  Asked about a series of 
National Alliance Party (NAP) news quotes supportive of 
Bainimarama, Qarase said "those are the people behind the 
Commander."  (Note: The head of the NAP is former RFMF 
Commander Ratu Epeli Ganilau.  The newly formed NAP did 
abysmally in the May elections, after styling itself as the 
multi-ethnic alternative.) 
 
Invoking Biketewa? 
------------------ 
¶10. (C) Qarase turned to overseas governments and measures he 
hopes they can endorse to help calm Fiji.  He noted the 
 
SUVA 00000471  003 OF 004 
 
 
Pacific Island Forum's Biketewa Declaration (see ref B). 
Asked to comment, PIF SecGen Urwin stressed that any action 
would have to be at the initiative of the Fiji Government.  A 
first step could be to convene a meeting of Forum Foreign 
Ministers.  He said doing so quickly could offer "preemptive" 
value, and he suggested to hold such a meeting in Fiji.  A 
briefing by the Fiji Government would be the first agenda 
item.  Outcomes could be a request for expressions of concern 
and support, an affirmation of the importance of resolving 
Fiji's problem for the region as a whole, and a call on the 
Commander to abide by constitutional processes.  The 
Australian, PNG, and New Zealand High Commissioners all said 
their Governments are positive about such a meeting.  Qarase 
said he needs "a short while" to consider whether to invoke 
Biketewa. 
 
Urging PKO, mil-aid, and travel restrictions on RFMF 
--------------------------------------------- ------- 
¶11. (C) The PM urged foreign governments, if Bainimarama 
continues his threats: (1) to "make clear" the Army "can't 
believe participation in international peacekeeping 
operations (PKO) will be unaffected;" (2) to spell out to 
RFMF senior officers that another effect could be a 
"scale-down" or "seizure" of military aid; and (3) another 
effect could be a restriction on travel of senior RFMF 
officers to our countries.  Australian High Commissioner 
Rawson responded that FM Downer has expressed support for 
such moves that would hurt the RFMF directly.  PIF SecGen 
Urwin raised a concern about implications for RAMSI.  Rawson 
suggested that RAMSI is "regional," not "international." 
 
Paranoia within 
--------------- 
¶12. (C) Qarase also asked the diplomats to only engage with 
the CEO of the PM's office, Jioji Kotobalavu, on any issues 
concerning the RFMF, and not to engage with the CEOs of Home 
Affairs or Foreign Affairs.  (Note: both those CEOs have an 
RFMF background.)  The UK, Australia, and U.S. noted that 
their DATTS undertake extensive contacts with RFMF officers 
and have even increased those efforts in recent days, 
including with reminders of the proper military role in a 
democracy.  It appeared Qarase had no objection to that. 
 
Phone call with A/S Hill "positive" 
----------------------------------- 
¶13. (C) Qarase confirmed that he and EAP A/S Hill had a phone 
conversation today.  He told the group it was a very positive 
discussion in which the PM made the points (see para 11) 
about how foreign governments might assist.  Qarase said A/S 
Hill was "very supportive" in response.  Qarase said Canada's 
PM plans a phone call on Saturday. 
 
Comment 
------- 
¶14. (C) No doubt Qarase is putting his own spin on the 
current crisis.  He deserves blame for coddling "Fijian 
nationalists" involved in the events of 2000, for introducing 
controversial bills like the RTUB without prior consultation, 
for sometimes poking his finger unnecessarily in military 
eyes, etc.  That said, he did bring consideration of the 
first RTUB to a grinding halt when much public reaction was 
negative.  It will be instructive to see what the new RTUB 
actually looks like and whether it really has removed the 
"amnesty" aspect.  Qarase has also encouraged public debate 
on the land-use bills.  And he did win free and fair 
elections, with Bainimarama and the RFMF actively campaigning 
against him, in May.  In this morning's budget address to 
Parliament, the Finance Minister announced about a 10% 
increase in the RFMF's budget for 2007.  The picture is 
mixed. 
 
¶15. (C) Unfortunately, Commodore Bainimarama has consistently 
presumed the worst; and, of course, his vocal threats to 
remove the lawfully elected government if it does not accept 
his dictates are blatantly unconstitutional conduct for a 
military commander in Fiji.  With Bainimarama's expected 
return to Fiji tomorrow (Nov. 4), the civil-military 
temperature may well rise even higher.  Clearly Qarase has 
appreciated USG public statements of support for rule of law 
in Fiji, as he appreciated his phone call today with A/S 
Hill. 
 
Action request 
 
SUVA 00000471  004 OF 004 
 
 
-------------- 
¶16. (C) We need guidance on how to respond to Qarase's 
requests (para 11) for foreign governments to threaten, and 
as necessary implement, restrictions on engagement with the 
RFMF.  The RFMF is already well aware from Fiji's past coups 
that U.S. law would cut off military assistance.  Threatening 
to act pre-coup in such ways would be new, attention-grabbing 
steps.  Per Ref C, the Australian and New Zealand High 
Commissions have previously raised with us concern about the 
invitation Bainimarama has accepted to attend PACOM's CHODS 
conference in KL this month at USG expense.   See Ref C para 
11 for Embassy comments on the issue.  We note that, after 
the May election, the Commodore stayed publicly quiet for 
four months, until the day after the Pacific Armies 
Management Seminar (PAMS) ended in Nadi.  He can contain 
himself if properly motivated.  Whether a broader travel 
restriction makes sense needs discussion.  That would catch 
senior-officers' attention; but it would also rob the U.S. of 
opportunities to influence at schools and conferences.  Such 
interactions have enhanced RFMF abilities to operate beside 
U.S. and coalition partners in PKO deployments.  However, 
thus far in this crisis, it does not appear past educational 
interactions of RFMF senior officers with U.S. institutions 
have succeeded at another important goal: respect for "rule 
of law." 
 
¶17. (C) On threatening support re PKO, the most obvious USG 
bilateral focus would be MFO Sinai, where we finance Fiji's 
way.  Pay grades higher than ours must consider whether the 
usefulness to USG interests of Fiji's participation in the 
MFO overrides our interest in attempting to deter RFMF 
destabilization at home.  There is no doubt that all levels 
of the RFMF see PKO participation as very important 
professionally and financially.  We know MFO HQ in Rome would 
want to be involved in that discussion.  We note that the 
Fiji Government has under consideration participation in the 
Coalition of the Willing in Iraq (MNFI).  We surmise from 
Qarase's meeting today that MNFI participation will not 
happen so long as Bainimarama is continuing his outbursts. 
DINGER