VZCZCXRO0517
OO RUEHBZ RUEHDU RUEHJO RUEHMR RUEHRN
DE RUEHAN #0232/01 0680616
ZNR UUUUU ZZH
O 090616Z MAR 07
FM AMEMBASSY ANTANANARIVO
TO RUEHC/SECSTATE WASHDC IMMEDIATE 4451
INFO RUCNSAD/SOUTHERN AFRICAN DEVELOPMENT COMMUNITY
RUEHFR/AMEMBASSY PARIS 0834
RUEAIIA/CIA WASHDC
RUEKDIA/DIA WASHDC
RHEHNSC/NSC WASHDC
RUEHLMC/MILLENNIUM CHALLENGE CORPORATION

UNCLAS SECTION 01 OF 02 ANTANANARIVO 000232 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
DEPT FOR AF/E, AF/FO, INR/AA, AND DRL 
PARIS FOR D'ELIA 
 
E.O. 12958: N/A 
TAGS: PGOV PREL KDEM EAID PHUM PINR MA
SUBJECT: GOM PROPOSES CONSTITUTIONAL CHANGES 
 
REF: (A) ANTANANARIVO 180 (B) ANTANANARIVO 60 
 
ANTANANARI 00000232  001.2 OF 002 
 
 
¶1. (U) SUMMARY: The Government of Madagascar (GOM) has publicly 
proposed a number of constitutional changes to be voted on in a 
referendum April 4, with the stated goal of driving forward the 
Madagascar Action Plan (MAP), its signature development program (REF 
A).  Changes include eliminating the six-province structure in favor 
of 22 regions and local government; adding French and English as 
official languages; protecting intellectual property rights; 
espousing the fight against corruption; increasing the Prime 
Minister's authority over cabinet members; withholding 
parliamentarians' salaries for unjustified absences; and shortening 
the parliamentary session.  It is difficult to assess how 
effectively these subtle changes will facilitate the GOM's ambitious 
development plan.  Amendments that collectively strengthen the role 
of the Presidency have most opposition figures suspecting a 
power-grab by President Ravalomanana instead.  The proposal also 
clears the way for Madagascar's ratification of the Rome Statute. 
END SUMMARY. 
 
¶2. (U) Following much speculation, on March 2 the GOM published 
proposed changes to 72 articles of Madagascar's constitution for the 
April 4 referendum.  As articulated by the drafters, the proposed 
amendments seek to make the government more efficient and 
accountable, attract international interest by adopting 
western-friendly practices, and imbue all Malagasy citizens 
(including political parties) with the responsibility for 
Madagascar's development.  The proposals boil down to four main 
themes. 
 
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MAKING GOVERNMENT EFFICIENT AND ACCOUNTABLE 
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¶3. (U) In line with the results-oriented tone set by President 
Ravalomanana for this administration, the amendments propose to 
remove a layer of government by abolishing the six province 
structure.  Instead, responsibility for implementing development 
plans and government administration will lie with the remaining 22 
regions and 1,557 commune-level local governments.  The President 
hopes this change will remove a layer of "red tape" to make MAP 
implementation more efficient.  With his new emphasis on leadership 
at the "fokontany" (neighborhood) level (REF B), this administrative 
restructuring is also intended to facilitate more direct contact 
with the grass-roots level of government. 
 
¶4. (U) A number of the amended articles seek to decrease the power 
of parliamentarians and make them more accountable -- changes with 
which even some members of the ruling TIM party take issue.  The 
changes propose withholding salaries for unjustified absences; 
cutting the parliamentary session down to a 60-day period to 
expedite legislation and encourage legislators to spend more time at 
home attending to their constituents; and shortening senators' terms 
from six to five years to align with deputies' terms. 
 
¶5. (U) Another change targeting greater efficiency gives the Prime 
Minister increased authority over cabinet members in an effort to 
rein in dissenting ministries who have in the past sometimes refused 
to follow the Prime Minister's directives. 
 
- - - - - - - 
LOOKING WEST 
- - - - - - - 
 
¶6.  (U) A number of the changes reflect the "Western-oriented" 
Ravalomanana's desire for Madagascar to integrate into the 
international community.  As the GOM seeks stakeholders and donors 
to move the MAP forward, the revised constitution is in part 
designed to appeal to Western governments and foreign investors by 
including a Preamble espousing good governance and the fight against 
corruption, the protection of intellectual property rights, and the 
adoption of French and English (an inclusion, no doubt, noted by the 
French) as official languages.  New requirements stipulating 
presidential candidates must henceforth be born of a Malagasy mother 
and father and must reside in Madagascar for six months preceding 
their candidacy seek to further loosen French influence over 
Malagasy policy -- a trend carried over from Ravalomanana's first 
administration. 
 
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EVERYONE IS RESPONSIBLE 
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ANTANANARI 00000232  002.2 OF 002 
 
 
¶7.  (U) After a recent election period characterized by intense 
criticism from civil society and politicians (but little action from 
the latter), the GOM's changes call on all Malagasy citizens to take 
a more active role in the country's development.  Making the 
Malagasy people ("fokonolona") the base of Madagascar's development, 
the proposed constitution guarantees individuals, associations, 
political parties, and all other groups their rights and liberties, 
but also emphasizes their responsibilities and obligations toward 
the nation. 
 
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THE PRESIDENT'S CONSTITUTION? 
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¶8. (SBU) While moving the MAP forward is the stated thrust of the 
proposed changes, Post notes the increased power given to the 
presidency.  Until regions and communes are fully functional with 
the appropriate legal authority, the President will have the power 
to issue ordinances related to their activities.  The Council of 
Ministers (chaired by the President) will have the power to appoint 
regional heads, nominate the Vice-Presidents of the Supreme Court, 
and appoint Supreme Court judges -- the only people able to file 
lawsuits against Madagascar's senior officials. 
 
¶9. (U) Media sources have seized on the omission of a clause 
guaranteeing the separation of church and state.  The President has 
been criticized repeatedly for mixing government issues with his 
personal affiliation with the Christian churches, and this move is 
seen by some as his way to avoid criticism of "unconstitutional" 
behavior.  With churches playing a strong political role in 
Madagascar, others characterize the change as a pragmatic move to 
promote the country's development by removing an obstacle to working 
with one of its major stakeholders. 
 
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ROME STATUTE NOW CONSTITUTIONAL 
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¶10.  (U) The proposed constitution contains a new article allowing 
the ratification of the Rome Statute, previously rejected by the 
High Constitutional Court in 2006 as "unconstitutional." 
 
- - - - 
COMMENT 
- - - - 
 
¶11. (SBU) All proposed changes will be considered together as a 
single up or down vote.  With few people expected to vote against 
the revisions, which are presented as being "for the rapid and 
sustainable development by region in order to improve the living 
standard of the Malagasy," the referendum is widely expected to 
pass.  The process, rapid and non-transparent, has caught the 
attention of Ravalomanana's critics.  Most opposition figures 
suspect a power-grab by the President.  Many of the constitutional 
changes are subtle and only their implementation will determine 
whether they are benign and effective.  Moreover, changes making the 
government more "efficient" would also seem to diminish checks 
against the Presidency.  The stated intention, facilitating 
implementation of the MAP, is difficult to assess given that the 
GOM's ambitious development plan needs funding, expertise, and good 
luck far more than it needs legislative lubrication in order to 
succeed. 
 
¶12.  (SBU) COMMENT CONTINUED:  Anticipating strong EU pressure on 
the GOM to ratify the Rome Statute immediately following the 
referendum, Post will need to work quickly with the Department to 
secure a waiver for Madagascar, which has signed an Article 98 
Agreement.  END COMMENT. 
 
MCGEE