VZCZCXYZ0017
RR RUEHWEB

DE RUEHNJ #0593/01 1941309
ZNR UUUUU ZZH
R 131309Z JUL 07
FM AMEMBASSY NDJAMENA
TO SECSTATE WASHDC 5531

UNCLAS NDJAMENA 000593 
 
SIPDIS 
 
SIPDIS 
 
DS/IP/AF, DS/IP/ITA 
 
E.O. 12958: N/A 
TAGS: ASEC CD
SUBJECT: COST AND RESOURCE ESTIMATE FOR US OUTPOST IN ABECHE 
 
REF: A. DS/IP/RD EMAIL TASKING FROM KEVIN BARRY 
 
     ¶B. N'DJAMENA 199 
     ¶C. N'DJAMENA 191 
 
Summary: 
 
¶1. (U) RSO N,djamena was tasked on July 3 to produce a 
survey to address the creation of a diplomatic outpost in 
Abeche, Chad.  US Embassy Chad has recognized since early 
2007 the desirability of a permanent base of operations (or 
at the very least, a facility) to house the numerous TDY,rs 
in the area and provide a secure environment from which to 
cover the region.  Historically, USG visitors have relied 
completely on a few American NGO,s and the UN for everything 
from transportation, to food and lodging.  End Summary 
 
History 
------- 
 
¶2.  (U) Abeche is the largest city in eastern Chad.  A 
regional capital, it is home base to almost all NGO,s and 
the UN,s High Commission for Refugees (UNHCR) efforts to 
relieve the growing humanitarian crisis in eastern Chad. 
REFTEL B provides a solid overview of the city and its 
history and should be required reading for anyone considering 
a permanent presence in the city.   This cable will focus not 
on the city and its surrounding environs but rather what 
level of effort, both financial and human, is needed to 
establish a permanent base of operations. The RSO in 
N,djamena continues to approve, as the security situation 
allows, limited term TDYs to the area for Embassy reporting 
officers and other USG visitors monitoring the UN and NGO 
operations and providing periodic assessments of humanitarian 
conditions among refugees and displaced persons as well as 
liaison with local populations. 
 
¶3.  (SBU) On February 18, 2007 the US Embassy EAC discussed 
the desirability of establishing a remote residence in 
Abeche, REFTEL C. The purpose of this residence would be to 
provide a safe environment for Embassy personnel who are 
visiting or on Temporary Duty (TDY) to the region. 
Currently, USG personnel rely almost exclusively on UN 
agencies and partner NGO,s to provide temporary lodging for 
official TDY,s to the area.  At the time, the facility was 
only envisioned as a residence capable of housing a handful 
of visitors and not as a permanent base for extended 
operations.  This cable explores the implications for a fully 
fledged operating base as well.  This facility would no 
longer be under the 12 FAM 330 Residential Security Program, 
but be subject to 12 FAM 310 Physical Security of Facilities 
Abroad and the requirements for Critical Crime and Political 
Violence. For both categories of facility, unless other wise 
indicated, cost estimates provided would apply to both. 
 
Cost Estimates and Resources 
---------------------------- 
 
¶4. (U) Abeche is a remote, arid city, geographically isolated 
and landlocked with poor airlift capability or facilities. 
As a result, even basic essentials are next to impossible to 
find in Abeche on a regular basis.  Everything from shampoo 
to toner cartridges would have to be imported from 
N,djamena.  The UNHCR compound offers temporary lodging and 
dining facilities on a pay for use basis but can quickly be 
overwhelmed by visitors.  The French Army base has medical 
facilities but only for emergencies.   Local food vendors are 
unreliable and unsafe as sanitation standards are low in 
Abeche.  Fuel is always in short supply and priced higher 
than in N,djamena. 
 
¶5. (U) Complicating this situation are the inadequate, poor 
roads and airport facilities in Abeche.  Its short 10,000 
foot runway is barely adequate to allow for a C-130 sized 
cargo plane take off and landing.  A recent Air Force flight 
team supporting a CODEL visit to Abeche recommended the 
airport not be used for C37 (G5) jet aircraft.  Most supplies 
and materials will have to be brought in overland on a long 
and bandit-infested road which limits the driving to daylight 
hours.  This results in a 2-3 day drive from N,djamena, 
depending on the season and speed of the convoy.  A convoy 
security plan must be established as even UN and NGO convoys 
are attacked from time to time.  Daytime driving is usually 
safe but convoys loaded with fuel, food and other supplies 
are always going to be a target; especially since the 
Government of Chad is not able to project its security forces 
beyond the areas just outside of the major cities and towns. 
 
¶6. (U) There is a serious lack of suitable property in 
Abeche.  Most if not all of what is available will require 
extensive renovations to bring them up to acceptable 
standards.  Leasing property will be between $1500 and $5000 
monthly.  Prices are rising because of UN and NGO presence 
and the possibility of a UN Peacekeeping Operation (PKO). 
$1500 will get a basic shell of a home that contractors can 
upgrade while $5000 a month would be something in a nearly 
ready-to-move-into-state.  Already, TDY officers in the area 
have reported a marked increase in prices and a decreasing 
availability of suitable properties.  The area around the 
French base and airport is considered the best in terms of 
security and convenience.  A recent trip to Abeche by the RSO 
disclosed massive &walling off8 projects around that area 
in an effort by local landlords to consolidate property 
before the anticipated land grab begins.  A DAO observer 
commented that many government officials and merchants are 
planning much higher prices as UN and Humanitarian missions 
increase in size.  Even with the high end rents, generators, 
10' fencing with lights, a water cistern, pumps, etc., will 
all be needed as these are often not standard features for a 
home in Abeche. 
 
- Add-ons: Generator, electrical system rebuild, water system 
rebuild, water cistern, security upgrades, yard upgrades 
(paved parking, guard shack, etc.) kitchen upgrades estimate: 
$100,000. 
 
- Salaries:  Will depend on the going rate in Abeche but most 
likely will have to be on par with US Embassy Locally 
Employed Staff (LES). Our wages will have to meet or exceed 
those of any UN PKO or we run the risk of providing a trained 
labor pool for locals who,ll be waiting for a better 
opportunity if a large PKO materializes.  We'll need local 
drivers, translators (Arabic and French), security (see 
below) and a cooking/cleaning (CHAR) force.  A local FSNI 
will be needed for liaison with the local police.  In total 
operating costs for this local staff would be approximately 
$50,000 to 75,000 to per year. A residence only facility 
would only need basic services and cost $25-35,000 per year. 
 
- Guards: The US Embassy in N'Djamena has trained its own LES 
Local Guard Force due to inadequate training and hiring 
standards for local contractors.  Locally contracted guards 
have been known to commit crimes of opportunity due to poor 
supervision.  Recently one local guard contracted by a NGO 
attacked and tried to rape the ex-pat worker he was assigned 
to protect.  Our LGF in the city would have to be hired 
locally and include at least two supervisors and a 
coordinator.  One facility or compound with 24 hour operation 
would require at least 2 guards per shift.  Recently bandits 
have scaled the walls of two different NGO compounds and 
robbed the ex-pat residence.  The lone guard at each compound 
was easily overpowered. At one incident a local gardener was 
shot and killed.  A staff of 9 would be approximately $90,000 
for salaries, uniforms and equipment.  Using a contractor for 
LGF would not necessarily be cheaper due to the 
hyper-inflation of prices. 
 
- Vehicles: At least two, three is better SUV 4x4's ) two 
&safari8 kitted Toyota Land Cruisers and one Troop Carrier 
(Hardtop) Land Cruiser, with a minimum 10 ton winch, river 
fording adaptors (snorkels), roof racks, grille guards and 
heavy duty air filters.  The economy in Abeche is very 
limited in its ability to support and maintain any other type 
of vehicle - $150,000 ) 200,000 to purchase.  Mud and sand 
tires to accommodate season changes plus air filters, oils 
etc would add another $25,000 annually. 
 
- Communications: VSAT $5000 start up, plus monthly payment - 
$50,000 annually.  Landline phones are unreliable unless tied 
into a satellite system.  Mobile phone, both cellular and 
satellite are necessary ) $15,000 per year.  A VHF SSB radio 
link to monitor the UN/NGO system and provide emergency and 
operational two-way communication would be helpful - $75,000 
start-up for installation of base and vehicle units, 
receiving and transmitting tower.  A dedicated back-up 
generator and frequency permits/license and repair and 
replacement costs would add another $25,000 per year. 
 
- Administration: Since banking services are practically 
nonexistent, staff will need to be hired/fired, supplies and 
services contracted to the extent available, vehicles and the 
facilities will need maintenance; all manner of 
administrative, HR, GSO and Financial services will be needed 
to support an extended operation in Abeche.  Most of these 
functions can be combined into one or two positions but due 
to the lack of education and skilled workers in the area, 
qualified candidates will have to be brought in from 
N,djamena.  An American could fill the position but a 
dedicated interpreter who has knowledge of local prices 
customs and regulations is needed or we run the risk of local 
price gouging - $20,000 per year estimated. These services 
would not be needed for a residential facility. 
 
- Medical: A full time nurse practitioner would be needed as 
there is no safe service that can be contracted.  It may be 
possible to negotiate an agreement with the French for 
emergency services but routine medical needs would need a 
dedicated individual trained to recognize tropical diseases, 
stabilize injured employees and a contracted medical 
evacuation service to remove severe cases from the area for 
treatment - $250,000 for salary, supplies and MEDEVAC 
contracting. For a residence, the UN and French medical 
capabilities can provide limited emergency services and a 
nurse practitioner would not be needed.  A contract MEDEVAC 
service should be retained and would cost $150,000 per year. 
 
- Transportation: The only commercial flights available to 
Abeche are on Toumai Air Chad.  Flights are infrequent, 
expensive and service is unreliable due to cancellations on 
short notice.  UN flights provide the USG with the only 
reliable flight service.  However, seating is limited and 
flights are often canceled for maintenance or other reasons. 
Contracting a local flight service is an option.  Several 
vendors exist and would most likely be able to fly the route 
several times a week.  The cost of this service varies but is 
roughly $1,200 per hour. A round trip flight for an 8-10 seat 
aircraft with a max payload of 5500 pounds would be about 
$6,000.  Flying twice a week for a year would be 
approximately $624,000.  We should consider this service for 
both types of facilities and only use the UN system for a 
back up. 
 
- Airport: As mentioned above, the Abeche facility is very 
limited.  Ramp space is shared with the French and Chadian 
Air forces.  For any serious increase in flight operations, 
at a minimum the ramp space would have to be increased and 
the runway improved.  In all likelihood, the Government of 
Chad (GoC) would be unable to assist in a meaningful way. 
Corruption within its civil service would likely drive the 
cost if left to local contracting.  This would have to be an 
assistance project probably in excess of one million USD and 
monitored by an ex-pat contractor.  This would be unnecessary 
with a residential facility. 
 
¶6. (U) The security situation is tenuous at best.  DS should 
factor in the need to have a permanent security 
representative in Abeche to liaise with local law 
enforcement, UN and NGO security personnel.  Safe convoy 
routes change almost daily and with the continuing rebel 
insurgency in the east, battles with the Chadian Army can 
occur rapidly and unexpectedly.  Rural bandits, &Toro Boro8 
Sudanese rebel militias and roaming Janjawiet militia all mix 
in the east.  Monitoring their locations and action from 
N,djamena has proven to be a full-time challenge for the 
RSO.  Having a dedicated security officer at this location 
would also serve to advise the many US based NGO,s in the 
area regarding personnel safety as well as provide a more 
real time security assessments for the USG operations in the 
area.  Currently, only the UN has dedicated security officers 
while the NGO,s often give the responsibility to their 
supply and logistics coordinators as an extra duty ) one for 
which they often do not have time or simply are not qualified 
to complete.  As a result, a steady stream of security 
incidents occur in the east with good-intentioned but ill 
prepared NGO workers.  In the past year, NGO workers have 
been shot, sexually assaulted, robbed and beaten due to a 
lack of security oversight.  Any serious staffing of a 
permanent facility should include a designated security 
officer who is language proficient in Arabic or French.  For 
a residential facility, this would be unnecessary.  However, 
DS should consider making the ARSO position in N,djamena 
Arabic language designated. 
 
The Bill 
-------- 
 
¶7. (U) The cost of starting up and maintaining a permanent 
presence in Abeche will be significant.  DS can expect to 
fund major security upgrades to any facility leased or 
purchased to be inline with critical crime and critical 
violence standards found in 12 FAM 310 for a permanent 
office.  In addition, adding another ARSO position to 
N,djamena is highly advised to have a duty rotation set up 
in Abeche.  All equipment and re-supply will have to be 
brought in overland or via air cargo.  After speaking with 
contracting, procurement, UN administrative workers and NGO 
officials, the total bill for starting an operation like this 
will exceed 3 million USD with reoccurring costs in excess of 
1.5 million USD.  If classified operations are required the 
start-up cost would go up exponentially.  These estimates do 
not include shipping and transportation of personnel and 
supplies to Chad or American salaries.  They represent the 
best guess of all parties involved. 
 
¶8. (U) A residential facility would undoubtedly be easier to 
set up and maintain as it would not be a focal point for 
meetings or other USG activities. It would provide lodging 
and not require a co-location waiver or be subject to the 
physical security standards for official USG offices. 
Depending on the communication capabilities the cost of such 
a facility would be much less ) $500,000 to 1 million for 
leasing, upgrading and equipping.  Reoccurring costs less 
than $200,000. 
TAMLYN