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FM AMEMBASSY BUJUMBURA
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UNCLAS SECTION 01 OF 03 BUJUMBURA 000798 
 
SIPDIS 
 
SIPDIS 
 
DEPT FOR AF/C 
 
E.O. 12958: N/A 
TAGS: OVIP PINR PGOV PREL OREP EAID MASS MARR BY
SUBJECT: SCENESETTER FOR CODEL INHOFE 
 
¶1.  (SBU) SUMMARY:  Your visit to Burundi comes at a critical 
time in the country's modern political history.  After a 
summer marked by political infighting and a virtual 
legislative standstill, President Nkurunziza appointed a new 
government and displayed some willingness to tackle Burundi's 
significant political challenges.  Negotiations between the 
Government of Burundi (GOB) and the lone remaining rebel 
group, the PALIPEHUTU-FNL (FNL), are set to resume amid a 
violent fracturing of the rebel group. After years of 
devastating civil war, the GOB hopes to relinquish its 
dependence on post-conflict assistance and develop its 
economy.  Endemic corruption and a volatile political 
environment continue to hamper efforts to make economic 
progress and ensure stability. 
 
¶2.  (SBU) The GOB, with significant U.S., British, French, 
and African Union (AU) support, is attempting to establish a 
leadership role for itself in Africa by participating as a 
Troop Contributing Country to the African Union Mission to 
Somalia (AMISOM).  However, cumulative deployment delays may 
put at risk Burundi's reputation as a reliable international 
partner.  It would be helpful if the CODEL would reinforce 
the Embassy's message that Burundi needs to deploy its 
promised peace-keepers immediately.  END SUMMARY. 
 
 
The Peace Process Stalled 
-------------------------- 
 
¶3.  (SBU) In September 2006, President Nkurunziza's 
government signed a cease-fire agreement with the FNL, the 
sole remaining rebel group.  A critical obstacle to 
completing the peace process is the recent formation of a 
group of some 2,000 so-called FNL "dissidents," who claim to 
be weary of conflict and ready to implement the cease-fire 
accords; there is some question as to whether all of these 
troops are actual FNL members.  The dissidents are strongly 
opposed by forces loyal to FNL leader Agathon Rwasa, who 
appears to be jockeying for position in the run-up to 2010 
elections.  In September, pro-Rwasa troops attacked a 
contingent of dissident soldiers near the capital of 
Bujumbura, leaving at least 20 dead.  The dissidents are 
currently located in two camps north of Bujumbura under the 
protection of the GOB and the AU.  The government and 
international community are discussing ways to move the 
process forward without prompting Rwasa to resume full-scale 
guerrilla war. 
 
 
Political Stalemate 
-------------------- 
 
¶4.  (SBU) A political stalemate plagued the Burundi National 
Assembly over the summer, with the President's fractured 
National Council for the Defense of Democracy-Forces for the 
Defense of Democracy (CNDD-FDD) unable to unite to pass 
legislation.  However, under sustained pressure from the 
media, political parties and the international community, the 
President reached out to the opposition at the end of August 
to reestablish a dialogue and encourage all parties to work 
together for the people of Burundi.  In November the 
controversial First Vice President resigned and the President 
reshuffled his cabinet to allot more ministerial positions to 
opposition parties.  There is some optimism that this new 
political configuration might be able to move the political 
agenda forward.  The GOB recently nominated Minister of 
External Relations (the equivalent of Secretary of State) 
Antoinette Batumubwira to be the next President of the 
African Union. 
 
 
AMISOM Deployment Delays 
------------------------- 
 
¶5.  (SBU) Burundi has pledged to support the AMISOM mission 
with two battalions of roughly 850 soldiers each.  While the 
AU welcomed this offer from the newly-democratic Burundi, the 
deployment was initially delayed by the GOB's inability to 
find financing for equipment and training.  The United States 
and other international partners agreed to provide equipment 
and training, including a pre-deployment program financed 
with African Contingency Operations Training and Assistance 
(ACOTA) funds. 
 
BUJUMBURA 00000798  002 OF 003 
 
 
 
¶6.  (SBU) Increased and changing demands from the Forces de 
Defense National (FDN - the Army), however, have further 
delayed the planned November 15 deployment.  It would be 
helpful for the CODEL to deliver the strong message that 
while the U.S. is pleased with Burundi's commitment to 
AMISOM, its determination to play a leadership role in the 
region, and the deepening bilateral ties between our two 
countries, the U.S. strongly urges Burundi to deploy its 
troops to Somalia immediately.  Prior delays notwithstanding, 
further delays threaten to send an unwanted signal that 
Burundi may not be ready to act as a reliable international 
partner. 
 
 
Regional Security 
------------------ 
 
¶7.  (SBU) Burundi is a regional partner in the U.S.-financed 
and facilitated Tripartite Plus Joint Commission (Tripartite 
Plus), a group that also includes the governments of the 
Democratic Republic of Congo (DRC), Rwanda, and Uganda.  The 
primary goal of the Tripartite Plus is to reduce the threat 
of negative forces in the region, primarily in eastern DRC. 
The GOB values the Tripartite Plus as an essential forum 
where member governments can voice security concerns and 
discuss solutions to help ease regional tensions.  A 
Tripartite Plus Heads of State Summit will take place in 
Addis Ababa on December fifth to take advantage of the 
momentum of the November Nairobi Agreement between Rwanda and 
the DRC that calls for a cooperative military plan of action 
to eliminate negative forces in eastern DRC. 
 
 
Economic and Social Background 
------------------------------- 
 
¶8.  (SBU) Burundi has the second highest population density 
in Sub-Saharan Africa, and its 7.4 million people live in an 
area roughly the size of Maryland.  The population is made up 
of three major ethnic groups - Hutu, Tutsi, and Twa (formerly 
known as Pygmy).  Although Hutus make up the majority of the 
population (84 percent), Tutsis (15 percent) have been 
politically and economically dominant since Belgian colonial 
rule.  A decade-long civil war, the most recent manifestation 
of inter-ethnic violence since independence in 1962, began in 
1993 and displaced approximately one million Burundians and 
left an estimated 300,000 dead. 
 
¶9.  (SBU) Burundi is one of the poorest countries in the 
world.  Per capita GDP is approximately $119, and Burundi 
recently ranked 169 out of 177 on the UN's Human Development 
index.  The mainstay of the Burundian economy is agriculture 
which accounts for almost half of GDP. Approximately 90 
percent of the labor force is dependent on subsistence 
farming, which has been complicated by the large number of 
refugee returns in 2007 and a rapidly increasing population 
competing for a limited amount of available land.  The main 
cash crop is coffee, accounting for more than half of exports 
earnings; other principal exports include tea, sugar and raw 
cotton.  Kirundi is Burundi's primary language; French and 
Kiswahili are also widely spoken. 
 
Bilateral Economic Relations 
----------------------------- 
 
¶10.  (SBU) After Burundi's 2005 democratic elections, the 
U.S. lifted sanctions on Burundi pursuant to Section 508 of 
the Foreign Operations Appropriations Act, thus paving the 
way for the resumption of direct assistance.  Burundi also 
became eligible for tariff preferences under the African 
Growth and Opportunity Act (AGOA) in December 2005.  The 
African Development Foundation (ADF) has signed an agreement 
to start operations here and the Overseas Private Investment 
Corporation (OPIC) has also expressed an interest in 
operating in Burundi.  The U.S. is one of the country's main 
donors, with over $46 million in assistance in FY07 and is 
the single largest donor to the UNHCR and World Food Program 
in Burundi. 
 
¶11.  (SBU) In 2006 and 2007, International Military Education 
and Training (IMET) monies funded two seminars on 
civil-military relations for 120 leaders in civil society and 
 
BUJUMBURA 00000798  003 OF 003 
 
 
the security sector, and an English lab and language classes 
for commissioned officers and NCOs at the army's training 
center, ISCAM.  The Defense Minister hopes this will better 
equip the Army to participate in regional peacekeeping 
missions and qualify individual officers for professional 
military training opportunities in the U.S.  Future IMET 
funds would be used for training in Peacekeeping Operations 
and the Rule of Law. 
 
 
USAID 
------ 
 
¶12.  (SBU) The USAID assistance program addresses three areas 
critical to Burundi's transition from a post-conflict country 
to a developing one:  developing economic growth by 
diversifying rural income through agribusiness; improving 
maternal-child health by educating the public on good hygiene 
and nutrition; and promoting democracy and good governance. 
Further, with a rapidly growing population, the return of 
tens of thousands of refugees, and its position as the second 
most densely populated country in sub-Saharan Africa, land 
ownership and land availability will become an increasingly 
difficult challenge for Burundi.  Accordingly, USAID 
assistance is also focused on finding a resolution to the 
difficult question of land tenure. 
 
Health and HIV/AIDS 
-------------------- 
 
¶13.  (SBU) Despite the fact that Burundi's HIV/AIDS problem 
is as serious as that of its neighbors (six percent of the 
population is HIV positive), Burundi is not a PEPFAR country. 
 Although the U.S. Mission has limited funds to support 
anti-HIV/AIDS programs and HIV/AIDS education, it supports 
HIV/AIDS prevention, care and support services in Bujumbura 
and in Kirundo Province.  The AIDS problem facing the 
military is being addressed through Defense HIV/AIDS 
Prevention Program (DHAPP) funding administered through the 
DAO.  A multi-year program is in place to educate, test, and 
counsel AIDS-susceptible military members and their families. 
 
 
 
Mission Staffing 
----------------- 
 
¶14.  (SBU) The U.S. Mission in Burundi is staffed by 15 
direct-hire American employees and six Marines; a two-person 
Defense Attach Office; one USAID American personal services 
contractor and 103 locally engaged staff.  The Mission is a 
high hardship, 20% danger pay post and employees operate 
under strict travel restrictions.  Despite these limitations, 
the security situation has improved sufficiently that in June 
2006, the Department of State authorized adult dependents to 
return to post and is considering a return to fully 
accompanied status. 
MOLLER