VZCZCXRO9437
RR RUEHROV
DE RUEHDS #2765/01 2801451
ZNR UUUUU ZZH
R 061451Z OCT 08
FM AMEMBASSY ADDIS ABABA
TO RUEHC/SECSTATE WASHDC 2273
INFO RUCNIAD/IGAD COLLECTIVE
RUEKJCS/SECDEF WASHINGTON DC
RUEKJCS/JOINT STAFF WASHINGTON DC
RUEWMFD/HQ USAFRICOM STUTTGART GE
RUEKDIA/DIA WASHINGTON DC
RUEAIIA/CIA WASHINGTON DC
RHEHAAA/NSC WASHDC
RUEPADJ/CJTF HOA

UNCLAS SECTION 01 OF 03 ADDIS ABABA 002765 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PHUM PGOV EAID ECON ET PREF
SUBJECT: TENSION AND POOR DEVELOPMENT TORMENT 
BENISHANGUL-GUMUZ REGION 
 
REF: ADDIS 1554 
 
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Summary 
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¶1. (SBU) In an early September visit to Asosa, capital of the 
Benishangul-Gumuz region, PolOff examined reports of recent 
escalations in internal conflict and observed broader 
political and economic issues in one of Ethiopia,s most 
underdeveloped regions.  Many officials highlighted mounting 
tension between native "lowlanders" and incoming 
"highlanders," whom they perceive to have greater economic 
prosperity.  Investigations into the May 2008 Oromo-Gumuz 
conflict (reftel) continue but its underlying causes, 
resource tension and border demarcation, remain unresolved. 
In August, the Benishangul Liberation Front (Beni), 
reportedly backed by Eritrea, skirmished repeatedly with the 
Ethiopian National Defense Forces (ENDF), heavily damaging 
two towns.  Regarding economic development, the region braces 
itself for expected further cuts in its federal budget 
allocation while highlighting deficits in agricultural 
development and the regional government's management 
capacity.  End Summary. 
 
¶2. (SBU) PolOff and a British embassy counterpart visited 
Asosa from August 31 to September 2.  PolOff held meetings 
with the Regional President,s Chief of Cabinet, Senior 
Advisor to the Head of Regional Security and Administration 
Bureau, Deputy Police Commissioner, Head of Militia, Speaker 
and Deputy Speaker of the Regional Parliament, and 
representatives from the UN High Commissioner for Refugees 
(UNHCR), International Rescue Committee (IRC), and VSO. 
PolOff also visited a regional Management Institute (MI), a 
regional prison, and a bridge construction project 
implemented through the Ambassador,s Special Self Help fund. 
 
--------------------------------- 
Increased Tensions in Benishangul 
--------------------------------- 
 
¶3. (SBU) Officials and locals repeatedly stressed that 
Benishangul, an historically peaceful region, is experiencing 
increased tension and conflict on many fronts, particularly 
between native "lowlanders" of the Berta, Gumuz, Shinasha, 
and Como ethnic groups and incoming "highlanders" from 
Oromiya and Amhara.  Highlanders are perceived to own most 
businesses and encroach on native agricultural lands, and 
live in more affluent areas of Asosa.  UNHCR highlander staff 
experience explicit face-to-face threats to leave and some 
rural highlanders are reportedly flocking to Asosa for 
refuge.  Beni rebels and low intensity ethnic conflict also 
threaten the region's stability. 
 
------------------------------ 
Massacre Investigation Ongoing 
------------------------------ 
 
¶4. (SBU) The Government of Ethiopia (GoE) continues to 
investigate the May 2008 Gumuz-Oromo massacres (reftel) and a 
mobile court has apparently begun trials of some of the 120 
suspects in custody.  The MI serves as an unofficial jail for 
many of these suspects (including the regional Vice 
President).  The massacres drove the Benishangul parliament 
to pass a resolution allowing only police and militia to 
carry arms.  The underlying causes of ethnic conflict in the 
region, including migrations in pursuit of scarce resources 
and a disputed border demarcation between Benishangul and 
Oromiya regions, remain unaddressed and Benishangul 
authorities lament that they have little leverage in 
negotiations with officials from neighboring Oromiya when 
they attempt to resolve some of these disputes through 
negotiation.  Currently, Oromiya officials claim to have 
jurisdiction over land on the Sudan border lying between 
Benishangul and Gambella regions.  Oromiya is apparently 
pushing the federal House of Federation hard for a 
demarcation referendum, which Beninshangul opposes. 
Benishangul officials say they desperately need a conflict 
resolution mechanism. 
 
----------------------------------- 
Benishangul Liberation Front (Beni) 
----------------------------------- 
 
ADDIS ABAB 00002765  002 OF 003 
 
 
 
¶5. (SBU) In recent weeks, Beni rebels created instability and 
conflict in the Benishangul-Gumuz region.  The Beni are a 
small, localized insurgent movement claiming to represent the 
agricultural, lowland Berta people who have taken up arms 
against the GoE for their region's relative underdevelopment 
and against encroaching highlanders who have migrated into 
the region in recent years.  The Deputy Police Commissioner 
estimates that Beni has 300 fighters.  The Militia Head and 
Regional President's Chief of Cabinet said the Eritrean 
government supports the Beni, citing captured Beni rebels who 
admit being trained in Eritrea.  The Chief of Cabinet cited 
Asmara-based radio programs which highlight Beni support from 
a former Ethiopian Ambassador to Yemen, Yusuf (NFI), who now 
lives in Asmara.  He also said Sudan is arming Beni.  The 
Militia Head claimed Beni does not target lowland ethnic 
groups or the militia (i.e. Beni's own kind) but instead 
engages the ENDF.  ENDF and Beni reportedly skirmished on 
August 12, 15, and 30, particularly in Gizen and Mengi towns, 
where infrastructure was apparently heavily damaged.  Such 
attacks may increase as the rainy season wanes in 
November/December.  The community reaction is mixed but 
generally tolerant; however, decreasing food resources could 
strain community support for Beni.  There are also reports 
that the ENDF are disarming militias suspected of arming the 
rebels but the Militia Head denies this.  The militia number 
2,200 and suffer from poor training, little equipment, and 
sporadic salaries.  (Note: Throughout Ethiopia, communities 
form militias as the local-level security forces, as the 
reach of the federal police does not extend to the rural 
community level.  End note.)  Specific Beni motives are 
opaque but sources believe they seek greater resources and 
development for the Berta, blaming economic stagnation on 
highlanders.  The regional government's approach is to cast 
the Beni leadership in a pejorative light while promising 
Beni members a better future if they defect. 
 
----------------------- 
The Regional Parliament 
----------------------- 
 
¶6. (SBU) The regional parliament has 99 seats, including 
eleven held by opposition members.  Ethnic representation 
generally reflects the most recent census, with the Berta (46 
seats) and Gumuz (36 seats) making up the majority.  The 
Speaker and Deputy Speaker said that the April 2008 local 
elections were "almost transparent," and more participatory 
than ever, with local populations generally electing 
home-grown representatives.  The majority Benishangul-Gumuz 
Democratic Unity Front (BGDUF), which consists of four 
parties (Boroshanasha, Gumuz Democratic Movement, Berta, and 
Mowocom), previously sought integration into the ruling 
Ethiopian Peoples Revolutionary Democratic Front (EPRDF). 
Although the EPRDF denied their application, insisting that 
the BGDUF become stronger before integration, BGDUF is a de 
facto EPRDF-affiliated party which votes in step with the 
EPRDF in the national parliament. 
 
------------------------ 
Development and Capacity 
------------------------ 
 
¶7. (SBU) Benishangul-Gumuz is one of Ethiopia's "emerging 
regions," but some officials claim it is "totally neglected" 
by the federal government and are bracing for a further 
reduction of their portion of the federal budget allotment. 
Benishangul signed development agreements with Oromiya and 
Amhara regions two years ago but they remain unimplemented. 
The regional government's development priorities are not 
uncommon (education, economic development, conflict 
resolution) but have a strong focus on the need to modernize 
the region's rudimentary agricultural system for its 90 
percent rural population.  PolOff visited a regional MI 
designed to build government management capacity through 
training, research, and consulting while also acting as a 
public "knowledge center" with internet and a modest library. 
 MI's distance from Asosa center precludes meaningful public 
visits, though, and trainings are sparse after donors 
requested a better long-term strategy before adding more 
funds.  As mentioned above, MI now serves primarily as a 
jail.  VSO refuses to assign any further volunteers to the MI 
until the jail closes.  Regional government officials openly 
pleaded for the USG to help focus the GoE on developing the 
 
ADDIS ABAB 00002765  003 OF 003 
 
 
region and expressed an eagerness to accept USG advice on 
development issues. 
 
--------------------- 
Sherkole Refugee Camp 
--------------------- 
 
¶8. (SBU) UNHCR reports Sherkole camp currently hosts 4,800 
refugees, mostly Southern Sudanese, Darfurians, and members 
of the Great Lakes community.  Despite a trend of population 
reduction (5,000 since June 2007), repatriated refugees are 
now returning to the camp at a rate of roughly twenty per 
week as they decide their homeland offers greater economic 
hardship then the camp.  Further population increases are 
likely at Sherkole if UNHCR consolidates remaining refugees 
from camps that are closing elsewhere.  UNHCR reports no 
intra-camp tensions but IRC says there are isolated incidents 
among Darfurians, including some that are gender-based. 
MALAC