VZCZCXRO6272
RR RUEHBZ RUEHDU RUEHGI RUEHJO RUEHMA RUEHMR RUEHPA RUEHRN RUEHTRO
DE RUEHMB #0353 3621028
ZNR UUUUU ZZH
R 281028Z DEC 09
FM AMEMBASSY MBABANE
TO RUEHC/SECSTATE WASHDC 3827
INFO RUEHZO/AFRICAN UNION COLLECTIVE

UNCLAS MBABANE 000353 
 
SIPDIS 
SENSITIVE BUT UNCLASSIFIED 
 
DEPT FOR AF/S (MHARRIS); AF/RSA; IO (USUN) 
 
E.O. 12958: N/A 
TAGS: AU PREL XA GU MA WZ
SUBJECT: AU PEACE AND SECURITY RETREAT ON UNCONSTITUTIONAL CHANGE OF 
GOVERNMENT: PRELIMINARY REPORT 
 
¶1.  (SBU) SUMMARY:  The African Union Peace and Security Council 
(PSC) held a retreat from December 17-19 in Mbabane, Swaziland, and 
drafted a framework on AU response to unconstitutional change of 
government.  The framework reportedly is proceeding through the AU's 
cataloguing process before release to member states for 
consideration.  Swazi Principal Secretary of the Ministry of 
Defense, Dr. Kunene, told CDA that members wanted to adopt the 
framework quickly, as they believe it will help with the situation 
in Guinea.  In addition, Dr. Kunene indicated that the PSC focused 
on Madagascar's unconstitutional transfer of power and how the U.S. 
might help resolve that crisis. 
 
The Principal Secretary said the framework would focus on sanctions, 
and therefore needed to be fully supported by the UNSC.  He 
indicated that the agreement will be presented to the full AU for 
adoption during its upcoming summit in Addis.  END SUMMARY. 
 
¶2.  (SBU) The AU PSC held a retreat in Mbabane, Swaziland December 
17-19, 2009.  According to a preliminary discussion with Swazi 
Ministry of Defense Principal Secretary Dr. John Kunene, the PSC 
drafted a framework on response to unconstitutional change of 
government in Africa, which is currently being put through the AU's 
cataloguing process before it is released to member states for 
consideration.  He reported to Charge that members wanted to adopt 
the framework quickly, as they believe it will help with the 
critical situation in Guinea. 
 
¶3.  (SBU) Dr. Kunene indicated that discussions included 
Madagascar's unconstitutional transfer of power and the new crisis 
fomented by Rajoelina's replacement of the prime minister and 
announcement regarding elections.  Dr. Kunene indicated that 
discussion included how the U.S. could help resolve that crisis, and 
promised to meet the CDA "as soon as possible" after the holidays to 
share this discussion in more detail. 
 
¶4.  (SBU) As of December 23, the Principal Secretary did not have a 
copy of the framework agreement, but he stated that it would include 
a system of increasing sanctions which would need to be fully 
supported by the UNSC for implementation by countries outside the 
AU.  He believed that the AU would share the draft with UNSC members 
for comments, and that the framework will be presented to the full 
AU for adoption during its upcoming summit in Addis. 
 
¶5.  (SBU) Dr. Kunene was embarrassed that the Swazi government 
initially postponed the opening ceremony for the PSC retreat.  The 
Swazi Ambassador to the AU told invited diplomatic observers that 
the ceremony was postponed because "the appropriate" high-level 
Swazi official was not present to present remarks.  King Mswati III 
is currently in seclusion from official duties for the annual 
Incwala traditional ceremonies, and Prime Minister Barnabas Sibusiso 
Dlamini, who was announced as the keynote speaker in the first 
official invitation to the opening ceremony, was in Copenhagen for 
COP15.   Minister of Foreign Affairs Lutfo Dlamini was designated to 
officially open the ceremonies, but his arrival from a trip outside 
the country was delayed.  Without regrouping the diplomatic corps, 
deliberations were later halted to make arrangements to hold the 
opening ceremony.  Dr. Kunene said that this waste of time forced 
deliberations on the framework to last late into the night. 
 
¶6.  (SBU) COMMENT: USAU or USUN may have earlier access than post to 
this draft framework, but post will follow up and secure more 
details from Dr. Kunene on the discussions.  If AU members want to 
be seen as taking non-military leadership to deal with 
unconstitutional changes of government by the imposition of 
sanctions, it will be interesting to see how the framework addresses 
foreign assistance and non-AU trade to those countries.  The AU may 
request assistance to set up mechanisms to police such sanctions and 
control increased smuggling operations that will develop in 
response.  One hopes that African officials already involved with 
drug smugglers would not see sanctions as private black-market 
commercial opportunities. 
 
MORRISON