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C O N F I D E N T I A L SECTION 01 OF 05 ROME 000089 
 
SIPDIS 
 
E.O. 12958: DECL: 01/21/2019 
TAGS: PGOV PREL PTER KISL IT YE
SUBJECT: ITALY-YEMEN: SENIOR MFA OFFICIALS OUTLINE APPROACH 
ON FRIENDS OF YEMEN, EU FAC ISSUES 
 
ROME 00000089  001.2 OF 005 
 
 
Classified By: Political Minister Counselor Barbara A. Leaf for reasons 
 1.4 (b) and (d) 
 
SUMMARY 
-------- 
 
¶1.  (C) FM Frattini's Chief of Staff Alain Economides and 
Acting Director General of the MFA Middle East Bureau Luigi 
Marras told us the international community needed to take an 
inclusive and regional approach to stabilizing Yemen in the 
aftermath of the attempted bombing of NWA Flight 253.  Marras 
stressed that Yemeni ownership of the effort and  tailoring 
the approach to local sensitivities was critical to success. 
Commenting on the Department's Yemen demarche points for the 
upcoming EU Foreign Affairs Council (FAC) ministerial, Marras 
said the GOI fully shared U.S. concerns and that an inclusive 
"Friends of Yemen" (FOY) format would be most effective. 
Economides provided the PolMin Counselor an advance copy of 
the GOI position paper on Yemen that FM Frattini will present 
in London detailing the GOI's concept of the FOY initiative 
(text below).  End summary. 
 
 
GOI APPROACH TO FOY 
------------------- 
 
¶2.  (C)  On January 20, Poloffs conveyed the Yemen demarche 
points for the January 25 EU FAC ministerial to Acting 
Director General of the MFA's Middle East Bureau Luigi 
Marras.  In response, Marras said that Yemen has been a top 
GOI concern for the past two years and that Italy shares the 
USG analysis of the security problem Yemen represents. 
Marras emphasized Yemen's links with Somalia and other East 
African countries and that the FOY initiative must address 
social and economic development in that region too, in order 
to preempt al-Qaida's recruiting attempts.  Italy has also 
pushed for a more pro-active EU commitment toward combating 
terrorism and addressing the sources of instability in Yemen, 
he noted. 
 
¶3.  (C) Marras said that to be effective the FOY should 
ensure Yemeni "ownership" of the initiative and FOY countries 
should not be perceived as too intrusive.  Specifically, the 
ROYG should not be pressured to accept reforms that could 
play into the hands of "negative forces" and further weaken 
the central government.  While democracy is one instrument to 
achieve "stability and happiness" in Yemen, Marras said our 
(western) notion of democratic reform cannot be imposed on 
Yemeni society in a short period of time.  Acknowledging that 
he did not yet know the organizational details of the January 
27 London FOY meeting, Marras said the Arab League should 
have been invited as well as all countries and organizations 
presently working in Yemen. 
 
¶4.  (C)  Marras quoted A/S Gordon that Yemen should not be 
perceived as "an Anglo-Saxon concern," a perspective Italy 
shares.  Commenting that London has been "very secretive" 
about its organizing of the FOY, Marras offered his view the 
FCO must have been caught by surprise at having to host the 
meeting at such short notice.  As for Italian assistance, 
Marras said the GOI is currently helping Yemen fight high 
seas piracy and to regain partial control of its coast by 
providing training, radars and refitted Italian patrol boats 
to the Yemeni coast guard.  Italy plans to increase 
assistance to Yemen which, according to Marras, would help in 
monitoring arms smuggling to Gaza. 
 
GREATER ENGAGEMENT -- ESPECIALLY U.S. -- ON SOMALIA NEEDED 
--------------------------------------------- ---------- 
 
¶5.  (C)  In a separate meeting with PolMin Counselor, FM 
Frattini CoS Economides underlined the sense of urgency 
Frattini has about Somalia following his Africa swing last 
week.  (Note:  Frattini announced from Kenya GOI plans to 
fund the Somali MFA, Ministry of National Security and other 
GOS entities.  End note.)  Economides said that every head of 
state and foreign minister Frattini met during the trip urged 
the Italians to elicit greater USG engagement on Somalia. 
Economides said the GOI viewed Somalia and Yemen as two sides 
of the same (bad) coin, in terms of spawing trans-national 
security threats, thus it was critical that we collectively 
addressed problems in both countries in a coordinated, 
cohesive fashion.  He mused that while hitherto Somalia's 
neighbors had taken a stance of hoping to keep the problems 
 
ROME 00000089  002.2 OF 005 
 
 
there contained within, it was now clear that this was a 
non-starter.  "We have no choice" but to engage directly and 
assertively in Somalia, thus the GOI commitment to fund 
ministries and police and coast guard training.  As an 
indication of how some neighbors still longed for old 
solutions, Economides said Kenyan officials told Frattini 
they aimed to build a kind of "cordon sanitaire" 60 
kilometres deep along the Kenyan-Somali border, an idea he 
dismissed as pointless in terms of addressing the security 
threats emanating from Somalia. 
 
Following is the text of the GOI position paper on Yemen: 
 
 
ITALIAN POSITION PAPER ON YEMEN 
------------------------------- 
 
(C)  Begin Text:  Under embargo until after the intervention 
of FM Frattini at the January 27 London FOY meeting. 
 
January 18, 2010. 
 
(C)  Analysis:  Yemen has long been facing serious 
destabilizing factors, which find fertile ground in the 
socio-economic difficulties affecting the country, such as 
poverty, shortages in resources, rise of extremism, flux of 
refugees, illegal immigration and trafficking.  The main 
reasons for concern are currently represented by the 
terrorist groups in the northeast of Yemen (allegedly 
benefiting from Iranian support), the separatist movements in 
southeast , and the complex tribal system of the country, as 
well as the proximity to Somalia.  These elements altogether 
create an environment where al-Qaida and other terrorist 
organizations have shown to be able to increase their 
destabilizing activities. 
 
(C)  Strategy:  The national Yemeni ownership of the process, 
as well as the regional ownership of the process (all of the 
Gulf Cooperation Council countries should be included), are 
of the utmost importance (also at the media level).  The 
sovereignty of Yemen should be fully respected, and all the 
national and regional instruments put to work.  For these 
reasons, the Arab League should be invited.  The perception 
of an intrusive foreign presence shoud be avoided in order to 
foster support from all the components of the country.  It is 
necessary to effectively support the process of 
re-stabilization of Yemen through a coordinated effort of the 
international community. 
 
(C)  Steps to be taken: Yemen, together with the GCC 
countries, should work out a strategy for restabilization 
which could be shared by a group of countries and 
organizations (that are) "Friends of Yemen."  At the 27 
January London meeting the main lines of the strategy could 
be discussed and a working plan agreed upon. 
 
(C) The plan could include the following main areas of 
intervention: 
 
a) Social and economic measures; 
b) Institution building; 
c) Security; 
d) Coastal monitoring and patrolling; 
e) Smuggling and trafficking. 
 
To each of these areas of intervention could correspond a 
Working Group under the lead of Yemen with the assistance of 
a country or of an international organization.  Italy could 
could consider assisting Yemen in one of the Groups.  The 
coastal monitoring and patrolling Group could be a 
possibility. (Italy participates both in Ocean Shield and 
Atalanta operations, is implementing VTMS system in Yemen, is 
engaged significantly in Somalia, and is ready to host in 
Rome one of the next meetings of the Gaza Counter Arms 
Smuggling Initiative.) 
 
(C)  In order to be consistent with the strategy of national 
ownership, the coordination of such Working Groups should be 
loose and informal, although effective.  In the weeks 
following the London conference, Friends of Yemen could meet 
in the region to start its activities.  Alternatively, Rome 
could be a possible venue.  End text. 
 
 
 
ROME 00000089  003.2 OF 005 
 
 
Following is the text of the paper on Frattini's discussions 
on Somalia with Kenyan, Ethiopian and Somali leaders, 
provided by Economides: 
 
Updated Italian position on Somalia 
 
Begin text: 
 
Somalia is a priority in Italy's foreign policy.  In this 
light, the Somali crisis was the main topic of discussion 
during meetings of Foreign Minister Franco Frattini with 
Somali, Kenyan and Ethiopian Authorities, held during his 
recent visit to these countries.  In line with the "Italian 
Position Paper on Somalia", presented to the extraordinary 
ICG meeting held in New York on the 23rd of September 2009, 
Italy has the pleasure of forwarding the following updated 
position, which considers views expressed by the leaders of 
the three mentioned countries, which Italy fully endorses. 
 
Discussions with Ethiopia and Kenya 
 
Somalia was major topic of discussion in the meetings the 
Italian Foreign Minister, Franco Frattini, held in Ethiopia 
with Prime Minister Meles and Foreign Minister Seyoum (13 
January) as well as in Kenya with President Kibaki, Prime 
Minister Odinga and Foreign Minister Wetangula (14 January). 
 
Ethiopia and Kenya had very similar messages:  The crisis in 
Somalia has a dangerous spill-over effect throughout the 
wider region, as well as for Europe.  It represents a clear 
and present threat to international security, due mainly to 
terrorism as well as piracy.  In the region there is a 
widespread feeling - backed up by anecdotal evidence - that 
the upper layers of Shabaab leadership are predominantly 
constituted by foreign fighters, with strong ties to Al Qaeda. 
 
According to both leaders, the Somali Transitional Federal 
Institutions must be urgently and effectively assisted, as 
their failure would be a disaster firstly for the region, but 
also for the International Community.  If Shabaab take 
control over Mogadishu, the effects will be dramatic in the 
neighboring countries (Sudan, Kenya, Ethiopia) but also at 
the international level through a surge of fundamental 
Islamic terrorism (seveal Somalis - some of them with double 
passports - have already been protagonists of terrorists 
acts).  This view is also shared by the Special 
Representative of the UNSG, Ambassador Ould Abdallah. 
 
The African Union peacekeeping mission needs to be futher 
strengthened, to allow it to become a more effective 
instrument of defence of the TFG and its Institutions. 
 
According to the leaders of both countries, the crisis should 
be tackled by the International Community with more 
effectiveness and coordination.  Among other considerations, 
the humanitarian situation in Somalia and the plague of 
Somali refugees abroad call for a strong international 
response (reactivating the World Food Programme activities in 
Somalia was specifically mentioned). 
 
As concerns the internal situation the leaders of both 
countries, while stressing their full support to the TFG, 
pointed out some inconsistencies in its action which need to 
be addressed and overcome:  the incapacity to create better 
living conditions for their people (security, health, 
education, jobs) at least in the Shabaab-free areas; requests 
not in line with clear priorities presented by the TFIs to 
donors (e.g.:  rehabilitation of the Ministry of Tourism in 
Mogadishu). 
 
Particularly serious is the inability of the TFG to pay 
regularly their Security Forces (due also to the insufficient 
and inadequate assistance by the International Community) 
while the Shabaab seem much better at acquiring the necessary 
financial resources to ensure regular payment of their 
forces.  The International Community has a crucial role to 
play in this respect, as financial assistance is badly needed 
to cover these vital expenses. 
 
Both countries acknowledged the key role Italy can play in 
the Somali crisis and in the region, and encouraged Rome to 
continue to pursue its action, also as a stimulus to the rest 
of the International Community. 
 
 
ROME 00000089  004.2 OF 005 
 
 
Positon of Somalia 
 
Foreign Minister Frattini met with President Sheikh Sharif 
Sheikh Ahmed in Nairobi.  The President was accompanied by 
Sharif Hassan Sheikh Aden, Deputy Prime Minister and Minister 
of Finance and by Foreign Minister Jengheli.  The President 
confirmed that the first and foremost priority of Somalia is 
security.  In addition, the Somali President stressed that 
the Transitional Federal Institutions need targeted foreign 
support to work more efficiently. 
 
The first budget ever since 1991, just released for 2010, is 
an important step to such an effect.  The amount involved is 
110 million dollars, well within the reach of the 
International Community.  The Government will continue its 
policy of national reconciliation and outreach towards Somali 
civil society.  Economic reconstruction must start in safe 
areas, controlled by Government forces.  The International 
Community must respect the pledges made at the April 2009 
Brussels' Conference as well as re-activiate its presence in 
Somalia (The President explicitly mentioned the need for a UN 
presence on the ground). 
 
The President also dwelt upon the linkages between Somalia 
and Yemen in the fight against terrorism.  Focusing on 
security, the President insisted strongly on the need to 
ensure regular and adequate payment for his Security Forces, 
in order to prevent defections and strengthen the TFG. 
President Sheikh Sharif Ahmed also stressed that urgent 
priorities in this field are military equipment, logistics 
and transport, medical supplies and healthcare. 
 
The President asked Italy to host a pledging Conference for 
the Reconstruction of Somalia. 
 
Italy's Engagement 
 
In 2009 Italy disbursed 13 million Euros in favour of 
security in Somalia as well as for capacity-building in 
favour of its institutions, namely 5 million euros to AMISOM 
and almost 8 million euros to Somalia Security Forces 
(managed together with the AU through the Italian Africa 
Peace Facility) and to key Somali Ministries (Foreign Afairs, 
National Security, Finance, Interior, through a program 
managed by UNOPS).  Moreover, 6 million euros were disbursed 
by Italian Aid, providing humanitarian assistance to the 
Somali population (mostly through International Agencies, as 
Italy presently doesn't send expatriates on the ground). 
 
Italy will pursue its engagement through projects aimed a 
training Somali 'robust' Police Forces, border and custom 
police officers (the first such course took place in Italy 
recently), and possibly through a pilot project to train 
Coast Guard officers. 
 
Targeted support to the Ministry of Information, specifically 
for Radio Mogadishu, is also foreseen, with a main purpose of 
reinforcing Somali Government capabilities to reach out to 
civil society and public opinion.  Until now, information and 
propaganda has been monopolised by Shabaab. 
 
Italy confirms the intention of re-opening its Embassy in 
Mogadishu as well as to deepen its recognition of the Somali 
Government by formally accepting the new Somali passports. 
 
Political priorities 
 
Italy will further its comprehensive approach towards 
Somalia, also by envisaging targeted advocacy actions in 
order to make sure that partners in the International 
Community live up to their promises regarding supporting 
concretely the Transitional Federal Institutions' and Somali 
Security Foreces (e.g. disbursing pledges at the Brussels' 
Conferences).  Similar efforts may be required in 
strengthening AMISOM as a pre-condition to allow the TFIs to 
establish a more secure environment, starting with the 
capital Mogadishu. 
 
The initiative of re-opening the Embassy of Italy in 
Mogadishu should be matched by parallel steps by the most 
important international organizations, such as the UN, the EU 
and the AU, in order to materialize on the ground the resolve 
of the International Community in supporting the TFIs.  Italy 
will continue to cooperate with countries within the region, 
 
ROME 00000089  005.2 OF 005 
 
 
also in its capacity as Chair of the IGAD Partners' Forum 
(IPF).  IGAD itself has decided to send a Ministerial Troika 
-- Kenya, Djibouti and the IGAD Secretariat -- to some 
countries. 
 
On the EU front, Italy deems it necessary to appoint a EU 
Special Envoy for the Horn of Africa, to better focus and 
streamline the Union's activity in the region, with a 
particular focus on Somalia. 
 
 
 
 
 
 
THORNE