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### Viewing cable 09PARIS1339, U.S.-FRANCE-EU DISCUSS SAHEL SECURITY ISSUES

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
09PARIS1339 | 2009-09-30 09:09 | 2010-12-06 21:09 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Paris

`

    VZCZCXRO7770
    PP RUEHBZ RUEHDU RUEHGI RUEHJO RUEHMA RUEHMR RUEHPA RUEHRN RUEHTRO
    DE RUEHFR #1339/01 2730934
    ZNR UUUUU ZZH
    P 300934Z SEP 09
    FM AMEMBASSY PARIS
    TO RUEHC/SECSTATE WASHDC PRIORITY 7254
    INFO RUEHZO/AFRICAN UNION COLLECTIVE PRIORITY
    RUEHLI/AMEMBASSY LISBON PRIORITY 1106
    RHMFIUU/HQ USAFRICOM STUTTGART GE PRIORITY
    RHMFIUU/HQ USCENTCOM MACDILL AFB FL PRIORITY
    RUEKJCS/SECDEF WASHINGTON DC PRIORITY
    RHEHNSC/WHITE HOUSE NSC WASHINGTON DC PRIORITY

` `

    UNCLAS SECTION 01 OF 05 PARIS 001339

    SENSITIVE
    SIPDIS

    DEPT FOR AF, INL, AND S/CT
    LONDON AND LISBON FOR AFRICA WATCHERS
    DOD FOR AF:HUDDLESTON
    NSC FOR AF:GAVIN
    DEPT PLEASE PASS USAID FOR GAST

    E.O. 12958: N/A
    TAGS: PTER PREL PINR EAID EU UK MA NG MR NI AG FR
    SUBJECT: U.S.-FRANCE-EU DISCUSS SAHEL SECURITY ISSUES

    ¶1. (SBU) SUMMARY: U.S. government representatives met
    French, British, and European Union officials on
    September 10 in Paris to review efforts to address the
    security threat posed by terrorism in Africa's Sahel and
    Maghreb regions. There was broad agreement that the USG,
    France, and other third countries should identify areas of
    cooperation and mechanisms to coordinate and de-conflict
    efforts to improve multilateral and individual country
    capacity in the region to address immediate and long-term
    threats from al-Qaeda in the Islamic Maghreb (AQIM). The
    discussions focused on factors influencing the region's
    ability to address the AQIM threat, including the Sahel
    countries' lack of law enforcement and military capacity; the
    complexity of state relations with its nomadic populations,
    e.g. the Tuareg and Berbiche ethnic groups, the profitability
    of illicit trade and kidnapping networks; the need for
    Algeria to work more closely with its neighbors; the
    importance of better donor coordination; and undermining
    recruitment efforts that could expand the scope of radical
    Islam in West and Central Africa. Participants agreed on the
    need to meet in the future to exchange information regarding
    each other's efforts in region. END SUMMARY.

    ¶2. (SBU) Assistant Secretary of State for African Affairs
    Johnnie Carson led a high-level interagency delegation in
    discussions with a French delegation led by Under Secretary
    for Political Affairs (P)-equivalent Policy Director Jacques
    Audibert and Africa A/S-equivalent Stephane Gompertz. The
    U.S. and French delegations were joined by British and
    European Union counterparts for the afternoon session. The
    discussion began with an exchange of information on the
    current security and political situation in the Sahel, which
    Gompertz described as France's "main area of concern" in
    sub-Saharan Africa and was followed by exchanges on a wide
    range of critical factors related to the region's terrorist
    threat. Martin Julliard, France's Head of Transnational
    Threats Section, Strategic and Security Affairs Department at
    the MFA, said that AQIM's political agenda was not well
    understood and was evolving over time. He noted that AQIM is
    targeting westerners, but it was not clear whether it wanted
    to challenge the legitimacy of governments or even the
    states. Participants noted that while AQIM's northern group
    remains concentrated on Algeria, elements of the southern
    group have shifted away from acting primarily as logistical
    support for northern operations and have increased planning
    and operations in the Sahel. It was emphasized that the
    southern group remained linked with its northern leadership,
    but has made inroads in recruiting in the Sahel, particularly
    in Mauritania, and has increased the scope and sophistication
    of its operations in parts of the Sahel during the past year.
    USG and French participants considered whether there were
    opportunities to exploit apparent divisions within AQIM.
    Remi Marechaux, an Africa Advisor to President Sarkozy summed
    up the situation succinctly, "we feel we are losing the
    battle between improved development in these countries and
    the increasing security threats in the region."

    LACK OF CAPACITY
    ----------------
    ¶3. (SBU) There was broad agreement among the participants
    that the focus countries of the conference (Mauritania, Mali,
    and Niger) lack the resources to fully control their vast
    territories. In addition, lack of governmental capacity
    remains a serious hindrance in terms of military/security
    effectiveness and developmental progress. The EU chair noted
    that each country posed specific challenges for partners in
    addressing security threats:

    -- Mali, where in addition to capacity constraints, there are
    questions about the government's willingness to confront and
    engage AQIM militarily, despite clear indications that AQIM
    maintains a degree of impunity within its Northern Mali
    "sanctuaries." S/CT Coordinator Daniel Benjamin noted that
    Mali is perhaps becoming more helpful, but French speakers
    consistently referred to the Malian position as "ambiguous"
    and "enigmatic;"

    -- Mauritania, which may possess greater political will for
    taking-on AQIM, but political instability following the
    recent coup hampered efforts to support its CT efforts; and

    PARIS 00001339 002 OF 005

    -- Niger, where recent un-democratic maneuvering by
    President Tandja makes it difficult to offer new assistance.
    NSC Senior Advisor Michelle Gavin underscored that our CT
    efforts cannot undercut our governance and democracy
    priorities in Africa. While remarking that President Tandja
    had already "won his gamble" to secure a third term and the
    French will focus their attention on pushing for credible
    elections, Gompertz stated that France did not have a clear
    strategy to balance its CT objectives with the urgency of
    promoting good governance and constitutional rule in the
    country.

    PROFITS FROM ILLICIT TRADE AND KIDNAPPING
    -----------------------------------------
    ¶4. (SBU) France's MOD Director of Strategic Affairs Pascal
    Texeira noted that AQIM is commonly understood to have only
    about 150 fighters in the Sahel, but it has significant
    financial resources for obtaining weapons and logistic
    support such as vehicles and radios from profitable illicit
    trafficking networks, including arms, people, drugs, and
    other contraband. Of even greater concern is AQIM's apparent
    success in securing large ransom sums for kidnapped
    westerners. When asked, U.K. FCO Director for Africa Adam
    Wood confirmed that following the January murder of U.K.
    hostage Edwin Dyer, his country would play a more active role
    in the region, and would certainly support an AU initiative
    at the UN to rally international opposition against ransom
    payments in cases of piracy and hostage-taking, which he
    believed was being spearheaded by Algeria. Participants had
    not yet seen a draft of the resolution.

    ¶5. (SBU) Developing a better understanding of Tuareg
    activities and motivations was seen as an important priority,
    especially since they develop ad-hoc agreements with AQIM
    elements in support of trafficking and perhaps kidnapping.
    Texeira stated that Mali views the threat of a new Tuareg
    rebellion as more dangerous than that from AQIM, and neither
    Mali nor Niger could count on Tuareg leaders to fight against
    AQIM. French and USG analysts also noted that breakdowns in
    traditional ethnic political, social and economic networks
    was potentially destabilizing.

    NEED TO INVOLVE ALGERIA
    -----------------------
    ¶6. (SBU) A/S Carson raised the importance of getting
    Algeria involved in multi-national efforts to combat AQIM,
    and also for Algeria to work in concert directly with Mali to
    disrupt AQIM and criminal networks. "There can be no
    solution without Algeria," according to Texeira, who thought
    that Algeria would work with regional partners, but did not
    want to be implicated with "outside players." They noted
    that Algeria engages in limited intelligence-sharing and has
    made inquiries about other forms of counterterrorism
    assistance, but remains reticent about enhanced cooperation
    with potential western partners.
    Participants viewed positively Algeria's plans to organize a
    regional security summit in the coming months, but they
    agreed that there was relatively little information about
    summit objectives or the agenda.

    TREAT OF SPREADING RADICALISM
    -----------------------------
    ¶7. (SBU) The potential spread of AQIM (or some other brand
    of radicalized and violent Islam) in Africa was also a
    recurring issue. In particular, participants expressed deep
    concern that northern Nigeria is at risk of such influence.
    AQIM personnel or facilitators had also reportedly been
    identified in Niger and Senegal recently. Guinea-Bissau and
    Guinea are also at risk should AQIM make greater inroads into
    the West African narcotics trade, according to Gilles de
    Kerchove, the European Union Council's Coordinator for
    Counter Terrorism. Part of the problem is that
    disenfranchised young men from the southern parts of the
    Sahel are moving north and joining the group.
    Participants agreed on the need for a greater understanding
    of how AQIM successfully recruited militants/fighters/suicide
    bombers, especially from
    Mauritania. (Note: during a lunchtime conversation,
    France's Ambassador to Mauritania explained to INR Analyst

    PARIS 00001339 003 OF 005

    Bernadette Graves and Embassy Paris Africa Watcher that he
    sees no clear trend, nor does he understand the reasons for,
    AQIM's apparent success in recruiting young Mauritanians. He
    notes that these recruits have come from a variety of
    backgrounds and ethnic groups and the trend does not fit the
    commonly held view of Mauritania as a moderate, tolerant
    Muslim country with Sufi traditions. End note.)

    DONOR COORDINATION
    ------------------
    ¶8. (SBU) One of the goals of the conference, and a recurring
    theme, was to improve assistance co-ordination among donors.
    The U.S., France, and the EU provide a range of military and
    security training in the region. Assistant Secretary Carson
    discussed the background and goals of the U.S. interagency
    Trans-Saharan Counter Terrorism Partnership (TSCTP). He
    noted that TSCTP was a broad-based holistic approach to
    supporting regional CT efforts that includes military and law
    enforcement capacity-building, public diplomacy/strategic
    communications, and support for local and national good
    governance. USAID Deputy Assistant Administrator Earl Gast
    observed that development indicators in the Sahel are among
    the worst in the world and USAID involvement in USG
    counter-extremism programming reflects that the regional
    vulnerability to terrorism is increased by the lack of
    employment opportunities for youth and poor or nonexistent
    governance and service delivery in large swaths of territory.

    ¶9. (SBU) France is focused on responding to Mali's request
    to assist its efforts to establish four forward operating
    bases in its northern frontier. It is also exploring how to
    support efforts to improve Malian administration and local
    governance in the north and improve customs and border
    security. Gompertz stated that France has security dialogues
    with Niger and Mali and would soon initiate discussions with
    Mauritania. The French also highlighted the urgency of
    assisting countries with judicial reform, training of
    prosecutors and magistrates, and criminal procedures.

    ¶10. (SBU) The EU completed an assessment of Mali in July and
    will visit Mauritania in October, but has postponed plans to
    visit Niger due to the current political situation. Future
    assistance may include border surveillance and customs
    services, and Sweden's Ambassador for Counter Terrorism Carin
    Wall highlighted the EU's desire to collaborate more closely
    with other actors, "not least the U.S."

    ¶11. (SBU) All three donors have or are considering programs
    in judicial processes and law-enforcement. A/S Johnson
    explained that the U.S. will likely establish a Regional
    Security Training Center in West Africa, and the EU noted
    that it is considering something similar: a Sahel-based
    "multi-functional" regional training center focusing on
    military, law enforcement, and border control and customs
    capacity building. The EU and French representatives
    highlighted the importance of building academies and
    "clearinghouses" to provide training to a range of security
    organs.

    ¶12. (SBU) The participants agreed to collect and share
    detailed information about the specific programs and projects
    each is pursuing or considering in the region as the first
    step for further consultations and coordination. Towards the
    end of the event, A/S Carson encouraged the participants to
    find the time and means to expand this type of dialog into
    other areas in need of greater mutual understanding and
    coordination in Africa, including the way forward in Somalia,
    Sudan, and the Great Lakes, and also for transboundary issues
    such as demographic pressures, democracy, and development
    priorities. A/S Johnson added judicial reform, including
    best practices in corrections as another timely need.

    "LEAD FROM THE SIDE"
    --------------------
    ¶13. (SBU) The three-plus groups agreed that supporting
    regional CT efforts in the Sahel was an important immediate
    and long-term priority, but there was a clear consensus that
    external actors must ensure that they limit visibility of
    their activities and avoid actions that would be seen as
    undercutting regional leadership over the issue. Elysee

    PARIS 00001339 004 OF 005

    Advisor Marechaux noted that the French had not crafted a
    "Sahel plan" in order to avoid a potential backlash from
    Sahelian and Maghreb states suspicious of its intentions in
    the region. He noted that increasing the "profile" of the
    AQIM problem would likely enhance the group's Jihadist
    "credentials" and attract potential recruits from inside and
    outside the region. A/S Carson agreed: "We don,t want to
    become part of the problem by appearing to take the lead; we
    need to lead from the side, not from out front." He noted
    that raising the profile of external actors in the region
    risked alienating key Sahelian interlocutors and further
    risked assisting AQIM recruiting and resourcing efforts.
    Ambassador Benjamin agreed that it was vital to ensure that
    the counterterrorism effort had a "local face."

    COMMENT
    -------
    ¶14. (SBU) This gathering will likely prove the kick-off to
    further discussions and closer cooperation. The French and
    the EU reps were willing to share their analysis of the
    situation, but were clearly also ready to defer to the U.S.'s
    assessment. More than one French participant who later
    joined a POL-hosted reception noted how impressed they were
    with the high level of participation by the U.S. and by A/S
    Carson's positive role as co-Chair of the event.

    PARTICIPANTS
    ------------
    ¶15. (U) U.S.
    - Johnnie Carson, Assistant Secretary of State for African
    Affairs
    - Michelle Gavin, National Security Council Special
    Assistant to the President and Senior Director for African
    Affairs
    - Daniel Benjamin, Coordinator for Counterterrorism
    - David Johnson, Assistant Secretary of State for
    International Narcotics and Law Enforcement Affairs
    - Vicki Huddleston, Department of Defense, Deputy Assistant
    Secretary of Defense for African Affairs
    - Janet Sanderson, Deputy Assistant Secretary of State for
    Near Eastern Affairs
    - Earl Gast, U.S. Agency for International Development
    Senior Deputy Assistant Administrator.
    - Christopher Maier, Director for Counterterrorism National
    Security Council
    - Bernadette Graves, Bureau of Intelligence and Research
    - Daniel Epstein, Bureau of African Affairs
    - Victor Nelson, Regional Officer, Office of the
    Coordinator for Counterterrorism
    - Erin Barclay, Bureau of International Narcotics and Law
    Enforcement Affairs
    - Embassy Paris Africa Watcher.

    FRANCE
    Presidency of the Republic
    - Remi Marechaux, Advisor on Sub-Saharan Africa

    Ministry of Foreign and European Affairs
    - Jacques Audibert, Political Director
    - Stephane Gompertz, Director of Africa and Indian Ocean
    - Patrice Paoli, Director of North Africa and Middle East
    - General Emmanuel Beth, Director of security and defense
    cooperation
    - Charlotte Montel, Advisor of the Minister for African
    Affairs, Cabinet
    - Laurent Bigot, Head of West Africa Section, Africa and
    Indian Ocean Department
    - Jocelyne Caballero, Head of Multilateral Affairs Section,
    Security and Defense Cooperation Department
    - Martin Julliard, Head of Transnational Threats Section,
    Strategic and Security Affairs Department
    - Alice Guitton, Head of the Democratic Governance Bureau,
    Global Economy and Development Strategies Department,
    Globalization, Development and Partnerships Directorate

    National Defence Secretary General
    - General Andre Lanata, Head of International Affairs
    Section, International Affairs, Strategic and Technologic
    Affairs Department

    PARIS 00001339 005 OF 005

    Ministry of Defence
    - Colonel Benoit Houssay, Military Advisor of the Minister
    - Colonel Jean-Jacques Toutous, Head of Africa Bureau,
    Joint Head-Quarters
    - Colonel Emmanuel Maurin, Head of Regional Affairs
    Section, Strategic Affairs Delegation
    - Pascal Teixeira, Director of Strategic Affairs
    - Guy Thomas, Strategic Affairs Direction

    Ministry of the Interior
    - Michel Duclos, Diplomatic Advisor
    - Emile Perez, Head of the Police International and Technical
    Cooperation Bureau.

    EUROPEAN UNION
    Presidency of the European Union
    - Carin Wall, Ambassador for Counter Terrorism, Swedish
    Foreign Affairs
    - Daniel Wolven, Swedish Embassy in Paris

    European Commission
    - Manuel Lopez-Blanco, Director for West and Central
    Africa, Directorate general for Development

    European Union Council
    - Gilles de Kerchove, Coordinator for Counter Terrorism

    Member States
    - Adam Wood, Director for Africa, Foreign and Commonwealth
    Office, United Kingdom
    - Corin Robertson, Joint Head, Counter Terrorism
    Department, Foreign and Commonwealth Office, United Kingdom
    - Hugo Shorter, Counsellor Global Issues, British Embassy in
    Paris
    - Nina Hermann, First Secretary, German Embassy in Paris.

    ¶16. (U) This cable was cleared by U.S. conference
    participants.
    RIVKIN

`