CO 63 2 3 4 Sl!ED U.S. Department of State Case No . MP-2015-07420 Doc No.

C06323481 Date: 06/27/2017

'oECLASSI FIED!
RE LEASE IN PARTJ·.
!1.4(8), 1.4(D) ---·-· --
SECRET PTQ7327

PAGE 01 AMMAN 09752 01 OF 03 171343Z

ACTION SS-00

INFO LOG-00 ADS-00 SAS-00 /OOOW

------------------1 CA492 171346Z /38
0 171336Z DEC 99
FM AMEMBASSY AMMAN
TO SECSTATE WASHDC IMMEDIATE 2347
INFO ARAB-ISRAELI COLLECTIVE IMMEDIATE

8 E e ~ E l' SECTION 01 OF 03 AMMAN 009752

[DECAPTIONE~
EXDIS

E.O. 12958: DECL: 12/17/19

TAGS: PREL, JO
SUBJECT: THE HONEYMOON'S OVER: ABDULLAH, JORDAN AND THE
CHALLENGES AHEAD

CLASSIFIED BY AMBASSADOR BURNS FOR REASON 1.5 (B,D)

1. (S) SUMMARY AND INTRODUCTION : FOR SOMEONE WHO THIS TIME LAST
YEAR HAD NO EXPECTATION THAT HE WOULD EVER BECOME KING, ABDULLAH
HAS SHOWN REMARKABLE SKILL IN MAKING STRUCTURAL ECONOMIC REFORMS
AND STRENGTHENING JORDAN'S REGIONAL POSITION . BUT ITS ALSO EASY
TO BE DECEIVED BY HIS EARLY SUCCESSES AND THE CONFIDENCE WITH
WHICH HE HAS HANDLED HIS INITIAL TRIPS TO WASHINGTON AND OTHER
CAPITALS. ABDULLAH FACES A NUMBER OF VERY DIFFICULT ECONOMIC AND
POLITICAL CHALLENGES. HIS RECENT COURAGEOUS STEPS AGAINST HAMAS
AND UBL HAVE ONLY ADDED TO THOSE PROBLEMS. ABDULLAH WILL NEED
CEO RET

PAGE 02 AMMAN 09752 01 OF 03 171343Z

OUR CONTINUING SUPPORT, ESPECIALLY AS HE SEEKS TO BRIDGE THE GAP
BETWEEN MAKING STRUCTURAL CHANGES AND SHOWING PEOPLE ECONOMIC
RESULTS THAT THEY CAN SEE AND FEEL. END SUMMARY AND
INTRODUCTION .

A VERY GOOD START

2. (S) ONE OF THE MOST LIKEABLE QUALITIES OF KING AB=D=U'-"'

L"':"
LA_,_H_,___ _ _--,
REMAINS HIS DOWN-TO-EARTH, SELF-EFFACING STYLE.[ .
1.4(8)
1.4(0)

3. (S) THE KING'S EFFORT AND SENSE OF FOCUS HAVE PAID OFF IN MANY
WAYS_ IT IS NO EXAGGERATION TO SAY THAT HE HAS ACCOMPLISHED MORE
Declassification Authority: Geoffrey W. Chapman, OCA, Senior Reviewer,
I,AIGISIIP-'S' - - - - - -

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C 0 6 3 2 3 4 81 ED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017

IN STRUCTURAL ECONOMIC REFORM IN THE LAST SIX MONTHS THAN JORDAN

ACHIEVED IN THE PREVIOUS DECADE. HE HAS PUSHED AND PRODDED THE
GOVERNMENT AND THE PARLIAMENT TO MAKE THE CHANGES REQUIRED FOR
ACCESSION TO THE WORLD TIDE ORGANIZATION, WHICH SHOULD BE
APPROVED BY THE WTO IN GENEVA TODAY. PRIVATIZATION OF MOST MAJOR
STATE-OWNED COMPANIES IS EITHER COMPLETED OR UNDERWAY.
SIGNIFICANT STEPS HAVE BEEN TAKEN TO PROTECT INTELLECTUAL
PROPERTY RIGHTS, AND THE KING IS SEEKING AGGRESSIVELY TO
CAPITALIZE ON THAT AND ATTRACT FOREIGN INVESTMENT, ESPECIALLY IN
THE INFORMATION TECHNOLOGY INDUSTRY. HE CONVENED A NATIONAL
SUMMIT OF LEADERS FROM THE PUBLIC AND PRIVATE SECTORS TWO WEEKS
SECRET

PAGE 03 AMMAN 09752 01 OF 03 171343Z

AGO TO BUILD A CONSENSUS AROUND HIS REFORM STRATEGY, AND HAS
ALREADY FORMED AN ECONOMIC COUNCIL TO ENSURE FOLLOW-UP. ABDULLAH
KNOWS THAT CREATING A SENSE OF ECONOMIC HOPE FOR JORDANIANS IS
HIS MOST IMPORTANT CHALLENGE; UNLIKE HIS FATHER, WHOSE ENTHUSIASM
FOR ECONOMIC ISSUES WAS ALWAYS UNDER CONTROL, ABDULLAH IS
PREPARED TO ROLL UP HIS SLEEVES AND HOLD HIS MINISTERS TO
TIMETABLES AND ACTION PLANS (A NOVEL EXPERIENCE FOR MOST OF
THEM).

4. (S) WITH CONSIDERABLE HELP FROM ROYAL COURT CHIEF KABARITI AND
GID DIRECTOR BATTIKHI, THE KING HAS ALSO SHOWN A LOT OF DEXTERITY
IN STRENGTHENING JORDAN'S REGIONAL POSITION. RELATIONS WITH THE
GCC STATES, UNBURDENED BY THE PERSONAL ANIMUS THAT MANY GULF ARAB
LEADERS FELT FOR Kl NG HUSSEIN AFTER THE GULF WAR, ARE MUCH
IMPROVED. JORDAN HAS A MUCH HEALTHIER RELATIONSHIP WITH SYRIA
THAN IT DID A YEAR AGO, AND HAS CONTRIBUTED SIGNIFICANTLY TO THE
RESUMPTION OF SYRIAN-ISRAELI PEACE TALKS. SELF-CONSCIOUS OF HIS
POTENTIAL ROLE AS THE FIRST IN A SERIES OF NEW LEADERS IN A
REGION IN THE MIDST OF A PROFOUND GENERATIONAL TRANSITION,
ABDULLAH CONTINUES TO WORK STEADILY TO CEMENT HIS TIES TO HIS
YOUNGER COUNTERPARTS.

BUT NOW THE HONEYMOON IS OVER

5. (S) THE KING IS WELL-AWARE, HOWEVER. THAT HIS GREATEST

CHALLENGES LIE AHEAD. "I KNOW," HE TOLD ME RECENTLY, "THAT THE
NEXT YEAR IS GOING TO BE A LOT HARDER THAN THIS PAST YEAR."
ABDULLAH'S BIGGEST DILEMMA, AROUND WHICH MOST OF HIS OTHER

SECRET

PAGE 04 AMMAN 09752 01 OF 03 171343Z

TROUBLES FALL, IS HOW TO BRIDGE THE INEVITABLE GAP BETWEEN MAKING
STRUCTURAL ECONOMIC CHANGES AND SHOWING PEOPLE RESULTS THAT THEY
CAN SEE AND FEEL. AFTER FOUR YEARS OF LITTLE OR NO GROWTH, THE
ECONOMY IS REGISTERING SIGNS OF ONLY ONE OR TWO PERCENT GOP
GROWTH THIS YEAR-- WELL BEHIND THE 3.5 PERCENT RATE OF
POPULATION GROWTH. A THIRD CONSECUTIVE YEAR OF DROUGHT IS
COMPOUNDING ECONOMIC PROBLEMS. THE WIDENING AND INCREASINGLY
CONSPICUOUS GAP BETWEEN RICH AND POOR IS A MORE AND MORE

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C 0 6 3 2 3 4 81 ED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017

CORROSIVE FORCE SOCIALLY AND POLITICALLY. THE KING AND QUEEN

HAVE BOTH BEEN ENERGETIC IN TRYING TO DEMONSTRATE THEIR EMPATHY
FOR THE POOR, AND THE KING'S MUCH-PUBLICIZED FORAYS IN DISGUISE
HAVE HELPED SHARPEN HIS POPULIST IMAGE. BUT THAT ACT IS AREADY
WEARING THIN WITH PEOPLE WHO NOW WANT PRACTICAL RESULTS.

6. (S) CORRUPTION ALSO POSES A CHALLENGE FOR ABDULLAH. HIS

FATHER GENERALLY TURNED A BLIND EYE TO EFFORTS BY THOSE AROUND
HIM TO ENRICH THEMSELVES AT PUBLIC EXPENSE, SO LONG AS IT WASN'T
TOO BLATANT. ABDULLAH HAS TALKED A LOT ABOUT THE NEED TO FIGHT
CORRUPTION,! ..... . 1.4(0)
SECRET

SECRET PTQ7328

PAGE 01 AMMAN 09752 02 OF 03 171343Z

ACTION SS-00

INFO LOG-00 ADS-00 SAS-00 /OOOW

------------------1 CA495 171346Z /38
0 171336Z DEC 99
FM AMEMBASSY AMMAN
TO SECSTATE WASHDC IMMEDIATE 2348
INFO ARAB-ISRAELI COLLECTIVE IMMEDIATE

S E C R E T SECTION 02 OF 03 AMMAN 009752

EXDIS

E.O. 12958: DECL: 12/17/19

TAGS: PREL, JO
SUBJECT: THE HONEYMOON'S OVER: ABDULLAH, JORDAN AND THE
CHALLENGES AHEAD

1.4(0)

L_ SECRET

PAGE 02 AMMAN 09752 02 OF 03 171343Z

7. (S) THE CENTRALIZATION OF POWER BENEATH ABDULLAH AND THE
NARROWING OF HIS CHANNELS OF ADVICE AND INFORMATION IS ALSO
BECOMING A BIGGER CONCERN, AS I HAVE ARGUED BEFORE. IN THE FIRST
FEW MONTHS OF HIS REIGN, ABDULLAH RELIED ON A TRIUMVIRATE OF
ADVISORS-- PRIME MINISTER RAWABDEH, ROYAL COURT CHIEF KABARITI
AND GID DIRECTOR BATIIKHI. THAT CIRCLE HAS NOW BEEN REDUCED
ESSENTIALLY TO ONE PERSON, BATTIKHI. KABARITI CONFIRMED TO ME

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C0632348l'ED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017

AGAIN EARLIER THIS WEEK THA..TJ:!El.S_LE~G-EAH! EXI...YEAB...I.........._----,

RETURN TO PRIVATE BANKING. I
1.4(0)
[ _ _ _/ KABARITI'S PROGRESSIVE INSTINCTS AND STRATEG IC
r iLL BE MISSED BY ABDULLAH . I
1.4(0)

_ _ _ _ _ _ _ _ _ _ TH~E~K7.1N
~G~A7
P~PR
~E~C~I~
AT
=E~S~R
~A~W
~A~B~D~E~H~'S~T
~O~U~G
~H~N~
Es·s
AND LOYALTY; WATCHING TELEVISION COVERAGE OF RAWABDEH'S DEFENSE
BEFORE PARLIAMENT OF THE EXPULSION OF HAMAS LEADERS, BOTH THE
KING AND QUEEN RANIA COMMENTED THAT THE PRIME MINISTER "NEVER
ONCE TRIED TO SHIFT RESPONSIBILITY TO ANYONE ELSE." THE KING IS
INCLINED TO KEEP RAWABDEH ON FOR AT LEAST ANOTHER SIX MONTHS OR
r SQ. AND_WlLLJ..ET HIM RESHUFFLU!:iE_C G E D N,
1.4(0)
8. S).

1.4(0)

j_,_(§)
1.4(0)

10. (S) AGAINST THIS BACKDROP, THE KING'S RECENT ACTIONS AGAINST
HAMAS AND USAMA BIN LADEN TAKE ON ADDED RISKS. THE MAMAS AFFAIR
HAS REOPENED OLD WOUNDS BETWEEN EAST BANKERS AND JORDANIANS OF
PALESTINIAN ORIGIN, AND THE RAWABDEH GOVERNMENT'S CLUMSINESS AND
PUBLIC REFERENCES TO AVOIDING A REPEAT OF THE 1970-71 CIVIL WAR

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C0632348l 'ED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017

HAVE P9URE:A= THEM ~ I 1.4(8)

1.4(0)

_ __;THE MORE RECENT MEASURES AGAINST UBL HAVE MADE THE

WATERS EVEN ROUGHER. THE HAMAS EXPULSIONS HAVE GIVEN RISE TO
GRUMBLING AMONG JORDANIANS THAT THE RAWABDEH GOVERNMENT IS
PURSUING AN ANTI-PALESTINIAN, ANTI-ISLAMIC POLICY, AND SOME OF
THAT IS BEGINNING TO RUB OFF ON THE KING.

WHAT WE CAN DO TO HELP

11. (S) PRODUCING CONCRETE ECONOMIC RESULTS IS, IN THE KING'S

VIEW, THE BEST WAY TO ADDRESS RUMBLINGS OF DISCONTENT, PREEMPT
OPPORTUNITIES FOR ISLAMIST OPPOSITIONISTS, AND PROVIDE POLITICAL
SPACE FOR DEALING WITH THE PROFOUND, LONGER-TERM CHALLENGE OF
FULLY INTEGRATING JORDANIANS OF PALESTINIAN ORIGIN INTO A
POLITICAL SYSTEM FROM WHICH THEY HAVE BEEN LARGELY EXCLUDED. IT
IS VERY MUCH IN OUR INTERESTS TO HELP HIM DO THAT, BECAUSE A
STABLE JORDAN IS CRITICAL BOTH TO THE SUCCESS OF A NEWLY-
ENERGIZED PEACE PROCESS, AND TO THE MODERATE EVOLUTION OF THE

SECRET

SECRET PTQ7329

PAGE 01 AMMAN 09752 03 OF 03 1713432

ACTION SS-00

INFO LOG-00 ADS-00 SAS-00 /OOOW

------------------1 CA498 1713462 /38
0 1713362 DEC 99
FM AMEMBASSY AMMAN
TO SECSTATE WASHDC IMMEDIATE 2349
INFO ARAB-ISRAELI COLLECTIVE IMMEDIATE

S E C R E T SECTION 03 OF 03 AMMAN 009752

EXDIS

E.O. 12958: DECL: 12/17/19

TAGS: PREL, JO
SUBJECT: THE HONEYMOON'S OVER: ABDULLAH, JORDAN AND THE
CHALLENGES AHEAD

BROADER LEADERSHIP AND GENERATIONAL CHANGES UNDERWAY IN THE

REGION. WE ALREADY HAVE IN PLACE A GENEROUS AND WELL-FOCUSED
PROGRAM OF ECONOMIC AND MILITARY ASSISTANCE, AIMED AT BUILDING
THE FOUNDATION FOR LONG-TERM GROWTH AND SECURITY FOR JORDAN. IN
THE SHORTER-TERM, FOLLOWING ARE SOME OTHER STEPS WHICH WOULD HELP
SIGNIFICANTLY TO BOLSTER ABDULLAH:

-- PURSUE A BILATERAL FREE TRADE AGREEMENT: I RECOGNIZE THE

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C 0 6 3 2 3 4 811ED U.S. Department of State Case No. MP-2015-07 420 Doc No. C06323481 Date: 06/27/2017

COMPLEXITIES OF THIS ISSUE, BUT URGE STRONGLY THAT WE GIVE THE

KING'S REQUEST VERY SERIOUS CONSIDERATION. HE SEES IT AS A WAY
TO SHOW JORDANIANS THAT HIS REFORMS ARE PAYING OFF; TO LOCK IN
SECRET

PAGE 02 AMMAN 09752 03 OF 03 171343Z

THE RESTRUCTURING OF THE JORDANIAN ECONOMY AND FORCE THE
JORDANIAN PRIVATE SECTOR TO BECOME MORE COMPETITIVE; TO HELP
COMPENSATE FOR SOME OF THE POLITICAL RISKS HE IS TAKING,
ESPECIALLY ON COUNTER-TERRORISM; AND TO CREATE A LEVEL PLAYING
FIELD WITH ISRAEL AND THE PALESTINIANS ON TRADE WITH THE U.S.
(GIVEN THE FREE TRADE ARRANGEMENTS WHICH BOTH OF THEM ALREADY
HAVE WITH US). THERE IS A POWERFUL PEACE PROCESS AND BROADER
POLITICAL ARGUMENT FOR MOVING AHEAD ON A BILATERAL FTA WITH
JORDAN, AND THE KING AND HIS GOVERNMENT ARE PREPARED TO TAKE THE
FURTHER MEASURES ON TRADE ISSUES, INCLUDING LABOR AND THE
ENVIRONMENT, THAT WOULD BE REQUIRED. IN MY VIEW, THIS WOULD BE
THE MOST SIGNIFICANT SINGLE STEP WE COULD TAKE TO HELP THE KING
OVER THE NEXT YEAR.

-- PRESS AHEAD ON OTHER ECONOMIC FRONTS: WE SHOULD ACCELERATE

416(B) WHEAT SHIPMENTS, ESPECIALLY IN VIEW OF THE ONGOING
DROUGHT. WE ARE LOOKING URGENTLY AT WAYS TO HELP JORDAN MAKE .
BETTER USE OF EXISTING WATER RESOURCES FOR THIS COMING SUMMER.
WE NEED TO URGE RAPID EXPANSION OF QUALIFYING INDUSTRIAL ZONES IN
JORDAN, W
HICH HAVE PROVEN TO BE RELIABLE CREATORS OF JOBS AND
EXPORTS. AND WE WILL CONTINUE TO WORK HARD TO HELP THE
JORDANIANS ATTRACT MORE U.S. INVESTMENT, ESPECIALLY IN THE
INFORMATION TECHNOLOGY SECTOR.

-- CONTINUE STRONG SUPPORT FOR JUDICIAL REFORM: WE HAVE

LAUNCHED SEVERAL PROGRAMS IN THIS AREA, WHICH THE KING SEES AS AN
IMPORTANT PART OF ANY LONGER-TERM EFFORT TO ATTACK CORRUPTION.

-- STAY IN CLOSE TOUCH ON PEACE PROCESS ISSUES: PALESTINIAN-

ISRAELI PERMANENT STATUS TALKS HAVE PROFOUND IMPORTANCE FOR
SECRET

PAGE 03 AMMAN 09752 03 OF 03 171343Z

JORDAN'S FUTURE, AND WE NEED TO BEAR IN MIND THE VALUE OF
CONSULTATION WITH THE JORDANIANS. THE SAME IS TRUE WITH REGARD
TO THE SYRIAN TRACK, ON WHICH THE KING CAN CONTINUE TO PLAY A
HELPFUL ROLE.

12. (S) A FINAL NOTE: THE KING HAS MUCH TO BE PROUD OF IN HIS
FIRST YEAR ON THE THRONE, BUT A VERY TOUGH ROAD AHEAD OF HIM. HE
HAS TAKEN SOME VERY BIG RISKS ON HAMAS AND UBL, AND THAT
REINFORCES HIS NEED TO DEMONSTRATE ECONOMIC RESULTS. WE
SHOULDN'T TAKE FOR GRANTED EITHER HIS ABILITY TO KEEP UP THE PACE
OF ECONOMIC REFORM OR TO KEEP TAKING HELPFUL STEPS ON COUNTER-
TERRORISM AND THE PEACE PROCESS WITHOUT MORE TO SHOW
ECONOMICALLY.

BURNS

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017
C06323481 1ED U.S. DepartmentofState CaseNo. MP-2015-07420 DocNo.C06323481 Date: 06/27/2017

SECRET

<< END OF DOCUMENT >>

UNCLASSIFIED U.S. Department of State Case No. MP-2015-07420 Doc No. C06323481 Date: 06/27/2017