Africa Press Guidance December 16, 2003, cable no. State 342843 , Office of the Secretary of State, State Department
National Security Archive
A 2003 State Department cable reveals how Washington simultaneously managed the fallout from Ethiopia’s Gambella violence and the emerging Darfur crisis, shaping both consular alerts and humanitarian policy.
Source: Africa Press Guidance December 16, 2003, cable no. State 342843 , Office of the Secretary of State, State Department Date: Dec 16, 2003 Archive: Freedom of Information Act request by the National Security Archive
Editorial Analysis
Original analysis by the DriftSeas editorial desk. The complete primary-source document, transcribed from the National Security Archive scan, appears in full below.
Press Guidance as a Diplomatic Tool in a Turbulent Horn of Africa
The State Department cable dated 16 December 2003 is a classic example of “press guidance” – a low‑key, internally‑circulated memo that shapes how U.S. embassies and the media frame volatile events. Drafted by the Africa Press Desk (AF/PD) and approved by senior officials, the document was forwarded to every African post, the U.S. missions in London, Paris, Rome, and the White House. Its timing is crucial: it arrives just weeks after the United Nations declared the Darfur crisis the "worst humanitarian disaster" of the year and amid fresh fighting in Ethiopia’s Gambella region, where three American citizens were initially reported dead.
The memo does two things simultaneously. First, it confirms the reality of the Gambella violence – a clash between Ethiopian soldiers and Anuak protesters that had killed dozens of locals and, according to early rumors, three U.S. nationals. By stating that the Americans are “alive,” the cable closes a dangerous information vacuum that could have spurred panic or diplomatic friction. Second, it reiterates a broader U.S. policy line on Darfur, urging all parties to respect UN‑mediated cease‑fire efforts and to allow humanitarian aid.
The Broader Conflict Landscape
Gambella sits on Ethiopia’s volatile border with Sudan and South Sudan, a region where ethnic tensions, cross‑border insurgencies, and refugee flows intersect. In 2002, the Anuak‑Dinka clash in the same area resulted in 41 deaths, underscoring a pattern of recurring violence that the State Department’s own Consular Information Sheet warned about. The cable’s background section links the December incident to that earlier flare‑up, emphasizing that the unrest is “not connected to the Ethiopia‑Eritrea border resolution,” a nod to the 2000 Algiers Agreement that had temporarily eased tensions between Addis Ababa and Asmara.
Across the border, Darfur’s conflict was entering its most lethal phase. The document’s Darfur section outlines the United States’ diplomatic posture: a call for a humanitarian cease‑fire, condemnation of militia attacks on civilians, and a reminder that the fighting is unrelated to the peace talks between the Sudanese government and the SPLM/A in Kenya. By separating the two crises, the cable signals that Washington does not view them as a single, coordinated insurgency, but rather as distinct humanitarian emergencies requiring separate diplomatic tracks.
Actors and Their Signals
The memo’s sign‑off lists a “Review Authority: Theodore Sellin,” a senior State Department official whose name appears on many classified and unclassified regional assessments. His involvement suggests that the cable passed a higher‑level vetting, ensuring consistency with the administration’s public statements – notably the press release by Spokesman Richard Boucher on the same day. The inclusion of the White House and the U.S. Mission to the UN in New York as priority recipients underscores the political sensitivity of both Gambella and Darfur; any misstep could have reverberated in Washington’s congressional oversight of foreign aid.
The language used – “reports of violence… have proven to be correct” and “the United States is deeply concerned” – follows the diplomatic formula of acknowledging facts while projecting calm authority. The cable also instructs the Addis Ababa embassy to issue a “WARDEN MESSAGE” warning U.S. citizens against travel, a routine but essential part of consular risk management. The mention of a “consular and security team” being dispatched signals that the State Department was prepared to protect its nationals on the ground, a move that would later be cited in congressional hearings on embassy security.
Why the Cable Still Matters
First, it provides a rare glimpse into how the State Department coordinated its messaging across multiple crises in real time. The document shows that even in 2003, Washington treated Darfur and Gambella as parallel emergencies, each demanding its own diplomatic language, aid packages, and security protocols. Second, the cable reveals the early stages of what would become a protracted U.S. engagement in Darfur, culminating in the 2004 Darfur Peace Agreement and later congressional resolutions designating the conflict as genocide.
Finally, the memo illustrates the interplay between on‑the‑ground intelligence (reports of Anuak attacks, refugee camp locations) and high‑level policy (calls for cease‑fires, humanitarian aid). For scholars of U.S. foreign policy, the cable is a concrete example of how “press guidance” operates as a bridge between raw incident reports and the polished statements that reach the public. Its release through the Freedom of Information Act allows historians to trace the evolution of U.S. responses to African conflicts, reminding us that today’s diplomatic pronouncements often rest on a foundation of terse, internally‑circulated cables like this one.
UNCLASSIFIED E3 ORIGIN AF-00
INFO LOG-00 NP-00 AID-00 AMAD-00 A-00 CIAE-00 INL-00 USNW-00 DODE-00 DOTE-00 DS-00 EAP-00 EB-00 EUR-00 FAAE-00 UTED-00 VC-00 H-00 TEDE-00 INR-00 IO-00 JUSE-00 L-00 VCE-00 DCP-01 NSAE-00 OIC-02 OIG-00 EPAU-00 PA-00 IRM-00 SSO-00 SS-00 TEST-00 USIE-00 R-00 EPAE-00 IIP-00 DSCC-00 PRM-00 G-00 SAS-00 /003R
342843 SOURCE: CBLEXCLS.007716 DRAFTED BY: AF/PD:AMITCHELL -- 12/16/2003 202-647-6724 APPROVED BY: AF/PD:LWKOENGETER ------------------D10D93 161931Z /38 P 161915Z DEC 03 FM SECSTATE WASHDC TO ALL AFRICAN DIPLOMATIC POSTS PRIORITY AMEMBASSY LONDON PRIORITY AMEMBASSY PARIS PRIORITY AMEMBASSY ROME PRIORITY WHITE HOUSE WASHDC PRIORITY 0000 USMISSION USUN NEW YORK PRIORITY
UNCLAS STATE 342843
RELEASED IN FULL
E.O. 12958: N/A TAGS: OIIP, OPRC, PREL, US, XA SUBJECT: AFRICA PRESS GUIDANCE DECEMBER 16, 2003
AF PRESS GUIDANCE
ETHIOPIA: REPORTS OF KILLINGS IN GAMBELLA REGION
TUESDAY, DECEMBER 16, 2003
KEY POINTS
REPORTS OF VIOLENCE IN GAMBELLA REGION IN ETHIOPIA HAVE PROVEN TO BE CORRECT.
WE HAD HEARD REPORTS THAT THREE AMERICAN CITIZENS WERE DEAD OR WOUNDED. THESE INDIVIDUALS HAVE BEEN LOCATED AND ARE ALIVE.
THE EMBASSY IS DISPATCHING A CONSULAR AND SECURITY TEAM TO THE REGION TO ASCERTAIN THE WELFARE OF ALL U.S. CITIZENS IN THE AREA.
UNITED STATES DEPARTMENT OF STATE REVIEW AUTHORITY: THEODORE SELLIN DATE/CASE ID: 13 NOV 2007 200701056 UNCLASSIFIED
UNCLASSIFIED THE EMBASSY IN ADDIS ABABA DISSEMINATED WARDEN MESSAGE TO THE LOCAL AMERICAN CITIZEN COMMUNITY ON DECEMBER 15TH, NOTING THE OCCURRENCE OF VIOLENCE IN THE GAMBELLA REGION AND ADVISED U.S. CITIZENS TO DEFER ALL TRAVEL TO THAT REGION. THE WARDEN MESSAGE ALSO NOTED THAT THE SECURITY SITUATION IS UNPREDICTABLE. THE EMBASSY WILL CONTINUE TO KEEP AMERICAN CITIZENS APPRISED OF DEVELOPMENTS RELATING TO THEIR SAFETY AND SECURITY THROUGH THE WARDEN SYSTEM.
THE CURRENT CONSULAR INFORMATION SHEET FOR ETHIOPIA OUTLINES THAT " INTERETHNIC CLASHES AND POLITICAL VIOLENCE ARE PREVALENT IN THE WESTERN-MOST TIP OF THE GAMBELLA REGION IN WEST ETHIOPIA. TRAVEL TO THIS REGION IS NOT RECOMMENDED. VISITORS SHOULD SEEK CURRENT GUIDANCE FROM THE U.S. EMBASSY IS ADDIS ABABA OR LOCAL OFFICIALS BEFORE TRAVELING TO OTHER AREAS ALONG THE ETHIOPIA/SUDAN BORDER.
BACKGROUND:
THE STATE DEPARTMENT RECEIVED REPORTS OF VIOLENCE OCCURRING DURING THE WEEKEND IN GAMBELLA, A REMOTE SOUTHERN REGION OF ETHIOPIA. A NUMBER OF ETHIOPIANS FROM THE ETHNIC ANUAK GROUP HAVE BEEN REPORTED KILLED, POSSIBLY BY ETHIOPIAN SOLDIERS IN RESPONSE TO AN ATTACK ON A CONVOY BY A GROUP OF ANUAKS. THREE AMERICANS WERE REPORTEDLY AMONG THOSE KILLED, BUT SUBSEQUENT INFORMATION FROM POLICE AUTHORITIES INDICATES THAT THEY ARE SAFE.
THE GAMBELLA REGION HOLDS FIVE LARGE UNHCR REFUGEE CAMPS AND HAS A HISTORY OF VIOLENCE BETWEEN ETHNIC GROUPS. IN LATE 2002, 41 PEOPLE, MAINLY DINKA REFUGEES FROM SUDAN, WERE REPORTED KILLED WHEN ANUAKS OPENED FIRE. THE VIOLENCE DOES NOT APPEAR TO HAVE ANY CONNECTION TO RESOLUTION OF THE ETHIOPIA-ERITREA BORDER.
AF PRESS GUIDANCE
SUDAN: DARFUR SITUATION
DECEMBER 16, 2003
KEY POINTS
THE UNITED STATES IS CONCERNED WITH THE WORSENING
UNCLASSIFIED
UNCLASSIFIED HUMANITARIAN SITUATION IN SUDAN'S WESTERN PROVINCE OF DARFUR (DAR FOUR).
THE UNITED STATES CALLS ON ALL WARRING PARTIES TO HEED THE EFFORTS OF THE UNITED NATIONS AND GOVERNMENT OF CHAD TO FACILITATE A HUMANITARIAN CEASE-FIRE, END THE FIGHTING, AND PERMIT HUMANITARIAN RELIEF TO REACH AFFECTED CIVILIAN POPULATIONS.
THE UNITED STATES ALSO CALLS ON THE GOVERNMENT OF SUDAN TO CONTROL THE MILITIA GROUPS IT HAS ARMED, AVOID ATTACKS ON CIVILIANS, AND GRANT TRAVEL PERMITS TO HUMANITARIAN WORKERS.
THE UNITED STATES URGES ALL PARTIES TO SEEK PEACEFUL MEANS TO RESOLVE THEIR DIFFERENCES.
THE FIGHTING IN DARFUR IS NOT LINKED TO THE ONGOING PEACE TALKS BETWEEN THE GOVERNMENT OF SUDAN AND THE SUDAN PEOPLE'S LIBERATION MOVEMENT/ARMY IN KENYA.
BACKGROUND:
THE DISPUTES IN DARFUR STEM FROM OVER SEVERAL DECADES OF POPULAR RESENTMENT CAUSED BY CONFLICT OVER RESOURCES, PARTICULARLY WATER AND GRAZING FOR LIVESTOCK. THIS MOST RECENT ITERATION OF FIGHTING BEGAN EARLY IN 2003, WHEN A REBEL MOVEMENT CALLING ITSELF THE SUDAN LIBERATION MOVEMENT/ARMY (NOT TO BE CONFUSED WITH THE SUDAN PEOPLE'S LIBERATION MOVEMENT/ARMY) ATTACKED THE CAPITAL OF NORTH DARFUR STATE, EL-FASHIR, DESTROYING GOVERNMENT AIRCRAFT AND KILLING DOZENS OF GOVERNMENT SOLDIERS. THE GOVERNMENT AND THE SLM/A SIGNED A CEASE-FIRE AGREEMENT IN SEPTEMBER, WHICH ALLOWED HUMANITARIAN DELIVERIES TO SOME AREAS. HOWEVER, NOT ALL ARMED MILITIA GROUPS IN DARFUR (NOTABLY THE RECENTLY EMERGED JUSTICE AND EQUALITY MOVEMENT) ARE PARTY TO THIS AGREEMENT, AND INSTABILITY REMAINS. USAID HAS PROVIDED ABOUT 5,000 TONS OF FOOD AID AND ABOUT $3 MILLION IN EMERGENCY AID THIS YEAR. ON DECEMBER 5, THE U.N. EMERGENCY RELIEF COORDINATOR COMMENTED THAT THE HUMANITARIAN SITUATION IN DARFUR IS QUICKLY BECOMING THE "WORST IN THE WO RLD."
THE SUDAN PEOPLE'S LIBERATION MOVEMENT/ARMY (SPLM/A) HAVE BEEN ENGAGED WITH THE GOVERNMENT OF SUDAN IN PEACE TALKS IN MACHAKOS, KENYA, SINCE JUNE 2002. KENYAN GENERAL (RETIRED) LAZARO SUMBEIYWO IS MEDIATING THE TALKS UNDER THE AUSPICES OF THE
UNCLASSIFIED
UNCLASSIFIED
INTERGOVERNMENTAL AUTHORITY ON DEVELOPMENT (IGAD).
IN JULY 2002, BOTH SIDES RESOLVED THE ISSUES OF
STATE AND RELIGION AND THE RIGHT OF THE SOUTH TO
SELF-DETERMINATION BY SIGNING THE HISTORIC MACHAKOS
PROTOCOL. ON SEPTEMBER 25, 2003, BOTH SIDES SIGNED
AN AGREEMENT ON SECURITY ARRANGEMENTS. THEY ALSO
COMMITTED TO THE SECRETARY TO CONCLUDE A FINAL
COMPREHENSIVE AGREEMENT BY THE END OF 2003.
SUDANESE VICE PRESIDENT TAHA AND SPLM/A CHAIRMAN
GARANG ARE PRESENTLY NEGOTIATING IN NAIVASHA,
KENYA. THIS ROUND IS EXPECTED TO END ON
DECEMBER 19.
U.S. DEPARTMENT OF STATE
OFFICE OF THE SPOKESMAN
FOR IMMEDIATE RELEASE DECEMBER 16, 2003
2003/
STATEMENT BY RICHARD BOUCHER, SPOKESMAN
SUDAN: SITUATION IN DARFUR
THE UNITED STATES IS DEEPLY CONCERNED WITH THE
RAPIDLY DETERIORATING HUMANITARIAN AND SECURITY
SITUATION IN THE DARFUR REGION OF SUDAN.
HOSTILITIES IN DARFUR BETWEEN INDIGENOUS OPPOSITION
GROUPS AND THE SUDANESE ARMED FORCES AND ITS
ALLIED MILITIAS HAVE CAUSED NON-GOVERNMENTAL
ORGANIZATIONS AND THE U.N. TO CURTAIL NEEDED
HUMANITARIAN ASSISTANCE PROGRAMS. THE UNITED
STATES DEPLORES THE PARTIES' LACK OF ENGAGEMENT TO
END HOSTILITIES IN DARFUR, DESPITE EFFORTS BY THE
UNITED NATIONS AND THE GOVERNMENT OF CHAD TO
FACILITATE TALKS AND A HUMANITARIAN CEASE-FIRE.
REPORTS INDICATE MORE THAN 600,000 CIVILIANS
HAVE BEEN INTERNALLY DISPLACED, 75,000 REFUGEES
HAVE FLED TO NEIGHBORING CHAD, AND AS MANY AS
3,000 UNARMED CIVILIANS HAVE BEEN KILLED. MANY
MORE HAVE BEEN PREVENTED FROM PLANTING OR
HARVESTING CROPS. HUMANITARIAN ACCESS CONTINUES
TO BE INHIBITED BY ONGOING INSECURITY AND THE
GOVERNMENT OF SUDAN'S DENIAL OF TRAVEL PERMITS TO
HUMANITARIAN WORKERS.
THE UNITED STATES CALLS ON ALL PARTIES TO AGREE
TO AN OBSERVABLE HUMANITARIAN CEASE-FIRE AND ENGAGE
IN SUBSTANTIVE DIALOGUE ON ENDING THE HOSTILITIES
UNCLASSIFIED
UNCLASSIFIED IN DARFUR. FURTHER, THE UNITED STATES CALLS ON THE GOVERNMENT OF SUDAN TO TAKE CONCRETE STEPS TO CONTROL THE MILITIA GROUPS IT HAS ARMED, TO AVOID ATTACKS AGAINST CIVILIANS AND TO FULLY FACILITATE THE EFFORTS OF THE INTERNATIONAL HUMANITARIAN COMMUNITY TO RESPOND TO CIVILIAN NEEDS.
THE FIGHTING IN DARFUR IS NOT LINKED TO THE ONGOING PEACE TALKS BETWEEN THE GOVERNMENT OF SUDAN AND THE SUDAN PEOPLE'S LIBERATION MOVEMENT/ARMY IN KENYA.
POWELL
NNNN
UNCLASSIFIED
NATIONAL SECURITY ARCHIVE
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