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Burundi: Democracy and Peace at Risk

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Burundi: Democracy and Peace at Risk BURUNDI: DEMOCRACY AND PEACE AT RISK Africa Report N°120 – 30 November 2006 TABLE OF CONTENTS EXECUTIVE SUMMARY AND RECOMMENDATIONS................................................. i I. INTRODUCTION: ONE YEAR OF DEMOCRACY................................................. 1 II. THE COUP PLOT.......................................................................................................... 2 A. THE ARREST OF THE SUSPECTS .............................................................................................2 B. THE SPECTRE OF 1993 ..........................................................................................................2 C. THE CHANGED SECURITY SITUATION ...................................................................................3 III. ABUSES OF POWER .................................................................................................... 4 A. HUMAN RIGHTS VIOLATIONS................................................................................................4 B. CORRUPTION AND PATRONAGE .............................................................................................6 IV. SILENCING CRITICS .................................................................................................. 7 A. CONTROLLING STATE INSTITUTIONS .....................................................................................7 B. THE OPPOSITION’S WEAKNESS .............................................................................................8 C. CLAMPING DOWN ON PRESS AND CIVIL SOCIETY..................................................................9 1. The press....................................................................................................................9 2. Civil society .............................................................................................................10 D. DIVISIONS WITHIN THE CNDD-FDD?.................................................................................10 E. STRAINED INTERNATIONAL RELATIONS ................................................................................11 V. CONCLUSION ............................................................................................................. 12 APPENDICES A. MAP OF BURUNDI ...............................................................................................................13 B. ELECTION STATISTICS AND KEY PERSONALITIES ................................................................14 C. ABOUT THE INTERNATIONAL CRISIS GROUP .......................................................................18 D. CRISIS GROUP REPORTS AND BRIEFINGS ON AFRICA...........................................................19 E. CRISIS GROUP BOARD OF TRUSTEES ...................................................................................21 Africa Report N°120 30 November 2006 BURUNDI: DEMOCRACY AND PEACE AT RISK EXECUTIVE SUMMARY AND RECOMMENDATIONS Since the new, democratically elected government came to establish a dialogue with journalists and civil society, to power in September 2005, the first since 1993, there its prospects of reducing tensions are poor as long as has been marked deterioration in Burundi’s political several NGO leaders remain in custody on tenuous climate. Led by the National Council for the Defense of grounds. Democracy-Forces for the Defense of Democracy (CNDD-FDD), the government has arrested critics, There are few signs of violent opposition as yet. moved to muzzle the press, committed human rights Integration of the security forces has weakened the abuses and tightened its control over the economy. former Tutsi military establishment, which is reluctant Unless it reverses this authoritarian course, it risks to act for fear of a backlash against its ethnic triggering violent unrest and losing the gains of the community. However, the government’s recent actions peace process. The international community needs to have damaged the country’s political fabric and could monitor the government’s performance, encouraging it foster unrest in the near future. Its behaviour could also to adopt a more inclusive approach and remain engaged hamper implementation of the ceasefire agreement even after UN troops depart in December 2006. signed with the FNL rebels on 7 September 2006. The arrest of prominent opposition politicians in July The growing authoritarianism is disturbing after such a 2006, accompanied by questionable claims that a coup promising beginning to the peace process. The government was being planned, has been the most disturbing came to power with considerable domestic and development. Some of those arrested were tortured into international goodwill, which it will lose if it does not signing confessions. But this was only one, albeit high- take steps to promote accountable, inclusive and profile, example of the deterioration in human rights and democratic governance. The primary responsibility is political pluralism. Soon after its inauguration, the the government’s, but the international community, government launched military operations against the last particularly donors and the UN’s new Peacebuilding remaining rebel group, the Palipehutu-FNL, in the Commission, have important support roles to play in this course of which it imprisoned, tortured and even respect. executed many suspected combatants as well as civilians accused of colluding with the rebels, often with the National Intelligence Service (SNR) behind the abuses. RECOMMENDATIONS The ruling party is also actively interfering in public To the Government of the Republic of Burundi: procurement, fuelling suspicions that it is using state offices to fill its coffers. Sweeping personnel changes in 1. Establish a commission of inquiry to investigate lucrative state companies have caused resentment the alleged coup plot and the treatment of those amongst businessmen, who may be tempted to respond detained in relation to it and appoint an eminent by financing political dissidents. The European Union lawyer or judge acceptable to the main and the World Bank have both expressed concern at opposition parties to head the inquiry. increasing government corruption, and the latter has 2. Revise the powers of the National Intelligence suspended part of its budgetary aid pending an audit. Service (SNR) so that: The authoritarian drift has been exacerbated by the (a) its officers no longer have the right to weakness of institutions meant to provide a check on the arrest suspects without warrants or detain executive. Political opposition is divided, and the them in its facilities; and CNDD-FDD controls both parliament and the courts. It (b) it answers to the Ministry of Interior has clamped down on critics in the press and civil rather than to the president. society. Although the government has recently attempted Burundi: Democracy and Peace at Risk Crisis Group Africa Report N°120, 30 November 2006 Page ii 3. Tackle corruption by: To the Donor Community: (a) supporting an independent audit through 13. Insist that the government provide speedy, fair the parliament of state contracts entered and public trials to the suspects detained in into during the past year; connection with the alleged coup plot and encourage (b) renegotiating contracts that were made in it to release them from pre-trial detention. violation of the law on public procurement; 14. Offer to train and provide non-lethal assistance to and the National Intelligence Service and to place (c) prosecuting corrupt officials. international advisers within this service to help curb abuse. 4. Hold monthly meetings between the president and the main political parties to discuss grievances 15. Condition further budgetary support on and promote dialogue. improvements in governance and human rights, in particular: 5. Improve communication and dialogue with press and civil society through: (a) an independent audit of state contracts entered into during the past year; and (a) weekly press briefings as well as question and answer sessions; and (b) improvements in the behaviour of the security services. (b) monthly meetings between the president, the press and civil society. 16. Fund and otherwise support all institutions likely to provide a check on the executive and promote To the Judiciary: democratic freedoms, such as parliamentary commissions, the judiciary, independent media, 6. Provide swift and transparent trials for all and civil society organisations defending human detainees, including alleged FNL combatants. rights and denouncing corruption. 7. Review the cases of suspects held on pre-trial To the United Nations Peacebuilding Commission: detention and release those who are not a flight risk or a threat to others. 17. Serve as the key forum for international engagement 8. Try officials suspected of torture and corruption with the government in consolidating the peace where significant evidence exists. process, including by: (a) acting as the primary forum for To the Parliament: information sharing and coordinating programs; 9. Create a standing security and intelligence committee, which should immediately investigate (b) keeping under close review human rights allegations of torture by the security services. and economic governance matters related to Burundi and developing benchmarks for 10. Conduct an independent audit of state contracts improvement on which disbursement of entered into over the past year. further aid should be conditioned; To the Media: (c) building donor confidence in the process and, if the above benchmarks are
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