Examining the Role of Preventive Diplomacy in South Africa's Foreign
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Examining the Role of Preventive Diplomacy in South Africa’s Foreign Policy towards Zimbabwe, 2000-2009 by ALLISON MARIE COADY A dissertation submitted in fulfillment of the requirements for the degree MASTER’S OF ARTS (INTERNATIONAL RELATIONS) in the DEPARTMENT OF POLITICAL SCIENCES FACULTY OF HUMANITIES UNIVERSITY OF PRETORIA SUPERVISOR: PROFESSOR H. SOLOMON PRETORIA, SOUTH AFRICA DECEMBER 2012 © University of Pretoria To Mom, Dad and Peter with love and to the memory of Eddie Matsangaise, your struggle lives on. ii Acknowledgements The completion of this dissertation would not have been possible without the support of so many people. First and foremost, I would like to thank Professor Hussein Solomon for his unwavering belief in my capabilities and his valuable supervision throughout the project. Hussein, I look forward to the day we work together again. To Seán, you took a chance on me when I most needed direction. I was nurtured and was able to flourish under your guidance and your patience. Thank you for helping me get more of this vast and beautiful African continent under my skin. Amy Eaglestone, you have been my mentor for this study, for work, for life. You are my best friend and I thank you for your constant love and support. To all of you at BICCCS, thank you for giving me a welcoming home through the long days of the writing process. I am grateful to all my friends in South Africa for being my surrogate family for the past six years, and to my friends at home in Canada for sending constant encouragement while I’ve been so far from that home. To Gabriel, Jestina and Irene, you take risks every day as you work towards the respect of human rights and the development of a more open and democratic society in Zimbabwe. Your dedication and passion will continue to inspire me. Last but not least, I would like to take this moment to express my love and gratitude to my beloved parents and brother. You believe in me and love me unconditionally. You lift me up, dust me off, and give me the strength to be the person I strive to be. iii Abstract The recent political conflict in Zimbabwe has attracted the attention of policymakers, academics and the media alike in the neighbouring countries of the region, across the African continent and internationally. While the story of an ageing African liberation hero turned dictator who, through autocratic rule, has governed his country and his people to the ground in order to maintain power is captivating, a key element of the fascination is the critical diplomatic role played by South Africa from 2000 onward. Foreign policy in post-apartheid South Africa on paper is driven by human rights and democracy, conflict prevention and conflict resolution through peaceful means, and the promotion of African interests in world affairs. However, after observing South Africa’s involvement in the Zimbabwe conflict between 2000 and 2009, South Africa’s foreign policy appears to be propelled more by African solidarity and sovereignty, anti- imperialism, and a softer interpretation of preventive diplomacy than its international counterparts. Thabo Mbeki’s preventive diplomacy toward Zimbabwe during his presidency was slow to produce results, lacked transparency and frustrated many, yet, when examined under a preventive diplomacy theoretical lens, Mbeki’s policy did eventually garner success through the signing of the Global Political Agreement (GPA) and the formation of an inclusive government in Zimbabwe. This dissertation examines the role of preventive diplomacy in South Africa’s foreign policy toward Zimbabwe under Mbeki’s leadership and determines the point at which South Africa switched from an approach of preventive diplomacy to one of conflict resolution and conflict management. The concept of ‘preventive diplomacy’ is often focused on government-to-government relations or the high level diplomacy of intergovernmental organizations such as the iv United Nations (UN). Multi-track diplomacy expands on this traditional interpretation and considers the preventive diplomacy contributions of a variety of non-state actors to the practice of conflict prevention. This dissertation uniquely moulds the preventive diplomacy theoretical framework of Michael Lund with Kumar Rupesinghe’s concept of multi-track diplomacy to form a more comprehensive illustration of the role of preventive diplomacy in the approach of multiple actors towards the Zimbabwe conflict. The more inclusive preventive diplomacy theoretical framework is then applied to the conflict in Zimbabwe between 2000 and 2009. Through the application of a preventive diplomacy framework which incorporates the concept of multi-track diplomacy it is then possible to observe the South African government’s preventive diplomacy approach toward Zimbabwe first between 2000 and 2007 and then as mandated by SADC between 2007 and 2009 and finally compare it with the diplomacy of multi-track actors such as the UN, Zimbabwe-based and South African-based civil society organizations, the Zimbabwean Diaspora, religious groups, and financial institutions. The examination of the larger role of preventive diplomacy in the Zimbabwe conflict situation leads to the understanding that each diplomatic effort is interlinked. Therefore the culminating event of the South African government’s preventive diplomacy approach in the Global Political Agreement could not have been achieved without the preventive diplomacy efforts of a multitude of actors who were also committed to preventing violence and finding a lasting solution to the conflict in Zimbabwe. v Key Concepts: Conflict, Conflict Intervention, Conflict Prevention, Conflict Resolution, Conflict Management, Preventive Diplomacy, Conflict Life Cycle, Early Warning, Track One Track Two Diplomacy, Multi-track Diplomacy, Inter-governmental Diplomacy, Governmental Diplomacy, Ecumenical Diplomacy, Citizen Diplomacy, Economic Diplomacy, South Africa, Thabo Mbeki, ANC, Zimbabwe, MDC, ZANU-PF, SADC, AU, Foreign Policy, UN, CSOs, NGOs, Zimbabwean Diaspora, Global Political Agreement, Inclusive Government. vi Abbreviations AIPPA Access to Information and Protection of Privacy Act ANC African National Congress AU African Union BEE Black Economic Empowerment CC Constitutional Commission CCJPZ Catholic Commission for Justice and Peace in Zimbabwe CHOGM Commonwealth Heads of Government Meeting CSO Civil Society Organization ESAP Economic Structural Adjustment Programme EU European Union GNU Government of National Unity GPA Global Political Agreement IMF International Monetary Fund JOC Joint Operations Command JOMIC Joint Monitoring and Implementation Committee MDC Movement for Democratic Change NCA National Constitutional Assembly NGO Non-governmental Organization OAU Organization of African Unity OSISA Open Society Initiative for Southern Africa POSA Public Order and Security Act RF Rhodesian Front SADC Southern African Development Community SALC South African Litigation Centre SATAWU South African Transport and Allied Workers Union UDI Unilateral Declaration of Independence vii UN United Nations UNDP United Nations Development Fund UNHCR United Nations High Commission for Refugees UNICEF United Nations Children’s Fund ZANLA Zimbabwe National Liberation Army ZANU Zimbabwe African National Union ZANU-PF Zimbabwe African National Union – Patriotic Front ZAPU Zimbabwe African People’s Union ZCBC Zimbabwe Catholic Bishops Conference ZCC Zimbabwe Council of Churches ZCTU Zimbabwe Congress of Trade Unions ZEF Zimbabwe Evangelical Fellowship ZEF Zimbabwe Exiles Forum ZIPRA Zimbabwe People’s Revolutionary Army ZLHR Zimbabwe Lawyers for Human Rights viii Chronology of Key Events 1964 – Rhodesian Front’s (RF) Ian Smith becomes Prime Minister of Rhodesia 1965 – Unilateral Declaration of Independence (UDI) on 11 November. Economic sanctions imposed by Britain 1966 – Britain imposes sanctions on all trade with Rhodesia. UN imposes oil embargo on Rhodesia. 1968 – UN imposes comprehensive mandatory sanctions on Rhodesia. 1969 – A new Rhodesian constitution extends franchise to selected groups. 1972 – Guerilla war led by rival African nationalist groups ZANU and ZAPU against white rule escalates as the violence extends into urban areas. 1975 – Mozambique attains independence and closes border with Rhodesia. Robert Mugabe replaces Sithole as leader of ZANU 1976 – Patriotic Front is formed to unite ZANU and ZAPU. 1978 – Internal settlement between Smith, Muzorewa (African National Council), Sithole (ZANU) and Chief Chirau (traditional leader) for majority rule elections. Patriotic Front boycotts agreement. The new state of Zimbabwe-Rhodesia formed. Civil war continues. 1979 – Lancaster House Conference of all parties brokered by Britain concludes with a peace agreement and a new constitution. 1980 – ZANU wins elections supervised by Britain. Zimbabwe attains independence on 18 April with Mugabe as Prime Minister. 1982 – Mugabe removes ZAPU’s Nkomo from cabinet. Zimbabwe holds non-permanent seat in the UN. 1982-1987 – Gukurahundi Massacres. Estimated 20,000 civilians killed in Midlands and Matabeleland provinces by government forces. 1987 – Constitutional amendment introduces Executive Presidency, centralizing power. Unity Accord forms ZANU-PF and ends violence but eliminates political opposition. ix 1988 – World Health Organization and UNICEF recognize Zimbabwe’s accomplishments in the provision of water and sanitation to rural households. 1991 – Harare Declaration adopted by Commonwealth. Economic Structural Adjustment Programme (ESAP) introduced.