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Politorbis Nr. 45: Power Sharing. the Swiss Experience

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Politorbis Nr. 45: Power Sharing. the Swiss Experience No 45 Politorbis Zeitschrift zur Aussenpolitik www.eda.admin.ch/politorbis Revue de politique étrangère Rivista di politica estera IslamPower et politiquesharing dansThe les Swiss Balkans experience occidentaux 2 / 2008 Contact: Federal Department of Foreign Affairs FDFA Directorate of Political Affairs DP Political Affairs Secretariat POLS Politorbis Bernastrasse 28 3003 Bern Phone: + 41 31 325 81 52 Fax: + 41 31 324 38 39 mailto: [email protected] www.eda.admin.ch/politorbis Politorbis Zeitschrift zur Aussenpolitik Revue de politique étrangère Rivista di politica estera Nº45 2/2008 Table ob Contents Acknowledgements .................................................................................................................................................... 3 Preface ........................................................................................................................................................................... 5 Short Introduction: Multicultural Switzerland ....................................................................................................... 7 Chapter 1: Sharing History ..............................................................................................................................11 Chapter 2: Sharing State and Identity ............................................................................................................17 Chapter 3: Sharing Territory............................................................................................................................23 Chapter 4: Sharing Rule ...................................................................................................................................29 Chapter 5: Sharing Democracy ......................................................................................................................37 Chapter 6: Sharing Language and Religion ..................................................................................................45 Chapter 7: Sharing Justice ................................................................................................................................55 Chapter 8: Sharing Wealth and Income .........................................................................................................63 Chapter 9: Sharing Security .............................................................................................................................71 Conclusions: Sharing the Future .........................................................................................................................77 A N N E X (I-XI) ....................................................................................................................................................83 Acknowledgements This publication is based on a report mandated by the Swiss Federal Department of Foreign Affairs, Political Affairs Division IV (human security). We extend our thanks to all who made this publication possible and who contributed with their comments and advice. First and foremost our thanks to Murezi ������������������Michael�����������, Program O���cer������������������������������� for Mediation and Constitu- tionalism at the FDFA, Political Division IV, Paul Middleton (FDFA, Political Division IV) and Matthias Sieg- fried (Mediation Support Project) for their substantial contribution to this publication. The authors were also supported by an advisory board of representatives from different divisions of the Swiss Department of For- eign Affairs. We are grateful for their advice and suggestions. Thanks also to the staff of swisspeace who pro- vided valuable background information on conflict. Our gratitude is also directed to all those who at various stages provided comments on the draft including Ju- lian Hottinger, Georg Lutz, Maurizio Maggetti and Michael Cottier, as well as all the participants at the work- shop ‘Swiss Power sharing: Options for countries in conflict?’ organised by Political Division IV in April 2008. Special thanks go to Damiano Squaitamatti for his suggestions and revisions of the text and to Alix Henley for editing the English. All these people have contributed to the quality of the publication. Any remaining weak- nesses are entirely our own responsibility. Last but not least, we want to thank Anna Lea who participated in status nascendi. Bern, Dezember 2008 Andrea Iff Nicole Töpperwien Politorbis Nr. 45 - 2 / 2008 Preface Since the end of the Cold War two major changes experts are often asked to explain the Swiss sys- have taken place regarding armed conflicts: Firstly, tem, to share their experience and what they have the big majority of recent conflicts are fought prima- learned, and to advise on possible power sharing rily within states. Secondly, of all conflicts that were options for a specific context. This publication is in- brought to an end, only 28 were decided by vic- tended to provide information and resource materi- tory and defeat on the battlefield. In 58 cases, con- als for all those who are interested in the Swiss sys- flict ended or at least temporarily stopped based on tem of power sharing, and especially for those who peace negotiations. Therefore, since the end of the are involved in power sharing discussions in coun- cold war, models, concepts and ways of negotiat- tries experiencing conflict. ing peace and of supporting such peace negotiations by mediation have changed and are still drastically Because the Swiss power-sharing system, like any changing. other, is highly context dependent, this publication purposely draws attention to the specifically con- In a majority of internal conflicts at least one party text dependent aspects of Swiss power sharing. The to the conflict fights for a bigger share of power. Fre- authors do not want to promote the ‘Swiss model’ quently, parties are only willing to ‘talk peace’ and to or to say which elements should be transferred to sign a peace agreement if demands for power-shar- other situations. Rather, they describe one example ing are addressed, a common vision for the future of power sharing arrangements and invite readers to is developed, and there is an agreement on mutu- explore the different topics and to reflect critically on ally acceptable solutions, including power-sharing its benefits and risks. mechanisms. Power-sharing mechanisms have thus become part and parcel of peace agreements, and ex- The publication aims at being as complex as neces- pertise on power sharing is essential in peace negoti- sary but as simple as possible so that no preliminary ations. The Swiss Department of Foreign Affairs has knowledge on power-sharing mechanisms and on responded to this need and regularly provides spe- Switzerland are required. This publication does not cially trained mediators and experts on power shar- want to depict all details of Swiss state organisation ing. and power-sharing. The publication focuses on those elements of power-sharing in Switzerland that can Power sharing mechanisms are not always success- be of interest for multi-ethnic societies, especially for ful. Furthermore, power sharing mechanisms that those confronted with ethno-political conflict. An in- have been successful in one context cannot necessar- troductory chapter provides a short introduction to ily be transposed to another. The attempt to trans- multicultural Switzerland and shall help the reader fer experience without paying full attention to dif- to identify the chapters of his or her interest. The ferences in context is doomed to fail and may do publication addresses nine issues that potentially more harm than good. Tailor-made approaches are are of relevance and that seem to “come up” in situ- essential. However, though the transferability of ex- ations of violent conflict in multi-ethnic settings: (1) perience is limited, it is still possible to gain some sharing history, (2) sharing identity and the state, (3) useful insights from both positive and negative ex- sharing territory, (4) sharing rule, (5) sharing democ- periences. Real life examples and experiences of racy, (6) sharing language and religion, (7) sharing power sharing can provide ideas and inspiration for justice, (8) sharing wealth and income, and (9) shar- decision-makers, mediators and experts involved in ing security. peace negotiations. A separate chapter is dedicated to each of the nine Therefore, the Swiss Department of Foreign initi- issues. Each chapter is structured the following way: ated this publication that deals with Swiss experi- (I) a context part, quickly establishes the relevance ences of power-sharing. The Swiss system of state of the topic, (II) a short concept part outlines the ma- organisation is characterised by a large number of jor concepts, (III) Switzerland’s approach in dealing power sharing mechanisms. These have been used with the respective issue is depicted, (IV) context de- to accommodate cantonal, linguistic and religious pendent success factors as well as some more gen- (confessional) diversity. Countries dealing with con- eral lessons learned from the Swiss experience are flict, especially those with multi-ethnic societies, of- identified, (V) some key questions are also given ten show great interest in Swiss experience. Swiss that shall help to analyse a specific context and to Politorbis Nr. 45 - 2 / 2008 PREFACE develop specific approaches. The report ends with a concluding part, where aspects of how to share the future are addressed. As further resource material or
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