Inclusion and Exclusion: Ngos and Politics in Zimbabwe Sara Rich

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Inclusion and Exclusion: Ngos and Politics in Zimbabwe Sara Rich Inclusion and Exclusion: NGOs and Politics in Zimbabwe Sara Rich Dorman St Antony’s College Thesis submitted in partial fulfilment of the requirements for the degree of D.Phil in the Department of Politics and International Relations in the Division of Social Studies at the University of Oxford. Michaelmas 2001 Inclusion and Exclusion: NGOs and Politics in Zimbabwe Sara Rich Dorman, St Antony’s College 98 852 words Abstract The thesis explores the changing relations between the Zimbabwean state and local non- governmental organizations (NGOs) after independence. It focuses on debates over the role of NGOs in democratization in developing countries, using Zimbabwe as an example. The thesis argues that the study of democratization is best accomplished through detailed empirical case studies, relying on historical narratives and participant-observation research. Such research reinforces our understanding of democratization as a complex and dynamic process. The thesis proposes a framework for understanding state and society relations in Zimbabwe, emphasizing the ruling party’s use of coercive and consent-generating mechanisms to establish hegemony over the new nation. It examines the changing relationship between NGOs and the state after independence, when the ruling party’s efforts to include most groups within its nationalist coalition extend to NGOs. Case studies of NGO coalitions show how activist NGOs fail to mobilize others owing to the unwillingness of many NGOs to challenge the ruling party’s control over policy-making. The establishment of the National Constitutional Assembly by some NGOs, churches and trade unionists set the stage for an increasingly tense engagement between NGOs and the state after 1997. The constitutional debate opened up the public sphere in new ways. As the ruling party attempted to retain control over the political sphere and the constitutional debate, NGO politics became increasingly polarized. The emergence of the opposition Movement for Democratic Change, and the prominence of NGO activists within its leadership, led to further conflict. After losing the February 2000 constitutional referendum, the regime sanctioned violent attacks on white farmers, businesspeople, and NGOs. While the ruling party attempted to shore up its support through nationalist rhetoric and financial incentives, groups perceived to oppose the state were excluded and vilified. (286 words) Table of Contents Part I Studying Democratization in Africa..................................... 1 Chapter 1 Introduction and Methodology ............................... 4 Chapter 2 Reconsidering Democratization, Civil Society and NGOs . ....... 16 Part II The Politics of Inclusion, 1980-1997................................... 43 Chapter 3 Constructing Hegemony: Discourse and Action, 1980-1990 . ....... 50 Chapter 4 The Regime Endures, 1990-1997 ............................ 87 Part III NGOs and the State in Zimbabwe, 1990-1997 . ................... 120 Chapter 5 NGOs and the State: Intra-politics of NGOs .................. 123 Chapter 6 NGOs and the State: Inter-politics, Issues and Coalitions . ...... 164 Part IV The Politics of Exclusion, 1997-2000 ................................ 195 Chapter 7 The Politics of 1997-2000: the January 2000 Referendum . 198 Chapter 8 The Politics of 1997-2000: the June 2000 election . ............. 229 Part V Authoritarianism and Democratization ................................ 266 Chapter 9 Zimbabwe in Comparative Perspective . ................... 267 Works Consulted......................................................... 295 iii Detailed Table of Contents Acknowledgements.........................................................vii Maps of Zimbabwe........................................................ viii Currency Conversion Rates . ............................................ ix Glossary of Selected Zimbabwe-specific Terms . ................. ix Acronyms .................................................................x Part I Studying Democratization in Africa......................................1 Chapter 1 Introduction and Methodology ................................4 1.1 A Dual Mandate?............................................4 1.2 Methodological Approaches...................................5 1.3 Methodological Practice .....................................12 1.4 Outline...................................................15 Chapter 2 Reconsidering Democratization, Civil Society and NGOs . ....16 2.1 Democratization ‘revisited’...................................18 2.2 Power, Culture and Hegemony................................21 2.3 Democratization = Civil Society = NGOs? . .................27 2.3.1 Capacity Critiques: Fowler and Dicklitch ...............31 2.4 Exit, Voice and Material Engagement ..........................32 2.4.1 Problematizing Voluntarism and Professionalization......35 2.5 Pragmatic Decision-making ..................................37 2.6 Authoritarianism ‘Revisited’ ..................................39 Part II The Politics of Inclusion, 1980-1997 ...................................43 Chapter 3 Constructing Hegemony: Discourse and Action, 1980-1990 . ....50 3.1 Nation-building............................................50 3.1.1 Reconciliation and Deracialization . .................52 3.1.2 Party Unity........................................53 3.1.3 Symbolic Nationalism ...............................57 3.1.4 Development......................................60 3.2 Societal Demobilization . .................64 3.2.1 Ex-combatants.....................................66 3.2.2 Party Politics.......................................68 3.2.3 Peasants ..........................................72 3.2.4 Intelligentsia and Students . .................73 3.2.5 Labour ...........................................77 3.2..6 Churches.........................................79 3.2.7 Media ............................................83 3.3 Conclusion . ............................................85 Chapter 4 The Regime Endures, 1990-1997 .............................87 4.1 The ‘Development Agenda’ ..................................88 4.2 Tools of Defense and Offence................................94 4.2.1 Media ............................................94 4.2.2 Elections and Opposition Parties . .................96 4.2.3 The Elections Machinery . .................99 4.2.4 Parliament........................................101 4.2.5 Unions ..........................................103 4.2.6 Judiciary .........................................105 4.2.7 Students .........................................107 4.2.8 Churches.........................................108 iv 4.3 Reactive Nation-building: the backlash to ‘reconciliation and unity’? 110 4.3.1 National Symbols................................. 110 4.3.2 Race, Reconciliation and Affirmative Action . ...... 111 4.3.3 Land ........................................... 115 4.3.4 ‘War Veterans’ . ................... 116 4.4 Conclusion .............................................. 118 Part III NGOs and the State in Zimbabwe, 1990-1997 . ................... 120 Chapter 5 NGOs and the State: the Intra-politics of NGOs ............... 123 5.1 Determinants of Strategic Pragmatism . ................... 123 5.2 The Historical Roots of NGOs: the Nationalist Era............. 127 5.3 Independence: from Euphoria to Conflict . ................... 133 5.3.1 Adjusting to Independence ......................... 134 5.3.2 NGOs during the Matabeleland Conflict . ............. 136 5.3.3 New Issues and New NGOs . ................... 138 5.4 ZimRights: “To the Extent of Doom”? ...................... 145 5.4.1 Membership, Staff and Employment Opportunities . 146 5.4.2 Activities and Advocacy............................ 149 5.4.3 Leadership Struggles and Organizational Growth . 154 5.4.4 Understanding ZimRights’ Collapse.................. 160 5.5 Conclusion .............................................. 163 Chapter 6 NGOs and the State, 1990-1997............................. 164 6.1 VOICE, NANGO, and Ad-hoc Coalitions.................... 164 6.2 Structural Adjustment..................................... 167 6.2.1 The Dog That Didn't Bark in the Night, 1990-1994 . 168 6.2.2 Advocacy and Action: 1994-1995.................... 169 6.2.3 Networking: ZCC-EJN . ................... 171 6.2.4 NGO-LAG: A Call to Justice .................... 172 6.2.5 A Call to Prophetic Action......................... 176 6.2.6 Church NGOs and Economic Policy Issues . ...... 178 6.3 The PVO Act............................................ 179 6.3.1 The History of the Act............................. 179 6.3.2 The AWC Case.................................. 180 6.3.3 The Campaign for the Repeal of the PVO Act . 182 6.3.4 The Politics of not being NANGO .................. 186 6.3.5 The Politics of Opposing the State . ............. 188 6.4 From Ad-hoc Coalitions to the NGO Coalition for Change . 191 6.5 Conclusion .............................................. 193 Part IV The Politics of Exclusion, 1997-2000 ................................ 195 Chapter 7 The Politics of 1997-2000: the January 2000 Referendum . 198 7.1 Growing Unrest.......................................... 198 7.1.1 Economic conditions and labour unrest . ............. 199 7.1.2 Urban conditions................................. 200 7.1.3 Scandals ........................................ 201 7.1.4 The Congo Intervention . ................... 202 7.1.5 Media Expansion and Crackdown.................... 203 7.2 NGOs Take the Initiative:
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