Reconciliation After Violent Conflict: a Handbook
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Reconciliation After Violent Conflict A Handbook H andbook Series Reconciliation After Violent Conflict A Handbook Editors: David Bloomfield, Teresa Barnes and Luc Huyse Contributors: David Bloomfield, Noreen Callaghan, Vannath Chea, Mark Freeman, Brandon Hamber, Priscilla B. Hayner, Luc Huyse, Peter Uvin, Stef Vandeginste, and Ian White. Handbook Series. The International IDEA Handbook Series seeks to present comparative analysis, information and insights on a range of democratic institutions and processes. Handbooks are aimed primarily at policy-makers, politicians, civil society actors and practitioners in the field. They are also of interest to academia, the democracy assistance community and other bodies. International IDEA publications are independent of specific national or political interests. Views expressed in this publication do not necessarily represent the views of International IDEA, its Board or its Council members. © International Institute for Democracy and Electoral Assistance 2003 Applications for permission to reproduce or translate all or any part of this publication should be made to: Information Unit International IDEA SE -103 34 Stockholm Sweden International IDEA encourages dissemination of its work and will promptly respond to requests for permission to reproduce or translate its publications. Graphic design by: Holmberg & Holmberg Design AB, Stockholm, Sweden Front cover photos sourced from: CORBIS/SCANPIX Printed by: Bulls Tryckeri AB Halmstad, Sweden ISBN: 91-89098-91-9 Foreword There is no handy roadmap for reconciliation. There is no short cut or simple prescription for healing the wounds and divisions of a society in the aftermath of sustained violence. Creating trust and understanding between former enemies is a supremely difficult challenge. It is, however, an essential one to address in the process of building a lasting peace. Examining the painful past, acknowledging it and understanding it, and above all transcending it together, is the best way to guarantee that it does not – and cannot – happen again. As our experience in South Africa has taught us, each society must discover its own route to recon- ciliation. Reconciliation cannot be imposed from outside, nor can someone else’s map get us to our destination: it must be our own solution. This involves a very long and painful journey, addressing the pain and suffering of the victims, understanding the motivations of offenders, bringing together estranged communities, trying to find a path to justice, truth and, ultimately, peace. Faced with each new instance of violent conflict, new solutions must be devised that are appropriate to the particular context, history and culture in question. And yet, despite the differences between Cape Town and Kigali, between Belgrade and Belfast, there are also similarities in each situation. The authors of this Handbook are not proposing simple solutions, but they are offering a range of options, built on expertise and experience drawn from around the world. They provide a solid basis for constructing, adapting and adopting ideas and tools – new and old, foreign and domestic, but above all practical and effective – to design a reconciliation process appropriate to a particular set of circumstances. In South Africa we have travelled a long way down the road of reconciliation, but our journey is not yet over. Reconciliation is a long-term process and it must – and will – continue for many years to come. And yet, we have made a good start. For us, truth was at the heart of reconciliation: the need to find out the truth about the horrors of the past, the better to ensure that they never happen again. And that is the central significance of reconciliation. Without it people have no sense of safety, no trust, no confidence in the future. The aim must be, as the Handbook’s authors say, ‘to build a shared future from a divided past’. There is no alternative way to lasting peace. As we continue our own journey towards peace in South Africa, I commend this Handbook to those who struggle for reconciliation in other contexts around the world. I hope that the practical tools and lessons from experience presented here will inspire, assist and support them in their supremely important task. desmond tutu Archbishop Emeritus Preface IDEA’s vocation is to promote sustainable democracy around the world. This includes attention to the specific challenges of democratization after violent conflict. This may involve the reconstruc- tion of politics and society by national actors, or the temporary stewardship of democracy-building by the United Nations or others. In either context, the subject of reconciliation – the process of addressing the legacy of past violence and rebuilding the broken relationships it has caused – is a focus of increasing interest. There is also an urgent demand for better tools to address this most difficult of post-violence issues. This Handbook is a response to such demand. For IDEA, democratic processes and structures are in themselves the most effective means for the peaceful prevention and management of conflict, especially in post-conflict contexts, where the most urgent need is for mechanisms that will, first and foremost, ensure that there will be no return to the violence of the past. More specifically, an appropriate reconciliation process – designed to fit the context, and owned by all stakeholders concerned – is a vital measure in order to address adequately the legacy of the past, to develop working relationships in the present, to build a shared vision of the future, and thus to support and sustain nascent democratic structures. We do not offer universal models of reconciliation in this handbook. Rather, we offer general advice and specific options to policy-makers and practitioners, to assist them in designing the most suitable reconciliation process for their particular needs. These options are based on actual experience from post-conflict situations around the world. This book contains accumulated wisdom from acknowledged experts, politicians, civil society leaders, all of whom speak from their own personal experience of tackling the challenges of reconciliation in their own situations. Reconciliation has only recently been recognized as a necessary component of post-violence recon- struction. Evidence and experience are still being accumulated. Consequently, this Handbook does not pretend to be a definitive statement on the subject, but rather a practically-oriented survey of the knowledge to date. Indeed, we invite critical comment and further inputs. We know that reconcilia- tion can never be a quick fix. It requires time and patience, an incremental approach and a capacity to evolve and adapt to challenges and opportunities. The topic is huge, but the need is great since reconciliation is among the most difficult challenges facing new or restored democracies. We hope that the contents can be of practical assistance in stimulating the design and implementation of appropriate reconciliation processes which will, in turn, support and strengthen appropriate democratic structures. This Handbook, which is produced as part of IDEA’s work on democracy building and conflict management, will also be used in trai- ning, discussion and co-operation with colleagues and partner bodies around the world and we invite interested organizations to make contact. We owe a huge debt of thanks to Prof. Luc Huyse, who shouldered the onerous task of lead writer on this project. We could not have chosen a more able, more knowledgeable or more co-operative colleague. We also thank the many experts of world renown who have contributed to the text, including Birgitte Soerensen, our adviser on gender issues. We are very grateful to our member state, the Netherlands and observer country, Switzerland, which contributed towards the cost of the project. Last but not least, credit also goes to our own staff in the Democracy, Dialogue and Conflict Management Programme and the Publications Section, who have seen the Handbook through from start to finish. karen fogg Secretary-General, International IDEA Reconciliation After Violent Conflict A Handbook part i reconciliation: the context 1 RECONCILIATION: AN INTRODUCTION . 10 1.1 Democracy and Reconciliation . .10 1.2 The Process of Reconciliation . .12 1.3 The Necessity of Reconciliation . .14 1.4 No Easy Answers . .16 1.5 How to Use This Handbook . .17 2 THE PROCESS OF RECONCILIATION . 19 2.1 What is Reconciliation? . .19 2.2 Reconciliation: Who is Involved? . .22 2.3 Reconciliation: How? . .23 2.4 Reconciliation: When, in What Order and How Fast? . .27 Case Study: Zimbabwe: Why Reconciliation Failed . .34 3 THE CONTEXT OF RECONCILIATION . 40 3.1 The Legacy of the Past . .40 3.2 The Transition . .42 3.3 The Post-Transition Context . .44 3.4 Concluding Remarks . .47 Case Study: Reconciliation in Cambodia: Politics, Culture and Religion . .49 part ii reconciliation: the people 4 VICTIMS . 54 4.1 The Many Faces of Victims . .54 4.2 The Identification of Victims . .57 4.3 Victim Mobilization . .62 4.4 Victims and Offenders: Interchangeable Roles . .64 4.5 Concluding Remarks . .65 5 OFFENDERS . ..