f I f The Administrator United Nations Development Programme f Sustainable human development u II •™J 18 December 1998 Dear Ms. Frechette, It gives me great pleasure to commend to you Choosing Hope: The Case for Constructive Engagement in Burundi, prepared by the United Nations Resident Coordinator System in Burundi under the leadership of Ms. Kathleen Cravero. It is very well-written, and positions the United Nations System very clearly "in support of communities moving towards peaceful coexistence." Yours sincerely, James Gustave Speth Ms. Louise Frechette Deputy Secretary-General United Nations, New York 10017 One United Nations Plaza • New York, NY 10017 CHOOSING HOPE; The Case for Constructive Engagement in Burundi United Nations Resident Coordinator System in Burundi The content of this report has been reviewed and endorsed by the United Nations Country Team in Burundi. Food and Agricultural Organization (FAO) Joseph Tchicaya, Representative Office for the Coordination of Humanitarian Affairs (OCHA) Patrizia Paoletti, Head of Unit UN Children's Fund (UNICEF) Luis Zuniga, Representative UN Development Programme (UNDP) Kathleen Cravero-Kristoffersson, Resident Representative UN Educational, Scientific and Cultural Organisation (UNESCO) Yacouba Sow, Representative UN Office of the High Commissioner for Human Rights (OHCHR) Maroufa Diabira, Director UN High Commissioner for Refugees (UNHCR) Ulf Kristoffersson, Representative UN Office in Burundi (UNOB) Cheikh Tidiane Sy, Director UN Population Fund (UNFPA) Athanase Nzokirishaka, Assistant Representative World Food Programme (WFP) Thomas Yanga, Representative World Health Organisation (WHO) Paboung Yankalbe, Representative This report was written by Marie Dimond, Information Officer for the UN Office for the Coordination of Humanitarian Affairs in Burundi. The author acknowledges the valuable contributions of Kathleen Cravero- Kristoffersson, UN Resident and Humanitarian Coordinator, and Richard Hands, former OCHA staff member, and wishes to thank the wide variety of colleagues who read and commented on early drafts. CHOOSING HOPE: The Case for Constructive Engagement in Burundi Preface Executive Summary Setting the Scene The human factor: living under a piece of plastic 2 International indifference: is anybody watching? 2 History of the conflict 3 A Nation Uprooted Anatomy of displacement 4 Refugees and repatriation 8 Children lost and alone 9 Women left behind 9 Hunger in a Land of Plenty 10 • Food security: too many people, too little land 10 • Nutrition: scratching the surface 11 Social Breakdown 12 Water: the system breaks down 12 School's out 13 Where there is no doctor 14 Human rights and the rule of law 15 Sanctions: who suffers most? 16 Windows of Opportunity 17 • A new approach to reinstallation 17 • Time to act 19 Preface This report is an expression of concern for the people of Burundi: ' concern that their suffering is not sufficiently understood or is considered inevitable in a region engulfed in conflict; ' concern that the inextricable links between relief, development and peace-building are either unrecognized or ignored, discouraging the forces of reconciliation while strengthing those of hate and violence; ' concern that failure to respond to Burundi's reconstruction and development needs will cause communities to lose hope, leaving them without the motivation, skills or physical stamina to work toward peace; ' concern that if action is not taken now the hundreds of thousands of Burundians who are refugees in neighboring countries or displaced in their own land will remain stranded for years to come; and ' concern that a generation of children is emerging who, surrounded by hate, hunger and homelessness, will be driven by a desire for revenge rather than a vision of peace. The United Nations in Burundi must do everything possible to help resolve a conflict that is destroying homes, robbing people of their livelihoods and ravaging communities. We must be clearly and consistently on the side of the poor and vulnerable. We must bear witness to their suffering, help them reclaim their rights and insist on an adequate response to their needs. It is in this spirit that we call for growing constructive engagement in Burundi. Constructive engagement involves support both for the creation of a broad-based political consensus and for sustainable reinstallation. It is neither a plea for uncritical acceptance of Government policies nor a defense of one or another of the opposing groups. It is a call for concrete action in support of communities moving toward peaceful coexistence. It is a request for help in reinforcing the institutions, judicial systems, schools and basic services that promote good governance, equity and peace throughout the country. It is an invitation to choose stability over chaos, tolerance over hate, hope over despair. This is the only viable option for Burundi. Kathleert Cravero-Krist6ffecsson ON Resident and Humanitarian Ooflrdinator Bujumbura, Burundi December 1998 Executive Summary As stated in the Preface, this report is an expression led to a dramatic decline in these services and a of concern for the people of Burundi. It describes marked deterioration in the quality of the structures the combined impact of political crisis, economic that continue to function. (The section reviews collapse and social breakdown and calls for an specifically the sectors of water and sanitation, appropriate international response. education and health. It also focuses on human rights issues, analyzing problems - and proposed In the first section (Setting the Scene), the report solutions - in the areas of judicial reform, prison summarizes the suffering of Burundi in a series of conditions and human rights monitoring. Finally, this key facts: numbers of Burundians displaced inside section outlines the impact on the poor of the and outside their country; numbers receiving food sanctions imposed by neighboring countries in 1996T] aid; percentages of malnutrition; access to basic It highlights, for example, the deleterious effects otv services. It emphasizes the complexity of the current subsistence farmers and small businesses as well situation, pointing out how humanitarian and as on both the rural and urban poor. The sanctions development needs coexist and warning against have worsened the problems caused by prolonged "quick fixes" at the expense of long-term structural conflict, giving rise to a parallel economy, high improvements. Finally, this section puts the current inflation, rising unemployment and profiteering. They crisis in historical context by reviewing the cycles have also complicated the delivery of humanitarian of violence that have plagued the country for over assistance, involving cumbersome procedures and 30 years. long delays that waste both the time and money of UN agencies and their partners. Section two (A Nation Uprooted) analyzes the population movements that result from the conflict: The conclusion of this report (Windows of regroupment; displacement; flight into other Opportunity), while appreciating the scale of the countries; and, finally, repatriation back home. It problems raised in earlier sections, justifies the describes the physical and emotional suffering of theme choosing hope. It explains the innovative those forced to move as well as the impact on approach being pursued in Burundi to promote individual and collective dignity and self respect. This sustainable reinstallation and encourages support section also highlights the plight of refugees, for community-based initiatives that contribute to children and women, three groups particularly peace, stability and good governance. It calls for affected by continuing instability. recognition of the inextricable links between emergency, relief and development action. Section three (Hunger in a Land of Plenty) deals primarily with the problems of food security and The report closes with an appeal to donors and the malnutrition. A combination of high population international community at large to take action in density, a traditional land tenure system and over- three areas: development of a comprehensive exploitation of the land available is threatening food approach for Burundi that includes recovery, peace- security. The situation is exacerbated by continuing building, human rights and economic growth; high levels of population growth, loss of livestock, expansion of the boundaries of humanitarian lack of fertilizer and the large numbers of people assistance beyond the distribution of relief supplies living away from their homes. The result \s to support for community rehabilitation and increasing malnutrition, a problem with which a large development; and support for a process of network of feeding centers struggles to keep pace. constructive engagement that will help consolidate gains thus far and promote continued progress. In The message of section four (Social Breakdown) short, the report asks the international community is clear the state of basic services in Burundi is to help Burundi emerge from crisis by weighing in grim. Widespread destruction and looting of on the side of peace, hope and compromise. schools, health centers and other infrastructure has SETTING THE SCENE The human factor: Living under a piece of plastic Ifs been raining hard, and the track that leads to the hilltop site in northwest Burundi has turned into a river of mud. The trucks have got stuck way back down the slope - there will be no food today for the people for whom this forlorn spot is,