INTERNATIONAL CRIMINAL TRIBUNAL FOR RWANDA: JUSTICE DELAYED 7 June 2001 Africa Report n°30 Nairobi/Arusha/Brussels TABLE OF CONTENTS MAP OF RWANDA..................................................................................................................................................................... I EXECUTIVE SUMMARY AND RECOMMENDATIONS....................................................................................................II I. INTRODUCTION .............................................................................................................................................................3 II. THE ICTR UNDER SCRUTINY: THE FORGOTTEN URGENCY OF ITS MANDATE........................................3 A. SOME SYMBOLIC RESULTS................................................................................................................3 1. Trials : Sending a Message Against Impunity...............................................................................3 2. The ICTR’s Achievements: Recognition of the Genocide and Political Neutralisation of “Hutu Power” ...........................................................................................................................................7 3. Cautious Determination to Prosecute Crimes Committed by the RPF and the Attack of 6 April 1994 ...............................................................................................................................................8 B. THE ICTR’S FAILURES: UNACCEPTABLE BUREAUCRATIC LOGJAMS ..................................10 1. The Heavy Responsibility of Judges ...........................................................................................10 2. Levels of Staff Competence at the Office of the Prosecutor.......................................................11 3. Internal Power Struggles..............................................................................................................12 4. Management of the Defence........................................................................................................12 III. THE ICTR AND STATES: LEGAL COOPERATION AND NATIONAL SOVEREIGNTY .................................13 A. ARRESTS: CONTINUED PROTECTION FOR CERTAIN CRIMINALS ..........................................14 1. The Democratic Republic of Congo - Protector of Military Fugitives........................................14 2. The Troublesome Kabuga in Kenya............................................................................................15 B. THE TRANSFER OF SUSPECTS - PROMPT ACTION AND LONG DELAYS ...............................17 C. AN AMERICAN INITIATIVE TO BE ENCOURAGED: FUNDS FOR INFORMERS ......................18 IV. THE ICTR AND RWANDA: THE INEVITABLE POLITICISATION OF JUSTICE............................................19 A. JUSTICE DEPENDANT UPON ACCESS TO THE CRIME SCENES................................................19 1. Relations Initially Marked by Defiance.......................................................................................19 2. The Barayagwiza Affair ..............................................................................................................20 3. The Difficult Task of Managing Witnesses.................................................................................22 B. A POLITICAL MANDATE DIFFICULT TO ACHIEVE .....................................................................23 1. A Tribunal Isolated from Rwandan Society................................................................................23 2. The ICTR and Reconciliation......................................................................................................26 V. THE FUTURE OF THE ICTR: THE NEED FOR RESULTS....................................................................................28 A. ARRESTS: MAKING BETTER USE OF AVAILABLE INSTRUMENTS .........................................28 1. Using the Full Procedural Arsenal ..............................................................................................28 2. Giving the Prosecution More Autonomy.....................................................................................29 B. INCREASING ICTR'S PRESENCE AND INFORMATION IN RWANDA.........................................29 C. ORGANISING TRIALS OR HEARINGS IN KIGALI TO GIVE RWANDANS A NEW SENSE OF OWNERSHIP IN THE TRIALS ............................................................................................................30 D. CONFRONTING THE ISSUE OF COMPENSATION.........................................................................31 1. Forgotten Victims........................................................................................................................31 2. Victim Reparation vs. Victim Compensation..............................................................................32 E. THE DEBATE ON BROADENING THE MANDATE OF THE ICTR AND THE FIGHT AGAINST IMPUNITY ............................................................................................................................................34 F. BROADENING THE UNIVERSAL JURISDICTION OF NATIONAL COURTS: SHARING THE LOAD ....................................................................................................................................................35 CONCLUSION: ESTABLISH A TERM LIMIT ....................................................................................................................37 APPENDICES A. LIST OF ACRONYMS ..........................................................................................................................39 B. CHRONOLOGY OF ICTR ACTIVITIES..............................................................................................40 C. SITUATION OF ICTR PRISONERS 9 MAY 2000...............................................................................43 D. DEFENCE AND TRIAL COSTS...........................................................................................................51 E. ABOUT THE INTERNATIONAL CRISIS GROUP.............................................................................54 F. ICG REPORTS AND BRIEFING PAPERS...........................................................................................55 G. ICG BOARD MEMBERS ......................................................................................................................59 ° ° ° ° ° 1° 00' 29 00' 29 30' 30 00' Kafunzo 30 30' 31 00' 1° 00' Merama RWANDA UGANDA Kagitumba International boundary Lake Mutanda Lake Rwemhasha Prefecture boundary Bunyonyi RWANDA Road Lubirizi Rutshuru Kisoro Track Nyagatare Cyanika Kabale K National capital a a BIRUNGA b ge m ra Butaro u Prefecture capital t NAT'L PARK Muvumba i Kidaho g KAGERA Town Lac Katuna a Lac Burera Mulindi K Ruhengeri Gatunda Rwanyakizinga 1° 30' Kirambo 1° 30' BYUMBA Ngarama Lac Cyamba Gabiro Kora Ruhondo Byumba Lac Mikindi DEMOCRATIC Busogo Mutura RUHENGERI NATIONAL Lake REPUBLIC OF THE Kagali Kinihira Lac Hago Mujunju Goma Nemba CONGO Gisenyi Kinyami Nyundo Muhura Lac Lo Kabaya Rushashi Rutare w Ngaru N Kivumba a Rukara GISENYI ya Mbogo Murambi PARK Lac ba Kivu Ngororero rongo Shyorongi Lac Lac Ihema Ile KIGALI Muhazi Bugarura Kiyumba Kinyinya Gikoro Kigali Rwamagana Ile Wahu Runda Bulinga Kayonza Lac 2° 00' Butamwa Kicukiro Bicumbi Nasho 2° 00' Mabanza Gitarama Kigarama Kibuye Lac Lake Lac Mpanga Bisongou Birambo Mugesera Lac Ile KIBUYE Bugesera Cyambwe Idjwi GITARAMA Kibungo Rukira Gishyita Bwakira Rilima Sake Rwamatamu Masango Ruhango KIBUNGO Gashora Rusumo Gatagara Bare Kaduha Nemba Kirehe K a GIKONGORO Ngenda ge Ile Rwesero Nyabisindu ra Gombo Karaba Lac Lac CYANGUGU Rusatira Cyohoha Rweru Kamembe Gisakura Gikongoro Sud Karama 2° 30' Bukavu Cyangugu Rwumba Kitabi 2° 30' Cyimbogo Karengera BUTARE UNITED Nyakabuye Bugumya Ruramba Butare BURUNDI REPUBLIC OF Gisagara u TANZANIA r a Bugarama Busoro y Munini n ka A Runyombyi 0 10 20 30 km The boundaries and names shown on this map do not imply official endorsement or acceptance by the United Nations. 29° 00' 29° 30' 30° 00' 30° 30' 0 10 20 mi 31° 00' Map No. 3717 Rev. 7 UNITED NATIONS Department of Public Information December 1997 (Colour) Cartographic Section ICG Africa Report N° 30 7 June 2001 INTERNATIONAL CRIMINAL TRIBUNAL FOR RWANDA: JUSTICE DELAYED (Original Version in French) EXECUTIVE SUMMARY AND RECOMMENDATIONS Seven years after its establishment immediately them had managed by last March to attain a record following the genocide in Rwanda, and more than 28 months without hearing a substantial matter. four years since the beginning of the first trial, the International Criminal Tribunal for Rwanda There are some points in the ICTR’s favour. It has (ICTR), based at Arusha, Tanzania, has to date provided indisputable recognition of the Rwandan handed down verdicts on only nine individuals. Of genocide and has politically neutralised the “Hutu 69 indicted suspects, 45 have been arrested. Not Power” movement’s agenda of Tutsi one of the alleged masterminds of the genocide has extermination. However, seven years on, it has still been brought to trial – including Colonel not been able to shed light on the design, Theoneste Bagosora who has been in prison for mechanisms, chronology, organisation and five years. Most of the masterminds of the financing of the genocide, nor has it answered the genocide, whether officially indicted by ICTR or key question: who committed the genocide? not (due to lack of evidence), are able to live freely Compared to the International