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Gideon Maltz
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In an op-ed in the Baltimore Sun on March 13, the CDDRL fellow Gideon Maltz argues that the international community's strategy on Zimbabwe has failed, and suggests that it is time to focus international attention on the prospect of Zimbabwe's only genuine political opening in the years ahead: the exit of Mr. Mugabe.

It is time to acknowledge that the international community's strategy on Zimbabwe has failed.

Robert G. Mugabe's regime has survived even as the economy deteriorates further (unemployment is above 70 percent, and gross domestic product will decline another 7 percent this year) and personal freedom suffers greater assaults (the recent "drive out the rubbish" campaign left 700,000 people homeless).

Indeed, with the opposition Movement for Democratic Change (MDC) on the verge of collapse - following a bitter fight over whether to boycott the recent Senate elections and after years of sustained government pressure - the regime has a stronger grasp on power than ever. Doddering though he may be, Mr. Mugabe, who recently turned 82, has foiled the pressure of the United States and Britain and the quiet diplomacy of his neighbors in southern Africa.

Predictions of imminent change still crop up in Western newspapers on the occasion of every new crisis in Zimbabwe. But these predictions have not come to bear, and they likely will not. So long as Mr. Mugabe reigns, his Zimbabwe African National Union-Patriotic Front (ZANU-PF) regime will survive.

The international community tried to change things. It embarked on a strategy of concerted economic and diplomatic pressure to weaken the Mugabe regime, trying to force it to either back down or submit to the democratic opposition. It's clear that strategy has failed.

It is, therefore, time to focus international attention on the prospect of Zimbabwe's only genuine political opening in the years ahead: the exit of Mr. Mugabe, whether through retirement or death, which will leave the regime internally and externally vulnerable.

Internally, the ZANU-PF regime without Mr. Mugabe at the helm will be uniquely susceptible in an election. In sub-Saharan Africa, opposition candidates have won post-transitional elections only 5 percent of the time against incumbents but 33 percent of the time against regimes' designated successors.

The most important reason for that is the incumbent's exit removes the regime's glue. The regime fractures into competing factions and is left with a substantially reduced capacity to repress the political opposition and rig an election.

In Kenya, after President Daniel T. arap Moi, and in Ghana, after President Jerry J. Rawlings, the regimes did not - could not - resort to all the dirty tactics that they certainly would have used had the incumbents run. In turn, these political openings have tended to galvanize the fractured opposition to successfully cooperate.

A ZANU-PF that is deeply unpopular, badly fractured among ethnic groups and between moderates and hard-liners (the expulsion of the information minister, Jonathan Moyo, is the beginning) and facing a reinvigorated opposition will not likely be able to effectively rig elections, let alone win the popular vote.

It will be critical, then, that presidential elections be held within a year of Mr. Mugabe's exit, before the regime has too much time to consolidate. If Mr. Mugabe's exit does not occur within that window before the 2008 elections, then international, and particularly regional, pressure will be crucial in forcing early elections.

Externally, Mr. Mugabe's exit may prompt genuine regional pressure. Analysts have long emphasized that international pressure requires the support of Zimbabwe's neighbors - especially South Africa - that have significant political and economic leverage. But to the great frustration of Western governments, southern African countries have thus far refused to publicly challenge Mr. Mugabe.

Their reluctance has much to do with Mr. Mugabe's status as a hero of Zimbabwe's anti-colonial struggle and a champion of liberation struggles elsewhere. Southern African nations will have much greater political room to apply real pressure on Zimbabwe when its leader lacks such credentials.

Simultaneously, the prospect of an altogether different level of violence might shake the complacency of southern African nations. Zimbabwe's implosion has not, thus far, been entirely bad for its neighbors. They have benefited from the elimination of economic competition and from the influx of professionals, and they have retained confidence that Mr. Mugabe can keep control.

But there is a real danger, if a post-Mugabe Zimbabwe is not handled adroitly, that elements of the opposition, disaffected war veterans and youth militia and losers in the ZANU-PF factional battle will take up arms and plunge Zimbabwe into civil war.

This specter should push neighboring countries to step up their efforts, especially to press the post-Mugabe regime to hold new presidential elections and encourage moderate elements within ZANU-PF.

Notwithstanding its occasional fulminations against Zimbabwe, the United States has failed in its efforts to unseat Mr. Mugabe's regime. The United States should focus now on his eventual exit by helping the MDC to overcome its bitter infighting and engaging Zimbabwe's neighbors, especially South Africa, in vigorous diplomacy, pushing them to prepare for the occasion.

The stakes could not be higher, for if the post-Mugabe period is the first genuine opportunity for political change in Zimbabwe, it may also be the last for some time.

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Pre-doctoral Fellow 2005 - 2006

Gideon Maltz is studying the role of presidential term limits in advancing democracy, strategies for more effectively enforcing term limits, and the question of term limits in the context of parliamentary systems. Gideon has worked as a Junior Fellow in the Democracy & Rule of Law program at the Carnegie Endowment for International Peace and as a Business Analyst at McKinsey & Company. He has also spent time working on comparative constitutionalism as a part-time consultant at the National Endowment for Democracy, on Sudan and Zimbabwe at the International Crisis Group, and on international trade at the law firm of Hogan & Hartson.

Gideon graduated with a B.A. in Ethics, Politics & Economics from Yale and is currently a third-year student at Stanford Law School. He is also a graduate fellow at the Stanford Center for International Conflict and Negotiation (SCICN).

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The war in the Democratic Republic of the Congo (DRC), which began in August 1998, is unprecedented-at times involving armies from eight African states. Soldiers from Chad are fighting alongside regiments from Namibia, Angola, and Zimbabwe in defense of President Laurent Kabila. And on offense, the two main rebel groups, the Congolese Assembly for Democracy (which is known by the acronym RCD) and the Movement for the Liberation of Congo (MLC), are backed by troops from Uganda and Rwanda. As Susan E. Rice, assistant secretary of state for African affairs, warned the House International Relations Committee in September 1998, "The fighting threatens regional stability, hampers economic progress, endangers the lives of millions of people, perpetuates human rights abuses, and impedes the democratic transformation of Africa's third-largest country." This war, Rice said, is potentially "among the most dangerous conflicts on the globe."

Yet, the war in Congo goes on almost unnoticed outside of Africa. While African heads of state spent much of the last year shuttling across the continent, wrestling with the crisis and searching for a peaceful solution, Congo has been largely missing from the agendas of the Western powers and multilateral organizations. Only in January, when the U.S. representative to the United Nations, Richard Holbrooke, taking advantage of his tenure as Security Council president to draw attention to Africa, did the war enter Western consciousness.

The conflict in the DRC is the first interstate war in sub-Saharan Africa since Uganda invaded Tanzania in 1978, and only the third since 1960. Although Africa is seen as a hotbed of violence and warfare, most conflicts have been intrastate in nature. Norms of sovereignty reinforced by clauses in the charter of the Organization of African Unity (OAU) and the constitutions of the various subregional organizations have effectively prevented cross-border conflict from the time of independence until now. The Ugandan and Rwandan-led invasion of Congo, as well as the presence there of the Southern African Development Community (SADC) intervention force, therefore represents a watershed in the recent history of African conflict. It appears that the forces preventing cross-border conflict since 1960 have become seriously weakened.

What are the implications of the rise of interstate war in Africa for peace and security on the continent? Why have Western powers been so reluctant to take an active role in resolving Africa's first "world war"? And what impact will the changing nature of warfare in Africa have on U.S. policy and the role of the United Nations there?

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Journal Articles
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World Policy Journal
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Challenging the literatures on war termination, civil war, and revolution--which typically dismiss the possibility of negotiated settlement--Stephen Stedman examines the problem of negotiations during civil wars and demonstrates that third party mediation can help resolve such conflicts.

Stedman analyzes four international attempts to mediate a settlement to the Zimbabwean civil war of the 1970s and compares the three failed negotiations--the 1974-1975 Kenneth Kaunda/John Vorster "detente" exercise, the Henry Kissinger mediation that led to the Geneva conference of 1976, and the Anglo-American initiatives of David Owen and Cyrus Vance in 1977-1978--with the successful 1979 Lancaster House Conference on Rhodesia, chaired by Lord Carrington. Drawing on primary sources not available previously, his discussion of the factors that distinguish the failures from the successful attempt is a major contribution to conflict resolution theory, particularly with reference to the work of William Zartman. A final chapter considers the lessons of the Zimbabwe experience for South Africa today.

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Books
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Lynne Rienner Publishers
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Stephen J. Stedman
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