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UK Arms Exports to Zimbabwe
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Introduction | Minority Rule | Mugabe’s Zimbabwe | Democratic Republic of Congo UK Arms Embargo | Reasons for Retaining UK Arms Embargo | References | Acronyms
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The events of early 2000 threw the country’s troubles into such sharp
relief that even the usually somnolent western media could no longer
ignore the situation. The referendum that resoundingly rejected the
government’s draft constitution, the burgeoning opposition to the ruling
ZANU party, the land seizures by government supporters, the refusal
of the authorities to evict the squatters, the intimidation primarily
by government supporters during the elections and the potential two
years of uncertainty before Presidential elections, all suggest that
Zimbabwe is on the brink of immense change. After 20 years in power,
Robert Mugabe seems to be losing control.
Mr Mugabe is President of a country in
which half of the adult population is unemployed and inflation is soaring.
The average Zimbabwean is poorer now in real terms than at independence
in 1980 (The Economist 8.5.2000). A disastrous combination of drought,
a failed IMF structural adjustment programme and high ‘defence’ spending
have all contributed to the economic breakdown. Mugabe’s prosecution
of an aggressive war in the Democratic Republic of the Congo (DRC) continues
in the face of criticism from home and abroad. The army is profiting
directly from the intervention in the DRC and the military establishment
is consolidating its power and threatens democratic government.
Despite all this, until May 2000 the UK
government chose to continue to export high-technology munitions to
the Zimbabwean government. This report attempts to present the arguments
against renewing arms exports to Zimbabwe. The arguments demonstrate
how exports would be contrary to a responsible foreign policy and how
the granting of licences would contravene both UK guidelines and the
EU Code of Conduct on Arms Exports, of which the UK is a signatory.
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In 1965, Ian Smith, leader of the Rhodesian
Front (RF), declared the country, then called Southern Rhodesia, independent
in order to maintain white minority rule. The declaration contravened
British colonial authority and was not recognised internationally.
Rhodesia became an outcast and, like South Africa under apartheid, the
RF government was subject to economic sanctions by the UN.
Following a split in 1963, there were
two main African nationalist movements: Robert Mugabe’s Zimbabwe African
National Union (ZANU) and the Zimbabwean African People’s Union (ZAPU)
led by Joshua Nkomo, then in exile in Tanzania. ZANU/ZAPU were defined
partly, though not entirely, on ethnic grounds, with ZAPU being strongest
among the Ndebele minority and ZANU a Shona movement. Through the years
of white minority rule, nationalists gradually escalated their armed
struggle, from a bombing campaign against key elements of the infrastructure
in 1963-4, to guerrilla warfare based in neighbouring Mozambique.
The history of the arms trade to Zimbabwe
reflects political developments in the country and the region, but also
a changing international context. Prior to independence in 1980, trade
was defined by the imperatives of the Cold War. Though western countries
officially did not trade with either side in the conflict, the RF government
received a steady supply of essential materials, including the armaments
with which to prosecute the war, and found markets for its own exports
through clandestine trade with South Africa and with private companies
using South Africa as an intermediary. UK-owned oil came to Rhodesia
from South Africa and US companies bought chrome from the Rhodesian
government. UK arms companies violated UN sanctions and sold aircraft
and other armaments to Rhodesia throughout the conflict (Peoples News
Service 30.10.1979). In 1974 the RF government received 41 Centurion
Tanks from Jordan via South Africa. In 1976, Ian Smith declared that
Henry Kissinger had promised US support for his government, though this
was subsequently denied by the White House.
The nationalist guerrillas, by the fact
of their opposition to colonialism, received most of their support from
countries aligned with China and the Soviet Union, including independent
African states with socialist regimes. The USSR backed Nkomo, so China
backed Mugabe (Army equipment is still mostly Chinese). Early on in
the conflict, in 1966, ZIPRA guerrillas (the military wing of ZAPU)
and ZANLA guerrillas (the military wing of ZANU) received training from
Egypt and China. The Mozambiquan pro-independence guerrillas, Frelimo,
also gave Zimbabwean fighters the training necessary to conduct a protracted
struggle when it became apparent that Zimbabwean majority rule would
require a long war. In 1976 they received Russian-made rocket launchers
from Tanzania. East German training for ZANU fighters was expanded
in 1979, when the Russians also provided artillery and surface-to-air
missiles. Other countries which sent military aid or provided training
included Romania, Cuba, Algeria and Yugoslavia.
Against the trend of Western support for
Rhodesia and Eastern-bloc support for the nationalists, it should be
noted that the Scandinavian countries assisted the Zimbabwean guerrillas,
though this consisted mostly of humanitarian and medical supplies (Seidman,
Martin and Johnson 1982). The Thatcher government came to power in the
UK in 1979 with the intention of recognising a power sharing arrangement
between the Rhodesian Front and Rev. Muzorewa, one of the few black
politicians who would work with them. Only economic pressure from Nigeria
convinced the UK that a government which included Ian Smith would not
be politically viable. The following year, after almost 15 years of
bitterly-fought guerilla war, majority rule was secured and Zimbabwe
was officially accepted as an independent nation state. At independence,
there were still thousands of combatants to disarm and reintegrate into
peacetime society. The years of war left the country saturated with
weapons.
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The legacies of the period of illegal
white rule and armed resistance continue to influence Zimbabwean political
and military affairs to the present day. The current military and political
elite contains many veterans of the independence struggle, including
the country’s leader (first Prime Minister and then President) since
independence, Robert Mugabe. Contemporary political divisions have
their origins in the 1963 nationalist movement split. This split also
gave birth to civil unrest in Matabeleland after independence. This
continued well into the 1980s, stunting the economy and breeding distrust
of the newly formed national army among civilians.
ZANU won the country’s first elections
and came to power with Canaan Banana as President and Robert Mugabe
as Prime Minister. The new government took a conciliatory approach
to the status quo both within its own country and internationally.
It did not seize the assets of wealthy settlers as white Rhodesians
had feared. Mugabe pledged to honour all debts and loans of the previous
regime, except those owed specifically for the munitions of the Rhodesian
army. The ex-combatants had to be disarmed and retired in huge numbers
and the new national army formed out of those remaining.
In March 1980, the UK agreed to provide £75 million in training and
aid to the Zimbabwean army. That same year, Mugabe turned down a deal
for Soviet-built hardware that had been brokered by Joshua Nkomo, declaring
that he did not want to enter into the ongoing trade relationship of
buying spares and hiring Soviet instructors that this purchase would
necessitate (The Guardian 11.6.1980). The following year, British Aerospace
sold eight Hawk Jets to Zimbabwe for £20 million, thus cementing the
relationship and effectively bringing Zimbabwe ‘on side’ in the battle
for influence over the developing world. The Zimbabwean military continued
to buy UK planes throughout the 1980s, including six Hawker Hunters
and additional Hawk jets to replace some which were destroyed in 1983
by arsonists. This arsenal was augmented in 1985 by the purchase of
seven additional Hawks and 13 Hawker Hunters.
In the mid-eighties Zimbabwe received
a large shipment of arms from Poland and other eastern bloc countries.
It also negotiated with the Soviet Union for the purchase of MiG-29
fighters but, in 1987, turned down the deal. During 1987, the UK government
offered Harrier and Hawk jets to Zimbabwe, possibly with the express
intention, and certainly with the effect, of heading-off the deal with
Moscow. Zimbabwe cancelled a further £400 million in orders for Soviet
Union arms in 1992.
Mr Mugabe’s 1980 decisions regarding UK or Soviet arms purchases can
be seen to have two distinct meanings, one primarily international and
one of internal significance. Firstly, the decision to buy British
and not to have a direct relationship with Moscow can, as indicated
above, be viewed as a means of aligning Zimbabwe with the West. Mugabe’s
statement suggested that the purchase of arms was not merely about the
particular hardware acquired, but about the establishment of international
relationships.
The second way in which this event was
indicative of broader trends lay in Mugabe’s rejection of Joshua Nkomo
as a legitimate leader in the new administration. Increasingly the
members of ZAPU felt disenfranchised by the ZANU government. The ZANU
decision to stand alone for the general election rather than on a joint
ticket with ZAPU came as a shock to many from ZAPU who had worked alongside
ZANU during the war of independence. Those who had trained and fought
for ZIPRA felt under-represented in the army. When a special presidential
guard, the 5th Brigade, was trained by North Korea, Mugabe stated that
one of its purposes would be to counteract ‘dissidents’, obliquely referring
to the growing unrest among ex-ZIPRA fighters and their leaders (The
Times 30.10.1981). Mugabe accused Nkomo and ZAPU of plotting to undermine
the new government and the discovery of stored armaments on ZAPU property
in 1982 seemed to confirm this. There followed a campaign of anti-government
guerilla activity between 1982 and 1987 in Matabeleland. A small number
of ex-ZIPRA guerrillas took up arms again, now against their former
allies. There is some evidence that tensions between the nationalist
groups was exacerbated by South African operatives deliberately attempting
to destabilize the new nation. But while some of the dissidents were
supported by South African arms, many ex-ZIPRA guerrillas were persecuted
in the national army (the ZNA), and felt they had been driven to take
up arms in defence of their lives.
The ZNA dealt with the uprising in much
the same manner that the Rhodesian army had dealt with them when they
were guerrillas. The 5th Brigade of the ZNA engaged in indiscriminate
intimidation and killing of civilians in the areas where the dissidents
were thought to be active. There was a total suspension of civil rights
in these areas and as complete as possible news blackout over the entire
situation. These events continue to be significant because they established
a precedent in Zimbabwe for large-scale internal repression by the security
services. This has been borne out in the army’s subsequent responses
to civil protest and to the members of the press who report civil rights
violations.
From the outset, Zimbabwe had a very large military establishment for
a country of its size, with 15% of the budget devoted to military spending
and 60,000 personnel (Jane’s World Armies, May 1998). The current figure
for personnel is 40,000, compared to 5,000-22,000 for other Sub-Saharan
African countries of similar populations, excluding Angola (International
Institute for Strategic Studies, October 1999). This military emphasis
suggests that the ZNA has burdened the developing economy and arms purchases
have soaked up large amounts of public money. Despite this, Zimbabwe
did manage to achieve dynamic economic growth during years of relative
peace in the mid-nineteen nineties. However, implementation of an IMF
structural adjustment programme failed to deliver economic stability
and growth, and bad droughts coupled with recession in the West meant
that the promise of prosperity was short lived. Recent years have seen
a combination of worsening economic conditions and escalating military
involvement in the conflict in the neighbouring Democratic Republic
of the Congo. Once again the country’s future looks precarious.
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The conflict in the DRC has
been called Africa’s first continental conflict as it has gradually
drawn countries from all over the continent into its labyrinth of alliances.
In the aftermath of the Rwandan
genocide of 1994, many of the Hutu militiamen, the interahamwe, escaped
into then-Zaire and fought alongside the rebels of the Alliance des
Forces Democratiques pour la Liberation du Congo-Zaire, led by Laurent
Kabila, in return for being allowed to remain. Kabila’s 1997 rise to
power in Zaire (which then became the Democratic Republic of the Congo)
is therefore necessarily linked to the ousted Rwandan regime which orchestrated
the 1994 massacre. Rwanda, now under RPF leadership, and Uganda are
fighting on the side of Congolese rebel movements against Kabila. Angola,
Chad, Namibia and Zimbabwe are actively involved in supporting the current
DRC regime. Kabila has no substantial army of his own and is dependent
upon the involvement of outside armies for his political survival (BBC
Online 23.6.1999).
Zimbabwe has been involved in the conflict in the Democratic Republic
of the Congo since the mid-1990s in support of the Kabila regime. Though
the government denies it, it is known that Zimbabwe sent a steady supply
of stockpiled North Korean weapons to Kabila’s rebels before they came
to power. Zimbabwe has been openly involved in the conflict since Kabila
ousted the former dictator Mobuto Sese Seko in 1997 (Jane’s World Armies,
May 1998).
At the end of 1999, Zimbabwe
had an estimated 11,000 troops fighting in the Congo and had incurred
losses of close to $200 million-worth of equipment since the start of
the conflict (BBC Online 1.10.1999 and 25.11.1999. Also see CAAT report
‘Small Arms and Africa’). The Zimbabwean government estimates the cost
of this involvement at $3 million per month. This is a price that the
country, in the midst of a gruelling recession with unemployment above
50% and inflation running at around 57% (The Guardian 21.1.2000), can
ill afford. In summer 1999, Zimbabwe defaulted on its loans from the
IMF, and the IMF initially suspended an emergency loan of $193 million
because of evidence that Zimbabwe was stepping up its involvement in
Congo (BBC Online 4.10.1999). There has also been tension over internal
Zimbabwean government documents which estimate the cost of the war at
around $27 million-per-month – nine times the $3 million-per-month cost
publicly declared to the IMF – though the government has described this
as a mistake made in converting Zim-dollars into US dollars.
In order to meet the costs
of the conflict, the army has set up self-administered commercial operations
in the DRC. For services rendered, the Kabila regime ceded Zimbabwe
the rights to a variety of economic concerns in Congo, including half
a million acres of farmland, and copper, gold and diamond mines. But
while the army declares that it is doing this so as to prevent its operations
in Congo being a burden on the Zimbabwean treasury, the outcome is that
‘generals, political allies and relatives have made small fortunes’
(The Guardian 20.1.2000a). The possession by the army of these lucrative
enterprises had led to speculation about the likelihood of a coup or
other destabilising events resulting from top-heavy military power and
wealth (The Guardian 20.1.2000a).
In July 1999, the Zambian government brokered a ceasefire agreement,
known as the Lusaka accords, which was signed by Angola, Namibia, Rwanda,
Uganda and Zimbabwe. It made provision for the UN and the Organisation
for African Unity to constitute and deploy an appropriate peacekeeping
force; the parties in the conflict were to be responsible for setting
up a Joint Military Commission to conduct peacekeeping operations until
the UN force could be deployed. In November, with almost all the provisions
of the agreement unmet, the UN Secretary General recommended that the
mandate of the ceasefire be extended until 15 January 2000. In February
2000 the UN authorised a 5,500 strong UN peacekeeping force, but continued
failure to secure adequate security and cooperation guarantees meant
that there was still no deployment by August.
The continuing presence of
foreign forces in DRC has been widely condemned by the international
community. The United Nations Security Council, in a resolution passed
in April 1999, called for the withdrawal of all foreign forces from
the country. Their presence, in contravention of the Lusaka accords,
stymies any movement forward in the peace process and complicates all
attempts to resolve this conflict.
Even during the Zimbabwean
elections in June 2000, Kabila was meeting President Mugabe and Sam
Nujoma, the President of Namibia. Following the summit, Kabila indicated
that foreign troops would remain in the country as long as there was
a military threat to his government (BBC Online 25.6.2000).
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Following Zimbabwe’s intervention
in the DRC in August 1998, there was, according to Foreign Office Minister
Peter Hain, a ‘very clear change of policy’ regarding the licensing
of equipment for ‘aggressive ends’ (Quadripartite Committee 17.7.2000).
However, there was no formal or informal embargo, and licences for components
for military goods continued to be granted. The DRC conflict dragged
on, and in June 1999 the Presidency of the EU issued a Declaration committing
Members States to ‘rigorous application’ of the EU Code of Conduct regarding
the region. Again, there did not appear to be any substantial change
in UK arms export policy (Quadripartite Committee 17.7.2000).
In January 2000, The Guardian
broke the news that Prime Minister Tony Blair had pushed through licences
for controversial arms sales to Zimbabwe (The Guardian 20.1.2000c).
Mr Blair determined, against public opinion and the recommendation of
his own Foreign Secretary, that British Aerospace could sell spare parts
for Hawk fighter jets to the Zimbabwean government. On 24th February
2000, the government duly announced that seven licence applications
for Hawk spares would be granted.
It was well known that Hawk
fighter jets had been, and could again be, used for bombing raids in
the DRC Conflict. Regardless of the presence or lack of an arms embargo
on Zimbabwe, the licensing of Hawk spares blatantly contravened both
UK and EU guidelines. Tony Blair argued that the UK had commercial
obligations to fulfil a contract originating before the Labour government
came to power, however, these obligations could have been overridden
by a ministerial licensing decision (Quadripartite Committee 17.7.2000).
Business interests appeared to be the determining factor for government
policy.
On 3rd May 2000, Robin Cook
announced that the UK government would ‘refuse all new licence applications
for exports of arms and military equipment to Zimbabwe’, and that this
would ‘include all licences for spare parts in connection with previous
contracts’ (Hansard 3.5.2000, col 150). He also reported that the Secretary
of State for International Development had suspended the department’s
support for Land Rovers for the Zimbabwean police, halting the supply
of the remaining 450 vehicles. Nine days later Mr Cook announced that
all extant licences would be revoked (Hansard 12.5.2000, col 493).
Of the seven Hawk spares licences granted in February, most of the goods
of one licence had been exported and approximately 20% of another.
The other five were returned unused (Quadripartite Committee 17.7.2000).
Important questions need
to be asked about what changed between January and May 2000 that caused
contractual obligations, which had been so compelling before, to vanish
into thin air. Certainly, civil unrest during early 2000 escalated
to the point that even members of the elite began to be affected by
it, notably white landowners whose farms were illegally squatted by
Mugabe’s supporters. Presumably this, or the media storm associated
with it, provided the motivation for an embargo that civilian lives
in the DRC could not.
There is no reason why a
similar sequence of events should not happen again, though next time
it might pass unnoticed. The Quadripartite Committee (a joint committee
consisting of the Defence, Foreign Affairs, International Development
and Trade and Industry committees) suggested that, but for a leak, the
issue might not have become known until the end of 2001. To address
this lack of transparency it proposed that a system of prior scrutiny
of arms export licences, operated by the Quadripartite Committee, should
be ‘put in place forthwith’.
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It is laudable that the
UK government finally decided to stop granting export licences to UK
firms to sell arms to Zimbabwe, even though it was extremely late.
The following analysis provides reasons why the UK in particular, and
the West in general, should continue this embargo.
Zimbabwe is currently involved in an illegal war in the Democratic Republic
of the Congo, a war in which the presence of foreign troops has been
condemned by the UN Security Council and Secretary General. The continued
active presence of 13,000 Zimbabwean troops (The Observer 6.8.2000)
also goes against the Lusaka accords of which Zimbabwe is a signatory
and which call for the withdrawal of all foreign troops from the DRC.
This activity should prohibit
arms exports under both UK and EU guidelines. The UK government’s ‘Criteria
used in considering conventional Arms Export Licence Applications’ state
that ‘The need not to affect adversely regional stability in any significant
way’ will be considered, and that ‘The Government will not issue an
export licence if there is a clearly identifiable risk that the intended
recipient would use the proposed export aggressively against another
country’. The EU Code of Conduct on Arms Exports specifies in criterion
4 that countries exporting arms must account for the preservation of
regional peace and stability when they grant export licences (Department
of Trade and Industry, March 1999).
In addition to issues concerning
the present stage of the DRC conflict, Zimbabwe has also been accused
by the United Nations of illegally exporting landmines and of supplying
arms to Laurent Kabila’s forces while he was in opposition, though the
government denies this (Jane’s World Armies, May 1998). Zimbabwe’s participation
in the war in the DRC clearly makes it a country ineligible to receive
arms from the UK or other EU member states.
The UK Criteria also state that ‘The Government will take into account
respect for human rights and fundamental freedoms in the recipient country’,
just as criterion 2 of the EU Code of Conduct states that ‘the respect
of human rights in the country of final destination’ is a necessary
condition for granting arms export licenses. Internal human rights
abuses, including a shoot to kill policy used against demonstrators
resulting in at least ten deaths, the use of leg-irons in prisons and
the arrest and torture of journalists (Amnesty International, 1999,
p 370), mean Zimbabwe should be ineligible for arms exports from the
UK or other EU countries.
Zimbabwe has always laboured under the burden of a large military
establishment, but recently the power of the military establishment
has increased in some alarming ways. The army is profiting directly
from the lucrative business interests it now administers in the DRC
as a result of its support for the Kabila government. While the official
explanation is that this will absorb the cost of the war effort, it
also functions as a way of consolidating military power separately from
the civilian government. At a time when Zimbabwe is facing economic
crisis and an approaching change in leadership, this growing army power
must be viewed as dangerous, as well as corrupt self-interest.
In 1998, an attempted coup
by the army was reported in Zimbabwe’s Standard newspaper. The army
responded by kidnapping two journalists from the paper and torturing
them. Mr Mugabe reacted by stating in a radio interview that he cannot
be held responsible for the army’s treatment of journalists who spread
‘blatant lies’ which damage the nation. ‘I will not condemn my army
for having done that when they are being provoked,’ he concluded (Media
Institute of Southern Africa 28.1.2000). The possibility of a military
take-over in Zimbabwe has loomed large enough on the horizon for the
UK’s Foreign and Commonwealth Office to circulate a report in January
2000 entitled ‘A Coup for Zimbabwe?’, written by Peter Longworth, the
British High Commissioner to Harare (The Guardian 20.1.2000b).
The maintenance of democratic
civilian rule in Zimbabwe is essential to the hopes of establishing
peace and promoting growth in Southern Africa. The influx of arms to
an unstable and rebellious military is not in line with the ideals of
a responsible UK foreign policy.
by Zimbabwe was 5% of GDP in 1998 – above the average for Sub-Saharan
Africa (4.3%) and far above the IMF-recommended maximum of 2%. It is
a ridiculously high figure for a country facing no external threat.
The country is in the midst of its worst recession since independence
with over 50% unemployment and inflation approaching 60%. With the
World Bank and IMF seeking to impose strict public spending limits in
return for economic assistance, the services most needed by the poor
of this country are already under severe pressure, regardless of a war
no one can afford to fight.
In August 1999 Shigemitsu
Sugisaki, deputy director of the IMF said that ‘Directors (of the IMF)
noted the risks that Zimbabwe’s military involvement in the DRC posed
to fiscal and balance of payments performance, and the stabilisation
[of the economy] ... ’ However, the war continues. Zimbabwe points to a
promise by Kabila to defray the costs of their involvement in the war,
but it is difficult to imagine this materialising in the near future
(South African Business Day 4.8.1999).
The export of arms to an
impoverished country whose government is pursuing an aggressive foreign
war, can have no ethical excuse. What Zimbabwe sorely needs is assistance
to heal the economy, support for national reconciliation and pressure
for the regime to withdraw from its involvement in the DRC.
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- Democratic Republic
of the Congo
- European Union
- International Monetary
Fund
- Rhodesian Front
- Rwandan Patriotic Front
- United Nations
- military wing of
ZANU
- Zimbabwe African National
Union
- Zimbabwean African
People’s Union
- military wing of
ZAPU
- Zimbabwean National
Army
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