Committee Reports > List of Committees > Joint > 1995 > Committee on Foreign Affairs > Report - Report on the Situation in Rwanda

JOINT COMMITTEE ON FOREIGN AFFAIRS

LIST OF MEMBERS

Sub-Committee on Development Co-operation

Terms of Reference

The Sub-Committee on Development Co-operation shall examine such aspects of

(a)Ireland’s relations with developing countries in the field of development co-operation, and

(b)the Government’s official Development Assistance Programme

as the Sub-Committee may select or as may be referred to it by the Joint Committee on Foreign Affairs, and to report thereon to the Joint Committee on Foreign Affairs, at least one report to be made annually on any aspect of its work as the Sub-Committee may choose.

The quorum of the Sub-Committee shall be three.

JOINT COMMITTEE ON FOREIGN AFFAIRS

SUB-COMMITTEE ON DEVELOPMENT CO-OPERATION

LIST OF MEMBERS

Introduction.

The genocide which was perpetrated in Rwanda following the attack on an aircraft at Kigali Airport in April, 1994, in which the Presidents of Rwanda and Burundi died, culminated in the accession to power of a new government. Despite the change of government, the situation in Rwanda continued to be a matter of international public debate, particularly in the wake of the killings at a refugee camp at Kibeho in South-West Rwanda in April, 1995. That incident, in which a considerable number of people were killed when the Rwandan Army attempted to return Hutu refugees to their original homelands, gave rise to considerable controversy.

Central to the subsequent debate was the question of whether or not aid channelled through the Government of Rwanda for rehabilitation and reconstruction should be suspended. EU aid, with exceptions in certain categories, was suspended. The EU Development Council decided on 1 June, 1995, in response to a motion tabled by Ireland that aid should be resumed. This decision was facilitated by the appointment by the Rwandan Government of an Independent International Commission of Inquiry into the events at Kibeho and the prompt and candid reporting of the Commission: these appear to be indicative of a willingness on the part of the Rwandan Government to deal openly and constructively with the problems facing the country, problems which are still enormous but which are attracting a decreasing level of attention from the communications media.

It was against this backdrop that a delegation of the Sub-Committee on Development Co-operation of the Joint Committee on Foreign Affairs decided that, in the course of a field trip to East Africa from 3 to 17 June, 1995, in the context of its review of the Government’s Bilateral Aid Programme, it should also witness at first hand some of the difficulties facing Rwanda and discuss the challenges with a representative selection of those seeking solutions.

The Delegation comprised the following Members:-

Mr. Pat Gallagher, T.D., Chairman of the Sub-Committee on Development Co-operation,

Mr. Michael Kitt, T.D., Vice Chairman of the Sub-Committee,

Mr. John Connor, T.D.,

Senator Thomas W. Enright,

Senator Michael O’Kennedy.

The full delegation travelled to Tanzania; the Chairman also visited Rwanda.

The delegation was accompanied by Mr. Martin Groves, Clerk to the Sub-Committee on Development Co-operation, (In Tanzania) Ms. Pauline Conway, Chargé d’Affaires, Irish Embassy and (In Rwanda) Mr. Kenneth Thompson, Counsellor, Department of Foreign Affairs.

The Delegation visited Kigali, capital city of Rwanda, and Benaco and Lumasi refugee camps at Ngara in North-West Tanzania.

The Delegation discussed the situation in Rwanda with:-

The Main Issues.

Refugees

It is estimated that since April, 1994, approximately 2.2 million people have left Rwanda to seek refuge in neighbouring countries. Approximately 700,000 refugees live in camps in the Kagera region of North-West Tanzania.

In Kagera region the Delegation visited Benaco and Lumasi camps, the populations of which are about 250,000 and 126,000 respectively. Living conditions in the camps are extremely poor. Distribution systems were well organised although difficulties with supply lines give rise to problems. Food is distributed through the commune system under which the camps are organised and which corresponds to the social structure under which the refugees had lived in Rwanda. Environmental damage is a major problem: deforestation on a huge scale has taken place in order to meet the demand for firewood of 1,100 tons per day. The refugees greatly outnumber the indigenous population and, consequently, there has been considerable pressure on local facilities and resources. An increasing crime rate has added to tension.

The question of the repatriation of refugees has become a major issue in the run-up to Tanzania’s first multi-party parliamentary and presidential elections which take place in October, 1995. The question of measures to alleviate the plight of the refugees within Tanzania is therefore politically sensitive.

The view of the Tanzanian government members was that, while their country has traditionally been open to refugees, the recent influx has been too large for the country to accommodate satisfactorily. Tanzania has had to close its borders to refugees for the first time. Humanitarian assistance to refugees is a short term remedy only: repatriation is essential to the long term resolution of the problem. To remove the main obstacles to the return of refugees - fear of reprisals arising from accusations of involvement in the genocide, pressure from hardline political Hutu elements to remain in the camps, the inability of the Rwandese justice and prison systems to deal with those accused of genocide - Tanzania, the Delegation was informed by President Mwinyi, is willing to detain those within its borders suspected of orchestrating the genocide in order to facilitate the return of other refugees to Rwanda.

The Government of Rwanda sees the repatriation of refugees and their inclusion as equals in Rwandese society as essential to the security of the country. The refugees are seen as hostages enhancing the power of the hardline Hutu elements who control the camps. The organisation of the refugee camps in line with the commune system within which the refugees had lived prior to the exodus serves to reinforce the control of the militant elements.

The assistance of the international community through NGOs would be required to overcome the major logistical problems involved in repatriation. The success, with the tragic exception of Kibeho, of the operation to restore to their home areas internally displaced persons from camps in Rwanda augurs well for a positive outcome to a well planned and resourced repatriation operation.

Institutional Rehabilitation.

In Kigali, the Delegation met chairmen of parliamentary committees at the National Assembly building which was the location of much of the battle for control of the city in 1994. The building was virtually a shell having been extensively damaged by artillery and gunfire. Office accommodation and equipment, transport and trained staff were badly needed. The parliamentarians themselves were inexperienced and in need of advice and training. Practical support for the development of an equitable system of parliamentary democracy in line with the spirit of reconciliation which underpinned the Arusha Accords was seen as essential to ensure the stability of Rwanda.

Also fundamental to the redevelopment of Rwanda, and a priority of the government, was the generation of confidence in a revitalised system of justice. However, the system suffers from a severe shortage of suitably qualified judicial and other personnel, many of whom were killed during the genocide. Lack of accommodation is a problem, particularly at the prisons which are grossly overcrowded with those awaiting trial for participation in the genocide. The establishment of a civilian police force would contribute to a return to normality. In this regard, it was considered that the experience of the Garda Siochána in Namibia would be of assistance.

Human Rights.

Strong regret was expressed to the delegation by members of the government of Rwanda regarding the killings at Kibeho refugee camp. It was pointed out as evidence of the government’s determination not to avoid its responsibility in this regard that it had appointed an Independent International Commission of Inquiry which had reported promptly and candidly. There was also acknowledgement that any repetition of such incidents would jeopardise the flow of aid for rehabilitation and reconstruction.

The appalling conditions in which prisoners are held was also acknowledged. However, the situation could be relieved by aid for the rehabilitation of suitable buildings and of the system of justice so that prisoners could be accommodated in less cramped conditions and brought to trial more quickly.

The right of returning refugees to reclaim the land which they had abandoned would be respected.

Security.

There was a clear consensus among those that the Delegation met in Kigali that arms were being accumulated in the refugee camps in neighbouring countries, particularly in Zaire, in preparation for an attack on Rwanda. While there were differing views on the state of readiness of the armed elements the view was expressed that such an attack could take place in a matter of months.

With regard to security within Rwanda Major-General Toussignant said that the new mandate of UNAMIR involved the phasing out of the force and that this would be completed by the end of 1995. The ability of Rwanda to assume effective control of the security situation will be affected by low army morale arising from the fact that the army is not being paid and suffers from a lack of equipment. NGO representatives have noted recently a deterioration in army discipline. The NGOs will continuously monitor the question of their involvement in Rwanda in the light of the safety of their workers in an evolving security situation.

In General.

The Delegation noted general agreement that the involvement of the international community is essential in the search for a sustainable long term solution to the problems of the situation in Rwanda. Positive assistance towards agreement, rehabilitation and reconstruction in Rwanda is required and activities which tend to undermine efforts to establish stability must be avoided.

The excellent work being carried out by the Irish NGOs in difficult circumstances impressed the delegation and is worthy of continued support.

The contribution of Ireland both in its practical assistance and through its influence in the European Union is clearly appreciated in Rwanda. It was evident that developments in the debate in Ireland on the situation are followed closely by the government in Kigali.

Recommendations.

The Sub-Committee on Development Co-operation recommends:-

1.that the Government provide practical support for the rehabilitation of parliamentary democracy in Rwanda in line with the agreements contained in the Arusha Accords;

2.that, in the light of fears of an escalation of violence emanating from refugee camps in neighbouring countries, the Government press for enhanced monitoring of human rights and security in the camps;

3.that the Government examine the possibility of providing practical assistance for any proposal to detain in Tanzania inhabitants of the refugee camps suspected of orchestrating the genocide and thereby to facilitate the return to Rwanda of those refugees considered to be innocent.

4.that the Government continue to assist efforts towards rehabilitation and reconstruction in Rwanda, particularly in the fields of education, health, agriculture and justice.