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The future of U.S. - Zimbabwe relations
Ambassador
Charles Ray, US Embassy
July 28, 2011
Thank you, Ibbo,
for your kind introduction.
Officials of
the Government of Zimbabwe,
Political party leaders,
Members of Parliament,
Scholars,
Captains of industry,
Members of the Press,
Friends,
Ladies and Gentlemen,
It is an honor
and a pleasure for me to be the featured speaker of today's
Dialogue on the Future of U.S.-Zimbabwe Relations. The question
of U.S.-Zimbabwe relations is timely yet complex; it is the subject
of extensive public debate and speculation. If pursued in the right
way, it can provide a foundation for a renewed partnership based
on mutual respect and common interests that can render both of our
countries more stable and prosperous.
Still, standing
before you today, I recognize fully that the future of U.S.-Zimbabwe
relations is not just a matter in the hands of the United States.
Standing before you as the sole speaker tonight, I am at a bit of
a disadvantage and am able to provide just one side of the story.
It is like hearing about the future of a marriage, with just the
husband providing his thoughts; like the path forward in a friendship,
from one single perspective; or the prospects of a joint venture
by just one business partner.
Fundamentally,
though, I stand here before you today recognizing fully that the
future of U.S.-Zimbabwe relations depends just as much on the intentions,
actions, and communication of Zimbabweans - within the government
and the public alike - as it does on the intentions, actions,
and communication from American counterparts. And so, it is with
that disclaimer that I will share with you all tonight, my thoughts,
and the sincere intentions of my government, on where we would like
to see this relationship go in the months and years to come.
I will be among
the first to recognize that the bilateral relationship today is
like a dysfunctional friendship or a faltering joint venture. Despite
a strong initial foundation, both sides have made mistakes along
the way. Both sides have hurt, and have been hurt. From both sides,
our actions and words have, at times, sought to cause pain.
And, for a while,
we were so steeped in our respective roles of sniping and accusing
that we lost sight of the bigger, broader areas of collaboration
and our mutual interests. Some of us - on both sides -
cut off communications at exactly the time when we needed to be
communicating more. As we reduced our interactions, nuance became
the first casualty. We adopted more absolutist vocabulary. Increasingly
we spoke about "They always do this . . . ," "they
are all this way . . . ," or "we never do that."
Over time, parts of the bilateral relationship showed signs of distress.
Through our actions and public statements, we seemed to actively
cultivate a loss of confidence between each other. While the people-to-people
relationships between our two great countries has continued to thrive,
at the government-to-government level both sides made mis-steps
and both sides are deserving of a share of the blame for the degraded
state of the formal bilateral relationship.
Today's
talk, however, is not about the history of U.S.-Zimbabwean relations,
but rather the future of our relationship.
While we should
maintain an honest and sincere perspective of where we have come
from and learn from our mistakes, we must also recognize that we
cannot change the past. Instead, we should focus on how to rebuild
each other's confidence to foster renewed relationships and
refocus on a positive way forward.
We hear a lot
these days about Zimbabwe's "re-engagement" with
so-called "western" countries. I tend to dismiss that
phrasing, because we have never stopped engaging: we have always
maintained full diplomatic relations, Zimbabwe has always had a
full Ambassador in Washington and I represent an unbroken continuum
of Ambassadors here dating back to independence. But, given the
clear degradation of the quality of our government-to-government
relationship, instead of focusing on "re-engagement,"
instead I think what is most important now is "recultivating
our partnership." That, I believe, should be the first step
in "The Future of U.S.-Zimbabwe Relations." As a first
step in that effort, it may be worth debunking some misperceptions
and clarifying with complete candor some key perspectives from the
U.S. side:
- The U.S.
does not favor any one party over another in Zimbabwe. We want
to see an environment where all parties have the same ability
to present themselves to the public and to compete to represent
the people in government.
- The U.S.
wants to see a non-violent and credible electoral contest and
for the people's will to be honored.
- It is not
for the U.S. or any other outsider to dictate or influence who
should make up the government; that is for the Zimbabwean people
alone to decide. As long as the process is credible and respected,
we do not care which party wins. Let me repeat that: "We
do not care which party wins, as long as the process is legitimate."
- The U.S.
fully believes that ZANU-PF will, and should, continue to play
an important role in Zimbabwe's future; we are not anti-ZANU-PF
and we do recognize the many achievements that ZANU-PF has had
over the decades for the good of the Zimbabwean people.
- At the same
time, we believe that MDC-T, MDC-N, and other political parties
also have critically important roles to play - possibly
in leading, but certainly in contributing to the country's
future. We value the role of these parties to ask tough questions,
to propose alternative views, and to challenge the way things
have always been done.
- We recognize
the value of the coalition government arrangement in bringing
diverse views together and we respect the government officials
who have engaged across party lines to foster Zimbabwe's
current recovery.
- Just as
we recognize that there are destabilizing extremist elements in
each of Zimbabwe's political parties, we also recognize
that there are progress-minded patriots in all parties across
the political divide. We welcome the opportunity to collaborate
closely with those committed to building strong national institutions
and moving the country forward, and we will continue to work to
minimize the negative effects of those intent on circumventing
the rule of law.
- We will
continue to press for the protection of human rights and accountability
for those who abuse them while acknowledge progress where it is
made.
- We fully
recognize the opportunities presented by Zimbabwe's current
economic recovery and the U.S. is actively working to draw the
attention of U.S. business to trade and investment opportunities
here.
- Finally,
as Zimbabwe's political parties implement fully the commitments
that they themselves have made in the Global
Political Agreement, as state institutions are delinked from
partisan allegiances, and as credible elections are held and honored,
there will be no reason for the United States to retain our current
sanctions policy in place.
I do not think
that any of these objectives is terribly contentious. I would argue
that those most likely to feel concerned when they hear some of
these statements are those who recognize the illegitimacy of their
positions of privilege or who recognize the abuses of authority
in their own records. Still, each of these positions is fully consistent
with the constitution and laws of Zimbabwe and I believe fundamentally
that the overwhelming majority of Zimbabweans - in politics
and otherwise - can agree to these principles. Putting all
of this together, I can easily envision U.S.-Zimbabwe relations
in the not-too-distant future that are comparable to U.S. relations
with any other partner in the community of nations:
- Open flows
of communications where we can share ideas, express concerns,
applaud progress, and disagree without being disagreeable;
- A strong
development assistance program in which U.S. assistance supports
intrinsically the government's development agenda and is
devised in close consultation with the Zimbabwean government;
- A gradual
transition from foreign-assistance-to-a-developing-partner to
robust economic-relations-with-a-prosperous-partner;
- Vibrant trade
and investment linkages with goods, services, experts, and tourists
flowing freely between our countries; and
- No sanctions
or restrictive measures in place because the rule of law is protected
by strong state institutions and respected across the political
spectrum.
The next question,
of course, is how do we get from where we are today, to this next
stage in U.S.-Zimbabwean relations? Again, I will address this from
the side of the intent and efforts of the United States.
The U.S. operates
from the fundamental assumption that the people and governments
of both the United States and Zimbabwe want to see a stable and
prosperous Zimbabwe. To achieve that goal, the U.S. focuses on several
major areas: developing and bolstering democratic institutions,
fostering economic growth and trade, supporting the provision of
social services, and providing humanitarian assistance to vulnerable
populations. In pursuing these efforts, we will continue to operate
exclusively in line with the law and constitution of Zimbabwe as
established through the will of the Zimbabwean people.
Since these
notions are still a bit vague, let me lay out some examples. I mentioned
that we are working to develop and capacitate democratic institutions.
As with many countries, the United States' approach to development
is informed significantly by our own experience of best practices
that have worked in our country. Over our 235 years of experience
we have seen that stability and good governance comes through a
transparent and accountable political system with checks and balances
on power and robust outside oversight through civil society and
the media.
We have learned
that when the strict differentiation between the political party,
the government, and the institutions of the state are breached the
public's interest begins taking a back seat to vested interests
of those in positions of power. We have learned this through trial
and error in devising remedies to the abuses of the system that
have been attempted over the years. These same protections: checks
and balances; a watchdog role by the non-governmental sector; and
the differentiation between party, government, and state, are all
also provided for under Zimbabwe's laws and constitution.
With fewer years
of experience as an independent state, more limited resources, and
two decades of Zimbabwe's post-independence history as a de
facto one-party state, some democratic institutions in Zimbabwe
have not thoroughly matured or even been established yet.
A major thrust
of U.S. efforts in and with Zimbabwe is to support these foundation
institutions: an activist parliament, independent courts, a responsible
media, a professional electoral commission, an apolitical military,
transparent civil society organizations, a non-partisan police force,
skilled regulatory bodies, and the like. These are institutions
that Zimbabweans - and the Zimbabwean government - have
established. They were established for a reason. We are not interested
in imposing our way on any of these groups and we fully understand
that Zimbabwe's democracy will have its own character and
will not be a duplicate of any other specific model from the U.S.,
Europe, or elsewhere. But still, these Zimbabwean institutions are
only as good as they can fulfill their mandates. So the role of
the U.S. partnership is to provide resources, expertise, recommendations,
and public goodwill to embolden and to enable these institutions
to play their role.
Let's
be clear, strong institutions make taking actions more difficult
and lengthier. While often frustrating, our experience has been
that that frustration is more than a reasonable cost to incur in
order to experience the benefit that these institutions bring in
preventing any one group from taking advantage of the broader society.
President Obama would almost certainly find it easier today to just
lift the U.S. debt ceiling, rather than have to negotiate a compromise
with Congress. President Nixon certainly was not a fan of a free
press when the Washington Post broke the story of Watergate. Whites
in the southern United States certainly were not impressed with
the Supreme Court when it ruled that segregation of the races was
unconstitutional. Don Rumsfeld certainly did not appreciate civil
society's insistence on establishing an investigation into
events at Abu Graib.
Strong democratic
institutions made life difficult for these individuals, but the
views of Obama, Nixon, Rumsfeld, or southern whites were not the
only views that mattered and history has shown time and again that
by having these institutions in place has made the country better
off. Similarly, there are, and will continue to be, those in Zimbabwe
who are less than thrilled with the extra scrutiny that their actions
face as the country's institutions become more robust. It
will be inconvenient. And our support to those institutions is not
meant or designed to inconvenience or penalize those individuals.
Instead, it is designed to serve the country and its citizens more
broadly through the laws and institutions that Zimbabweans have
put in place.
Another issue
that I believe would contribute to a stronger future relationship
is if both sides fostered a more open and issue-oriented communications
environment. Too often in the past, we have talked "at"
each other rather than with each other. In an environment where
all points of view can be freely expressed and candidly discussed
we can make real progress. Stifling opposing points of view, or
views with which we disagree; stifling free speech, only makes us
all less well informed.
I can think
of no better way of putting this than was expressed by former Iranian
President Mohammad Khatami in his inauguration speech before the
Iranian Parliament in 1997, when he said, "The most stable
and lasting system is the one which creates the least limitations
to freedom of expression. In my view, freedom means freedom of thought
and security to express those thoughts without fear of prosecution."
He went on to say, "A government's authority is not
realized by coercion or arbitrariness, but by legal acts, by respect
for rights and by encouraging people's participation in decision
making. People must believe that they have the right to determine
their own destiny and that there are limits to government. We must
try not to impose our personal preferences on our society at all
costs. The government should even protect the rights of its opponents."
If we can square this circle, we will go a long way to establishing
a relationship that addresses our mutual interests and needs in
a credible way.
I mentioned
the U.S. focus on fostering economic growth in Zimbabwe and the
expansion of trade and investment ties between our two countries.
Now I know,
I know, many of you are out there saying "oh come on, we all
know about your sanctions."
Yes, it is true,
Americans cannot do business with about 120 Zimbabweans, about 60
of the farms or companies they own, or a dozen public enterprises.
But let me say that if this economy is that dependent on 120 people
and a few dozen companies then we should be concerned about a lot
more than just sanctions. And as soon as the parties honor their
commitments under the GPA to allow for a return of the rule of law,
once state institutions are separated from partisan allegiances,
and once credible elections are held and honored, there will be
no reason to retain the few restrictions that are in place.
Still, the fact
is that the economy is much more vibrant than just the contributions
of these few people and companies. And, the U.S. is actively promoting
Zimbabwe's economic recovery. We have a highly successful
loan guarantee program to pump much needed capital back into the
agricultural sector to promote food security and help return Zimbabwe
to its rightful status as the breadbasket of the region. We are
working in the dairy, poultry, coffee, tea, and niche horticulture
sectors to add value to produce at the local level and establish
market linkages within Zimbabwe and outside.
We are working
within the Kimberley Process to reach a consensus agreement to allow
for Zimbabwe to export certified diamonds from Marange while ensuring
that the workers and local communities' rights are respected.
One of the efforts
that I am most excited about is my Embassy's work in promoting
more and better awareness among the American private sector of the
huge opportunities that exist for both of our countries through
expanded trade and investment relations. Earlier this year, my colleague
and I attended a major international conference on doing business
with Africa.
Over the course
of four days we spoke to hundreds of representatives from U.S.,
European, and African businesses and handed out information sheets
that started with "Zimbabwe is Open for Business." Given
the interest that we sparked from that event, we put on a trilateral
business dialogue in conjunction with the Corporate Council on Africa
and Business Unity South Africa where we brought together a dozen
firms each from the U.S., South Africa, and Zimbabwe in Victoria
Falls in June to talk about the opportunities for business here.
We had Microsoft, Proctor and Gamble, PriceWaterhouseCoopers, Cargill,
General Electric, and many other firms here to see for themselves
the prospects for business in Zimbabwe.
Building on the success of that event, we are now working with the
American Business Association in Zimbabwe - or ABAZ -
to assemble a delegation of Zimbabwean business leaders to attend
a U.S.-Africa Business Summit in Washington, DC. There, they will
lead a day-long seminar on "Doing Business in Zimbabwe"
that is expected to reach over 250 American firms and government
officials.
These kinds
of activities are only going to continue as we move forward. And,
again, we are eager to work closely with the business community
and Zimbabwean government across the political spectrum to find
new and collaborative ways to build on these efforts for the mutual
benefit of our two countries.
There is so
much more that we are doing, but I am conscious of the time and
want to allow plenty of time for discussion. And, let me just affirm
that, beyond the political and economic engagement that I have detailed
already, the U.S. will continue with our "bread and butter"
activities and partnerships with the Zimbabwean people.
We will continue
providing support for social service delivery and our commitment
to work with this government and civil society to support the health
sector, combat the scourge of HIV/AIDS, prevent the spread and effects
of malaria, provide textbooks to schools, bolster the health sector
institutions, and provide emergency assistance if and where it may
be needed.
We will continue
to advocate for the respect and protection of human rights, workers'
rights, and equal protection for women and children. We will continue
to speak out when state prosecutors pursue politically-biased agendas
and when the police are directed to serve as extensions of a party
rather than institutions of the state. We will continue to monitor
and bring to light all such abuses of the rule of law in Zimbabwe.
And, let me be clear. We do not monitor and produce reports on these
dynamics because we want to play "gotcha."
We don't
do it because we want to support any particular party or perspective
or because we want to score political points by casting blame. And,
we certainly don't do it because we think that we are devoid
of these very challenges in the U.S.; we are not.
Instead, we
advocate for these issues because it is the right thing to do to
make the country stronger. We advocate for the protection of rights
because Zimbabweans themselves have decided to enshrine these rights
and ensure for their protection in your own laws, constitution,
and international obligations. We highlight abuses not to accuse,
but to shed light on events so that they can be stopped. Our intentions
are not malicious, but rather are to provide incentives -
and often assistance - to help protect the human integrity
of all Zimbabweans.
Of course, the
United States is much more than just the United States Government
or U.S. Embassy. People-to-people relations between our countries
remain strong and I fully expect them to continue to flourish. Zimbabwe's
independence in 1980 occurred in the age of television and when
the American "baby boomers" were in their 30's.
As such, Zimbabwe's independence still retains a prominent
position in the memory of the American public who continue to feel
goodwill toward the country and its people. Americans remain in
one of the top positions in terms of numbers of tourists to Zimbabwe.
In the years to come, there are bountiful opportunities for further
partnerships between religious communities, youth organizations,
tourist travel, trade delegations, and the like. We can all play
active roles in promoting such interactions.
And so, in summary,
I fundamentally believe that the future of U.S.-Zimbabwe relations
is bright. While the path will not always be smooth, there is no
reason why it cannot always be on a positive trajectory. I see our
relationship being punctuated not by restrictions or impediments,
but by opportunities. The task is for each of us to seize them.
Whether you
prefer thinking about "re-engagement" or "recultivating
our partnerships," the first step is dialogue. As the personal
representative of President Obama in Zimbabwe, I take very seriously
his position of extending an open hand despite past disagreements.
The benefits of a better relationship are well worth the at-times-uncomfortable
conversations that may ensure. Still, the people of both of our
countries deserve better. And so, my message is the same to our
closest of friends and to those with whom we have had the most conflicted
of relationships:
If you are coming
from a position of sincerity and respect, my hand is open, my door
is open, and my mind is open. Let's have those tough conversations.
When we must, let's disagree, but do so without being disagreeable.
When we can, let's collaborate to advance our common interests.
But let us re-open those lines of communication that have closed
and rebuild the bridges of mutual confidence that we have allowed
to fall into disrepair for the people of both of our great nations.
Thank you.
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