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Aid to Rwanda should be conditional on the upholding of human rights and a no-tolerance approach to corruption, write Ivan Lewis and Ian Lucas.
The eastern provinces of the Democratic Republic of Congo have, for many years, posed one of the toughest challenges to international law and order. Following the horrendous Rwandan genocide in 1994 and consequential cross-border impact, perpetual conflict has led to 5.4 million people losing their lives, 2.2 million displaced civilians and a permanent humanatarian crisis. A culture of impunity has meant levels of sexual violence in Eastern DRC are among the worse in the world and such violence is systematically used as a weapon of war. Weak governance and the exploitation of the enormous mineral wealth the region holds have led to the emergence of a multitude of militia groups. Extreme poverty blights the lives and life chances of the vast majority of citizens.
After a three-year period of relative stability and closer security cooperation between DRC and Rwanda, the political and security situation in Eastern DRC has once again worsened during the past year. This was precipitated by an armed rebellion by a breakaway militia from the DRC army, the M23 group which has close links to Rwanda and seized the regional capital of Goma. This happened despite the presence of MONUSCO, the largest UN peacekeeping force anywhere in the world, consisting of 17,000 troops. Unfortunately, when tested on this occasion and others the force has failed to maintain security and protect the civilian population.
Only a coherent strategy combining security, a regional political process and sustainable long-term development has the possibility of achieving change in eastern DRC. In this context it is essential that the international community supports the implementation of the Peace, Security and Cooperation Framework (PCSF) initiative which attempts to bring stability and prosperity to eastern DRC. This was agreed in February 2013 and signed up to by 11 countries. The deployment of an additional African Union brigade with a more assertive mandate to strengthen UN forces together with appointment of Mary Robinson as the UN Secretary General's special envoy also offer a glimmer of hope.
Crucial to any progress in Eastern DRC is the DRC's relationship with Rwanda. The UK and Rwanda enjoy a close relationship built on partnership, trust, and respect. We recognise the horrendous and long-term scars caused by the Rwandan genocide and the significant progress the government of Rwanda led by President Kagame has made to generate substantial economic growth and reduce poverty. Rwandans value their relationship with the UK, both with this Tory-led Government and its Labour predecessor.
This relationship, however, has been tested by the suspension of UK general budget support to Rwanda in November 2012. This decision was rightly made in response to a report by the UN Group of Experts which alleged that ministers in the Rwandan government had been supporting the M23 rebels in eastern DRC.
This involvement was a breach of the partnership principles which underpin the rules by which general aid from UK to Rwanda is dispersed. These principles include a commitment by the Rwandan government to take strong action to tackle corruption, to extend accountability and transparency to their citizens, and to adhere to international obligations to respect human rights and to support peace. The British Government has made it clear that any decision to reinstate general budget support to Rwanda must clearly be informed by these partnership principles. That is why we opposed Andrew Mitchell's premature reinstatement of general budget support and welcomed Justine Greening's reversal of his decision.
Ongoing concerns relating to the registration of opposition political parties and lack of an open political culture in Rwanda has also challenged Rwanda's adherence to the partnership principles. At this crucial time, the UK should take steps to support Rwanda's progress to a more open political culture. It is unclear whether Justine Greening raised these concerns with President Kagame during her recent, low-profile visit to Kigali.
It is essential that any decision to restart direct UK funding to the Rwandan Government must be conditional on the partnership principles being upheld. More specifically, Labour will only support the reinstatement of direct UK funding if it can be demonstrated that for at least a 12-month period no direct or indirect support has been provided by the Government of Rwanda to militias operating in DRC. Recent press reports suggest an updated UN report which has not yet been published will state such support has continued, albeit on a smaller scale. This would be unacceptable. In addition, we want the Government to make it clear publically that should President Kagame seek to change the Rwandan constitution at any stage in order to seek a third term of office in 2017, this would raise serious questions about the future of UK support. We would urge other donors to send the same message.
Despite the inherent risks, Labour continues to support the concept of general budget support as a key element of progressive development policy. Supporting Governments to build effective state institutions is a key element of achieving long-term sustainable change. However, there should be more stringent conditionality than there has been under successive British governments, specifically in relation to human rights and corruption.
It is indisputable that under President Kagame's leadership Rwanda has achieved levels of growth and poverty reduction which compare favourably with anywhere in the world. However, Labour and the Tories have been wrong to give him and other leaders "donor darling" status. Too often it can fuel in those leaders an unhealthy belief that their allies will look the other way, however unacceptable their behaviour.
Equally, the DRC leadership should not suggest all their problems are connected with Rwandan interference in the East of the country. It is time they started taking responsibility for improving the lives of their citizens. It is also time donors including the UK showed leadership and moved from perpetual humanitarian assistance to a development plan which matches the scale of the challenge. The UK occupies a pivotal position and should work with neighbouring countries and the international community to deliver long overdue change. The people of Eastern DRC deserve better.
Ivan Lewis is shadow secretary of state for international development and MP for Bury South; Ian Lucas is shadow minister for Africa and the Middle East and MP for Wrexham.
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