2008 Zimbabwean political negotiations

The 2008 Zimbabwean political negotiations between the opposition Movement for Democratic Change (led by Morgan Tsvangirai), its small splinter group, the Movement for Democratic Change - Mutambara (led by Arthur Mutambara), and the ruling Zimbabwe African National Union – Patriotic Front (led by Robert Mugabe) – are intended to negotiate an end to the partisan violence and human rights violations in Zimbabwe and create a framework for a power-sharing executive government between the two parties. These negotiations followed the 2008 presidential election, in which Mugabe was controversially re-elected, as well as the 2008 parliamentary election, in which the MDC won a majority in the House of Assembly.

Preliminary talks to set up conditions for official negotiations began between leading negotiators from both parties on July 10, and on July 22, the three party leaders met for the first time in Harare to express their support for a negotiated settlement of disputes arising out of the presidential and parliamentary elections. Negotiations between the parties officially began on July 25 and are currently proceeding with very few details released from the negotiation teams in Pretoria, as coverage by the media was barred from the premises where the negotiations took place. The talks were mediated by South African President Thabo Mbeki.

A final deal was reached on September 11, 2008, providing for Mugabe to remain President while Tsvangirai would become Prime Minister. The deal was signed on September 15; negotiations continue regarding the composition of a new Cabinet.

Details of the talks

Preliminary negotiations

Mbeki met with Mugabe on July 5; Arthur Mutambara, Welshman Ncube, and Priscilla Misihairabwi-Mushonga of the MDC-Mutambara group also participated in the discussions. Although Tsvangirai's MDC organisation was not invited to participate, it declined to do so, reiterating its refusal to recognize Mugabe as President and saying that discussions should take place only in the presence of an AU-appointed mediator. Mbeki nevertheless expressed hopes that Tsvangirai's party would participate. Patrick Chinamasa stressed that the government was committed to dialogue with both MDC groupings, but said that Tsvangirai had committed "an act of utter disrespect" by failing to appear at the talks. Mutambara also stated that the involvement of all parties was necessary. [http://english.aljazeera.net/news/africa/2008/07/20087514183290459.html "Mugabe meets opposition faction"] , Al Jazeera, July 5, 2008.]

Talks between the parties began in Pretoria on July 10. ZANU-PF and both MDC groupings were present for the talks, although Tsvangirai said that his group's delegation, led by Biti, was present in order to explain its conditions for negotiations—which included an end to the violence, the release of MDC prisoners, and the appointment of an AU envoy— not to actually participate in negotiations. [Nelson Banya, [http://www.iht.com/articles/reuters/2008/07/10/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Zimbabwe opposition denies negotiations started"] , Reuters ("International Herald Tribune"), July 10, 2008.] Chamisa described the discussions as merely "talks about whether to have talks, really just a consultation". ZANU-PF was represented in the talks by Chinamasa and Goche. [Barry Bearak, [http://www.iht.com/articles/2008/07/10/africa/11zim.php "Zimbabwe opponents begin talking about talks"] , "International Herald Tribune", July 10, 2008.]

In a report from the Human Sciences Research Council, a policy group in South Africa, that was released on July 10, Peter Kagwanja wrote that violence perpetrated against ZANU-PF by MDC supporters, which he described as having previously been spontaneous, was becoming more organized, and he warned that this increased the possibility of a civil war. Chamisa, however, denied that the MDC had been responsible for any violence. [ [http://www.iht.com/articles/ap/2008/07/10/news/Zimbabwe.php "Zimbabwe opposition, gov't talk in South Africa"] , Associated Press ("International Herald Tribune"), July 10, 2008.]

On July 11, the MDC said that Gift Mutsvungunu, a party official, had been found dead near Harare on the previous day; his body was said to be burned and his eyes gouged out. The MDC suspected the security forces of responsibility for this killing, and the party said that its total number of dead during the violence had reached 113. [ [http://www.iht.com/articles/reuters/2008/07/11/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Fresh violence clouds early Zimbabwe talks"] , Reuters ("International Herald Tribune"), July 11, 2008.] Chamisa said on July 13 that no agreement had been reached and that the two sides "still have to clear the course for meaningful talks". According to Chamisa, violence against MDC members and supporters was continuing, and he said that it was "difficult to engage in meaningful dialogue" under the circumstances. Zimbabwe's "Sunday Mail", however, reported on the same day that an agreement had been reached on a "working framework" for talks. [Nelson Banya, [http://www.iht.com/articles/reuters/2008/07/13/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "MDC says Zimbabwe talks in stalemate"] , Reuters ("International Herald Tribune"), July 13, 2008.]

14 MDC activists, who were being held on charges of violence, were acquitted and released on July 14, according to the MDC. This followed the death on the same day of a police officer who was the key witness against the activists. [ [http://www.iht.com/articles/ap/2008/07/15/africa/AF-Zimbabwe-Activists-Freed.php "Zimbabwe opposition says 14 activists freed"] , Associated Press ("International Herald Tribune"), July 15, 2008.] On July 15, church leaders in Zimbabwe said that the "will of the people of Zimbabwe was not given authentic expression during these elections" due to the violence, and they expressed willingness to assist in making arrangements for the formation of a national unity government. [MacDonald Dzirutwe, [http://www.iht.com/articles/reuters/2008/07/15/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Zimbabwe Christian churches reject Mugabe victory"] , Reuters ("International Herald Tribune"), July 15, 2008.]

Mugabe launched a food subsidy programme on July 16; this programme, involving coupons for food, was designed to counter continually rising inflation and what Mugabe described as "unjust price increases" by private businesses. He also accused the UK of seeking to control Zimbabwe's resources on this occasion. Also on July 16, the pro-MDC Zimbabwe Congress of Trade Unions condemned the second round and urged the appointment of a prominent AU envoy to assist in mediation. [MacDonald Dzirutwe, [http://www.iht.com/articles/reuters/2008/07/16/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Mugabe lashes out at Britain"] , Reuters ("International Herald Tribune"), July 16, 2008.]

Agreement and Memorandum

Kenyan Prime Minister Odinga said on July 20 that the two parties had "agreed a framework for negotiation" and that he expected this agreement to be signed later in the same week. According to Odinga, the talks that would follow this agreement would be held in Pretoria and would still be mediated by Mbeki, but with AU and UN supervision. [ [http://www.iht.com/articles/reuters/2008/07/20/africa/OUKWD-UK-ZIMBABWE-CRISIS-ODINGA.php "Odinga says Zimbabwe opposition ready for talks"] , Reuters ("International Herald Tribune"), July 20, 2008.] Also on July 20, Zimbabwe's "Sunday Mail" reported that any companies with Western investments would be taken over by Zimbabweans or by "companies from friendly countries, particularly those in the Far East" if they acted on Western calls to stop doing business in Zimbabwe. [Cris Chinaka, [http://www.iht.com/articles/reuters/2008/07/20/africa/OUKWD-UK-ZIMBABWE-CRISIS-NATIONALISATION.php "Mugabe threatens to seize foreign firms"] , Reuters ("International Herald Tribune"), July 20, 2008.]

ZANU-PF and both groups of the MDC signed a Memorandum of Understanding outlining a framework for talks on July 21 in Harare. Both Mugabe and Tsvangirai were present to sign the agreement; they shook hands on this occasion, and it was reportedly the first time they had met in about 10 years. According to Mbeki, who was also present, the agreement "commits the negotiating parties to an intense program of work to try and finalize negotiations as quickly as possible". Mugabe said that the aim of the talks was to "chart a new way, a new way of political interaction", while Tsvangirai described the agreement as "the first tentative step towards searching for a solution for a country that is in crisis". [Alan Cowell, [http://www.iht.com/articles/2008/07/21/africa/22zimbabwe.php "Zimbabwe rivals sign agreement"] , "International Herald Tribune", July 21, 2008.] Under the terms of the agreement, the parties agreed to end political violence and work towards a national unity government and a new constitution; the agreement also required that the parties not use the media as a means of negotiation and set the period for negotiations at two weeks. [Alan Cowell and Graham Bowley, [http://www.iht.com/articles/2008/07/22/africa/23zimbabwe.php "Zimbabwe talks set to begin"] , "International Herald Tribune", July 22, 2008.] Mbeki's spokesman Mukoni Ratshitanga subsequently said that this was not a strict limit and talks could continue after two weeks if necessary. [http://www.iht.com/articles/2008/07/24/africa/zimbabwe.php "Zimbabwe's governing party and opposition begin talks"] , Reuters ("International Herald Tribune"), July 24, 2008.]

Round 1 (July 22 – July 30)

Following the preliminary agreement, talks between ZANU-PF and the MDC reportedly began on July 22 in South Africa. [ [http://www.iht.com/articles/2008/07/22/america/zimbabwe.php "Zimbabwe power-sharing talks begin, as EU slaps sanctions on Mugabe supporters"] , Reuters and the Associated Press ("International Herald Tribune"), July 22, 2008.] Ratshitanga said on July 23 that the talks had begun at an undisclosed location, but Chinamasa said that they were to start on July 24. [ [http://www.iht.com/articles/ap/2008/07/23/africa/AF-Zimbabwe.php "South Africa says Zimbabwe power-sharing talks under way; Zimbabwe negotiator says Thursday"] , Associated Press ("International Herald Tribune"), July 23, 2008.] "The Herald" reported on July 24 that negotiating teams for both parties took the same flight to South Africa on July 23. Meanwhile, the South African newspaper "Business Day" reported that the two sides had already reached agreement on most of the issues, although details remained to be decided.

"The Herald" reported on July 25 that the ZANU-PF Politburo had decided that any agreement with the opposition must leave Mugabe in office as President and must not threaten land reform. [Nelson Banya, [http://www.iht.com/articles/reuters/2008/07/25/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Ruling party says Mugabe must lead unity government"] , Reuters ("International Herald Tribune"), July 25, 2008.] Ratshitanga said on July 26 that the talks were "proceeding well", although he gave no details. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080727090756743C366083 "'Zim talks making progress'"] , Sapa-AFP ("IOL"), July 27, 2008.]

talling

On July 28, an MDC official said that the talks had stalled due to disagreement on the question of who would lead the government; according to the official, Tsvangirai had been offered the position of Vice-President, but the MDC was unwilling to accept any deal that did not place Tsvangirai at the head of the government. Speaking on July 29, however, Mbeki said that the talks were continuing and that they were going "very well". [ [http://www.iht.com/articles/reuters/2008/07/29/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Mbeki denies Zimbabwe negotiations deadlocked"] , Reuters ("International Herald Tribune"), July 29, 2008.] The talks adjourned on July 29. Mbeki said on July 30 that the talks were adjourned so that the negotiators could consult with their leaders and that they would resume on August 3. He met with Tsvangirai in Pretoria on July 29 and with Mugabe in Harare on July 30. For his part, Mugabe said that the talks were going well and that the negotiators were working towards a compromise. [MacDonald Dzirutwe, [http://www.iht.com/articles/reuters/2008/07/30/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Zimbabwe's crisis talks to resume Sunday"] , Reuters ("International Herald Tribune"), July 30, 2008.]

Speaking on July 30, Tsvangirai expressed his hope that the negotiations would result in an "honourable exit" for Mugabe; he also said that Mugabe was "just as human as every one of us", while asserting that he was "ignorant, or chooses to be in denial, as far as the violence is concerned". [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=vn20080731104553916C863835 "Mugabe is 'just as human' - Tsvangirai"] , "Daily News", South Africa ("IOL"), July 31, 2008, page 2.] During a visit to Senegal in which he met with Senegalese President Abdoulaye Wade, Tsvangirai said on July 31 that he was "fairly satisfied" with the way the negotiations were proceeding, while acknowledging that some "sticking points" remained. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080731170235511C638179 "Zim talks deadline is 'flexible'"] , Reuters ("IOL"), July 31, 2008.]

An explosion occurred at Harare's central police station late on August 2, damaging it but causing no casualties. According to a police statement, the explosion was caused by a bomb planted on the building's first floor; it said that one additional bomb that had not exploded was recovered from the scene. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080803135725810C846164 "Police station bomb 'planted'"] , Sapa-AFP ("IOL"), August 3, 2008.]

Round 2 (August 3 – August 12)

The talks resumed on August 3. On the same day, as part of its "Let's Talk for a Change" campaign, the MDC had an advertisement published in "The Standard", in which it acknowledged that Mugabe had taken a positive step by accepting power-sharing negotiations. Ratshitanga said on the next day that the renewed negotiations were proceeding well and that the negotiating parties were not concerned about meeting the deadline, which had been set for August 4. [ [http://www.iht.com/articles/ap/2008/08/04/africa/AF-Zimbabwe.php "South Africa: resumed Zimbabwe talks going well"] , Associated Press ("International Herald Tribune"), August 4, 2008.]

A South African newspaper, "The Star", reported on August 5 that an agreement was near; according to "The Star", this agreement would create the post of Prime Minister for Tsvangirai, while Mugabe would remain in office as President, but in a ceremonial capacity.Michael Georgy, [http://www.iht.com/articles/reuters/2008/08/05/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Power-sharing deal seen close in Zimbabwe"] , Reuters ("International Herald Tribune"), August 5, 2008.] "The Star" also reported that MDC wanted the transitional period that followed the agreement to last for 24 to 30 months, while ZANU-PF wanted it to last for five years.MacDonald Dzirutwe, [http://www.iht.com/articles/reuters/2008/08/06/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Zimbabwe parties call for end to violence"] , Reuters ("International Herald Tribune"), August 6, 2008.] "The Herald" reported on the same day that the parties had agreed to expand their negotiating teams. ZANU-PF and the MDC made a joint statement on August 6 calling for an end to violence.

Another deadlock

In a statement on August 7, Mugabe said that the reports regarding a draft agreement were "utter nonsense"; he also denied reports that he was planning to meet with Tsvangirai. According to Mugabe, the talks were "going on very well", and he said that "the people of Zimbabwe shall be informed in due course". [Cris Chinaka, [http://www.iht.com/articles/reuters/2008/08/07/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Zimbabwe's Mugabe says progress made in talks"] , Reuters ("International Herald Tribune"), August 7, 2008.] However, Mbeki went to Harare on August 9, and Mugabe's spokesman George Charamba said that Mugabe would meet with Tsvangirai on August 10, while reports suggested the signing of an agreement was imminent. [Nelson Banya, [http://www.iht.com/articles/reuters/2008/08/09/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "ZANU-PF says Zimbabwe deal possible Sunday"] , Reuters ("International Herald Tribune"), August 9, 2008.]

On August 10, Mbeki met with Tsvangirai in Harare, then met with Mugabe. Zimbabwe's "The Sunday Mail" reported on the same day that "a common position" to keep Mugabe in office as President had been agreed upon. [ [http://www.iht.com/articles/2008/08/10/africa/zim.php "'Common position' said to be reached in Zimbabwe"] , Reuters, The Associated Press ("International Herald Tribune"), August 10, 2008.] Following further negotiations at a hotel in Harare, Mugabe said when leaving the hotel on August 11 that they were "not exactly" going well, but that they would continue on the next day. [ [http://www.iht.com/articles/ap/2008/08/11/africa/AF-Zimbabwe.php "Mugabe and opposition resume talks in Zimbabwe"] , Associated Press ("International Herald Tribune"), August 11, 2008.]

On August 12, the power-sharing negotiations continued, with reports indicating that the MDC-T and ZANU-PF were still deadlocked. [http://news.bbc.co.uk/2/hi/africa/7557516.stm "SA leader denies Zimbabwean deal"] , BBC News, August 12, 2008.] Mugabe and Mutambara (of the MDC-M) were reported to have signed an agreement on August 12 that excluded Tsvangirai, [ [http://www.iht.com/articles/ap/2008/08/12/africa/AF-Zimbabwe.php "Confusion reigns in Zimbabwe talks"] , Associated Press ("International Herald Tribune"), August 12, 2008.] but later in the day Mbeki denied that a deal was signed between any of the three negotiating parties, stating that Tsvangirai had left the negotiations earlier in the day to reflect on them. MDC-M Secretary-General Welshman Ncube also said that no agreement had been reached.

ADC Summit

The round of talks in Harare ended on the night of August 12. Tsvangirai expressed continued commitment to dialogue on August 13, saying that any agreement needed to "put the people first, not leadership positions and titles"; meanwhile, Mbeki, who had left Zimbabwe, maintained that it was still "possible to conclude these negotiations quite quickly". [Cris Chinaka, [http://www.iht.com/articles/reuters/2008/08/13/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Tsvangirai says still committed to talks"] , Reuters ("International Herald Tribune"), August 13, 2008.] On August 14, when Tsvangirai went to the airport in Harare in order to travel to Johannesburg for a SADC summit, his emergency travel documents were confiscated by members of the Central Intelligence Organisation (his passport had previously expired and he was not able to renew it); the documents were quickly returned, however, and Tsvangirai departed for the summit.Nelson Banya, [http://www.iht.com/articles/reuters/2008/08/14/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Khama to boycott summit if no Zimbabwe deal"] , Reuters ("International Herald Tribune"), August 14, 2008.] Celia W. Dugger, [http://www.iht.com/articles/2008/08/14/africa/zim.php "Zimbabwe opposition leader temporarily stopped from leaving country"] , "International Herald Tribune", August 14, 2008.] According to Charamba, Mugabe's spokesman, Tsvangirai's documents were only valid for travel to Angola, and he denied MDC claims that two other members of the MDC delegation to the summit, Biti and Eliphas Mukonoweshuro, had their passports confiscated as well. Charamba accused Tsvangirai of purposefully attempting to travel with invalid documents so that he could use the resulting incident for political gain. Meanwhile, it was announced that Seretse Khama, the President of Botswana, would not attend the summit unless an agreement was reached in Zimbabwe.

On August 15, the day before the summit, Tsvangirai spoke to a gathering of Cabinet ministers from the SADC countries. In this speech, he acknowledged that the the MDC and ZANU-PF remained divided on the question of how executive powers should be allocated in the national unity government. According to Tsvangirai, the sides had agreed on leaving Mugabe in office as President and establishing a new position of Prime Minister for himself. Tsvangirai explained that he wanted to have strong, executive powers: as Prime Minister, he "must chair the Cabinet and be responsible for the formulation, execution and administration of government business including appointing and dismissing his ministers", stressing that he could not succeed in the role if he was given "responsibility without authority". Mugabe, according to Tsvangirai's proposal, would be a head of state without veto power; he would remain commander-in-chief of the military, but would act in that capacity on Tsvangirai's advice. [ [http://www.iht.com/articles/ap/2008/08/17/africa/AF-Southern-Africa-Zimbabwe.php "Tsvangirai says he'd accept Zimbabwe premiership"] , Associated Press ("International Herald Tribune"), August 17, 2008.] ZANU-PF, on the other hand, favored an agreement in which Tsvangirai would become Prime Minister while Mugabe would remain in charge of the Cabinet.Celia W. Dugger, [http://www.iht.com/articles/2008/08/25/africa/zimbabwe.php "Zimbabwe opposition gains a key position"] , "International Herald Tribune", August 25, 2008.]

At the summit on August 16, SADC leaders held talks with Mugabe and Tsvangirai. Meanwhile, Tsvangirai told "The New York Times" that he would only accept an agreement that gave him the executive powers necessary to properly govern the country, and he said that "it's better not to have a deal than to have a bad deal". Biti said that he thought the odds of the talks ending successfully were "fifty-fifty". [Stella Mapenzauswa, [http://www.iht.com/articles/reuters/2008/08/16/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "Still no Zimbabwe deal at SADC summit"] , Reuters ("International Herald Tribune"), August 16, 2008.] The SADC summit ended on August 17, with the two sides still unable to agree. Mbeki said that the negotiations would continue after the summit; Biti, speaking for the MDC, expressed continued commitment to dialogue,Celia W. Dugger, [http://www.iht.com/articles/2008/08/18/africa/18zimbabwe.php "Zimbabwe power-sharing deal eludes Mugabe and rival"] , "International Herald Tribune", August 18, 2008.] as did Zimbabwe's Minister of Information, Sikhanyiso Ndlovu. [ [http://www.iht.com/articles/ap/2008/08/18/africa/AF-Zimbabwe.php "Zimbabwe's rivals vow to keep talking"] , Associated Press ("International Herald Tribune"), August 18, 2008.] In a statement, the SADC leaders called on the parties to "conclude the negotiations as a matter of urgency to restore political stability in Zimbabwe".

Convening Parliament

The SADC leaders' statement also included the suggestion "that while negotiations are continuing, it may be necessary to convene parliament to give effect to the will of the people". [http://www.iht.com/articles/ap/2008/08/21/news/Zimbabwe.php "Mugabe's govt: parliament to convene next week"] , Associated Press ("International Herald Tribune"), August 21, 2008.] On August 19, the government announced its intention to convene Parliament in the subsequent week, five months after the parliamentary election was held. The MDC said on the same day that it did not oppose convening Parliament as long as it was not accompanied by the formation of a new Cabinet, desiring that the new Cabinet should be appointed only after the conclusion of a power-sharing agreement. On August 20, however, the MDC took a firmer stance, declaring the move to convene Parliament to be unacceptable, with Biti stating that it would "be a clear repudiation of the Memorandum of Understanding, and an indication beyond reasonable doubt of ZANU-PF's unwillingness to continue to be part of the talks. In short convening parliament decapitates the dialogue". [Cris Chinaka, [http://www.iht.com/articles/reuters/2008/08/20/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "MDC says Mugabe parliament plans endanger talks"] , Reuters ("International Herald Tribune"), August 20, 2008.] While on a visit to Nairobi, Tsvangirai said on August 21 that convening Parliament and appointing a Cabinet would violate the conditions of the talks, according to which each step in the process was to be taken by common consensus, and suggested that Mugabe's decision could mean he was "abandon [ing] the basis for the talks". He also referred to the need to balance the powers that would be held by the President and Prime Minister under a power-sharing arrangement, whereby both would possess both responsibility and authority.

Despite the MDC-T's objections, the members of Parliament were sworn in on August 25. [http://allafrica.com/stories/200808251079.html "Zimbabwe: Tsvangirai Wins Parliamentary Vote"] , allAfrica.com, August 25, 2008.] [http://news.bbc.co.uk/2/hi/africa/7580366.stm "MDC wins Zimbabwe parliament vote"] , BBC News, August 25, 2008.] On the same day, an election was held for the post of Speaker of Parliament; the vote resulted in a victory for MDC-T candidate Lovemore Moyo, who received 110 out of 208 votes in a secret ballot. ZANU-PF did not present a candidate against Moyo and instead supported Paul Themba Nyathi of the MDC-M.

On August 27, Moyo, the newly-elected Speaker, said in an interview that the talks would continue. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=2646&art_id=nw20080827085905734C160002 "Zim talks are continuing - Moyo"] , Reuters ("IOL"), August 27, 2008.] "The Herald" reported comments by Mugabe on August 27 in which he said that he would soon form a new government; he also said that it appeared the MDC did not want to participate in that government. According to Mugabe, the MDC " [had] been promised by the British that sanctions would be more devastating, that in six months time the government will collapse". He sharply criticized the preceding Cabinet as "the worst in history" and said that the new Cabinet would be composed of "managers". [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=2646&art_id=nw20080827113114387C379370 "'Mugabe to form self-styled government'"] , Sapa-DPA ("IOL"), August 27, 2008.] MDC-T spokesman Chamisa said that Mugabe had no mandate to form a Cabinet and that doing so would be "a recipe for disaster", urging him to wait and reach an agreement with the MDC; meanwhile, MDC-M spokesman Edwin Mushoriwa also said that his group would not participate in a government formed without an agreement. [Tichaona Sibanda, [http://allafrica.com/stories/200808280120.html "Zimbabwe: Mugabe Says He Intends to Form Next Government"] , SW Radio Africa (allAfrica.com), August 27, 2008.]

Deputy Information Minister Bright Matonga reiterated on August 28 that Mugabe intended to form a Cabinet, saying that this was necessary for the country to move forward, to improve the economy and alleviate suffering. According to Matonga, Mugabe had received a mandate from SADC. MDC-T spokesman Biti, meanwhile, said that the formation of a Cabinet would mean "killing the talks" and that it would be "a disaster and an act of insanity" for Mugabe to attempt to "go it alone". He also said that the MDC was planning to write to Mbeki to protest Mugabe's alleged violations of the July preliminary agreement. Some observers speculated that, by announcing his intention to form a Cabinet, Mugabe was attempting to force the MDC into accepting the power-sharing conditions favored by ZANU-PF. [Fanuel Jongwe, [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080828182630166C198433 "Total defiance"] , Sapa-AFP ("IOL"), August 28, 2008.]

ZANU-PF and MDC delegations met separately with Mbeki on August 29. On the next day, "The Herald" reported that ZANU-PF had rejected a new MDC proposal, according to which Mugabe and Tsvangirai would co-chair the Cabinet. "The Herald" denounced this proposal as "absurd" and "insolent", saying that it displayed "stunning ignorance on how government works". [ [http://www.iht.com/articles/reuters/2008/08/30/africa/OUKWD-UK-ZIMBABWE-CRISIS-TALKS.php "State media says Zimbabwe power-sharing talks hit snag"] , Reuters ("International Herald Tribune"), August 30, 2008.] [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=nw20080830123845837C356946 "'Zanu-PF won't yield to MDC demands'"] , Sapa-AFP ("IOL"), August 30, 2008.] MDC-T spokesman Chamisa said on August 31 that "nothing was achieved" in the talks two days prior and that the negotiators had returned to Zimbabwe. [Nelson Banya, [http://www.iht.com/articles/reuters/2008/08/31/africa/OUKWD-UK-ZIMBABWE-CRISIS-TALKS.php "Zimbabwe's opposition party says no accord reached"] , Reuters ("International Herald Tribune"), August 31, 2008.] Tanzanian Foreign Minister Bernard Membe said on September 2 that the African Union hoped that an immediate agreement, providing for power to be split equally between ZANU-PF and the MDC, was still possible. [George Obulutsa, [http://www.iht.com/articles/reuters/2008/09/02/africa/OUKWD-UK-ZIMBABWE-CRISIS.php "African Union wants Zimbabwe crisis deal now"] , Reuters ("International Herald Tribune"), September 2, 2008.]

On September 3, according to "The Herald", Mugabe said while attending Levy Mwanawasa's funeral in Zambia that he would form a Cabinet unless the MDC-T signed a power-sharing agreement by September 4. "The Herald" quoted Mugabe as saying that it was unacceptable for the country to go on indefinitely without a new Cabinet. Biti said that the MDC-T had heard nothing about Mugabe's threat except what was published in "The Herald". According to Biti, the talks were at a stalemate, but he expressed continued commitment to them, while also saying that if Mugabe formed a Cabinet unilaterally, the dialogue would be destroyed. "The Herald" also reported that Mugabe again alleged that the MDC-T was resisting an agreement due to British influence; Biti responded that this was "patronizing". [ [http://www.iht.com/articles/ap/2008/09/05/africa/AF-Zimbabwe.php "Zimbabwe's Mugabe: sign deal or I form Cabinet"] , Associated Press ("International Herald Tribune"), September 5, 2008.]

US Assistant Secretary of State for African Affairs Jendayi Frazer said on September 5 that negotiations should continue, warning that her government would consider a Cabinet formed unilaterally by Mugabe to be a "sham". [ [http://www.iht.com/articles/ap/2008/09/05/africa/AF-Zimbabwe-US.php "US: Mugabe-named Cabinet would be "sham""] , Associated Press ("International Herald Tribune"), September 5, 2008.] MDC-T leader Tsvangirai on September 7 called for early elections under international supervision if the talks failed. [ [http://afp.google.com/article/ALeqM5ipM2gBuJkTuLVhRyA-v-oWcz4KPg "Zimbabwe opposition chief wants new vote if no talks breakthrough"] , AFP, September 7, 2008.]

Round 3 (September 9 – present)

On September 9, 2008, talks resumed with new proposals, with Mbeki flying in from South Africa to mediate. [ [http://news.bbc.co.uk/2/hi/africa/7605876.stm "Mugabe says talks moving forward"] , BBC News, September 9, 2008.] A fresh proposal by Mbeki was tabled that would propose making Tsvangirai an executive prime minister; all three leaders of the major political parties spoke of progress in the talks, and reports of Mugabe backing down on his earlier threats to exclude the MDC surfaced in the foreign press. The day before, Mutambara's group of the MDC announced that they would refuse to work with ZANU-PF if talks were deadlocked. Both Tsvangirai and Mugabe spoke positively of the talks on September 10, 2008. [ [http://news.bbc.co.uk/2/hi/africa/7607361.stm "Positive signs at Zimbabwe talks"] , BBC News, September 10, 2008.]

Final power-sharing deal

Leaving the talks on September 11, Tsvangirai told the press that a deal had been reached. [http://news.bbc.co.uk/2/hi/africa/7611459.stm "Zimbabwe rivals agree unity deal"] , BBC News, September 11, 2008.] Celia W. Dugger, [http://www.iht.com/articles/2008/09/12/africa/12zimbabwe.php "Peace deal reached in Zimbabwe"] , "International Herald Tribune", September 12, 2008.] Mbeki said later in the day that the deal would be signed in Harare on September 15 in the presence of other African leaders; he did not explain the terms of the deal, saying that they would not be revealed until the deal was signed. The Zimbabwean Permanent Representative to the UN, Boniface Chidyausiku, described the agreement as a "triumph for African diplomacy".

The SADC postponed a meeting of its defense committee indefinitely until Mbeki could finalize a unity deal in Zimbabwe; while confirming that he would attend the meeting, Mbeki told journalists that, if the deal fell through at the last minute, he would tell the SADC that he had done his best as mediator, and that the deal would fall through because one or more of the parties were not serious about the negotiations.Fact|date=September 2008

At the end of the fourth day of negotiations Mbeki announced that Mugabe, Tsvangirai, and Mutambara had signed a power-sharing agreement - "memorandum of understanding." [ [http://www.newsnet.co.zw/index.php?nID=13831 newsnet.co, Deal finally sealed] ] Mbeki stated: "An agreement has been reached on all items on the agenda ... all of them [Mugabe, Tsvangirai, Mutambara] endorsed the document tonight, and signed it. The formal signing will be done on Monday 10am. The document will be released then. The ceremony will be attended by SADC and other African regional and continental leaders. The leaders will spend the next few days constituting the inclusive government to be announced on Monday. The leaders will work very hard to mobilise support for the people to recover. We hope the world will assist so that this political agreement succeeds." The deal is also expected to result in a "de facto" amnesty for the military and Zanu-PF party leaders. Opposition sources said "Tsvangirai will become prime minister at the head of a council of ministers, the principal organ of government, drawn from his Movement for Democratic Change and the president's Zanu-PF party; and Mugabe will remain president and continue to chair a cabinet that will be a largely consultative body, and the real power will lie with Tsvangirai." [ [http://www.guardian.co.uk/world/2008/sep/12/zimbabwe guardian.co.uk, Zimbabwe deal gives power to Tsvangirai] ] [ [http://www.capetimes.co.za/?fArticleId=4607058 capetimes.co.za, Zimbabwe rivals reach historic power deal] ] [ [http://hararetribune.com/index.php?option=com_content&view=article&id=244:breaking-news-a-gnu-deal-is-agreed-on-&catid=1:latest-news&Itemid=50 hararetribune.com, GNU deal between Mugabe and Tsvangirai agreed on] ] South Africa’s Business Day reported, however, that Mugabe was refusing to sign a deal which would curtail his presidential powers. [ [http://www.dispatch.co.za/article.aspx?id=248225 www.dispatch.co.za, Zimbabwe leaders ‘closing in on deal’] ] According to "The New York Times", MDC spokesman Chamisa announced: “This is an inclusive government. The executive power would be shared by the president, the prime minister and the cabinet. Mugabe, Tsvangirai and Arthur Mutambara have still not decided how to divide the ministries. But Jendayi E. Frazer, the American assistant secretary of state for African affairs, said: “We don’t know what’s on the table, and it’s hard to rally for an agreement when no one knows the details or even the broad outlines”. [Celia W. Dugger, [http://www.nytimes.com/2008/09/12/world/africa/12zimbabwe.html?em nytimes.com, "Zimbabwe Rivals Strike a Bargain to Share Power"] , "The New York Times", September 12, 2008, page A1.]

Reportedly, the deal includes the following provisions: [cite news | title = Mugabe und Tsvangirai versuchen Teilung der Macht
url = http://www.nzz.ch/nachrichten/international/mugabe_und_tsvangirai_versuchen_teilung_der_macht_1.830119.html
publisher = NZZ Online, Neue Zürcher Zeitung AG | date = September 12, 2008 | language = Swiss German]
* Mugabe would lead the army and the NSC, Tsvangirai the government and the police.
* A new constitution will be drafted within 18 months; following a referendum on the new constitution, early elections would be held within three months.
* The MDC will have 16 ministers, the ZANU-PF 15.

An MDC official said on September 13 that the MDC wanted to control the key ministries of home affairs, finance, and justice; in return, the official said that the MDC was willing to concede the ministries of defense and state security to ZANU-PF. [MacDonald Dzirutwe, [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=nw20080913164008174C603785 "MDC seeks control of Zim's economy"] , Reuters ("IOL"), September 13, 2008.]

On September 15, 2008, SADC leaders witnessed the signing of the power-sharing agreement, brokered by Mbeki. With a symbolic handshake and warm smiles at the Rainbow Towers hotel, in Harare, Mugabe and Tsvangirai signed the deal to end the violent political crisis. Under the terms of the deal, Mugabe will remain President, Tsvangirai will become Prime Minister, [ [http://edition.cnn.com/2008/WORLD/africa/09/15/zimbabwe.powershare/?iref=mpstoryview "Rivals sign Zimbabwe power-share deal"] , CNN.com, September 16, 2008.] the MDC will control the police, ZANU-PF will control the Army, and Mutambara will become Deputy Prime Minister. [ [http://www.timesonline.co.uk/tol/news/world/africa/article4756995.ece timesonline.co.uk, Power-sharing deal signed in Zimbabwe] ] [ [http://www.msnbc.msn.com/id/26715920/ www.msnbc.msn, Zimbabwe power-sharing deal signed] ]

Negotiations on Cabinet composition

The parties planned to hold talks regarding the allocation of Cabinet portfolios beginning on September 16, but these talks were delayed.Angus Shaw, [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080917145555367C741513 "Parliament to give Zim deal teeth"] , Associated Press ("IOL"), September 17, 2008.] In "The Herald" on September 17, Chinamasa said that the necessary constitutional amendments to provide a legal basis for some aspects of the agreement would be considered by Parliament after it began sitting on October 14. [http://allafrica.com/stories/200809170858.html "House to Deal With Constitutional Changes Next Month"] , "The Herald" (allAfrica.com), September 17, 2008.] However, he also said that other aspects of the agreement would not require constitutional amendments. Mugabe, in a speech to the ZANU-PF Central Committee that was broadcast live on September 17, described the agreement as a "humiliation", but said that the party could have avoided the situation if it had not "blundered" in March, when it failed to win a parliamentary majority. However, he asserted that ZANU-PF was still in "the driving seat" and would "not tolerate any nonsense" from the MDC. The Central Committee approved the agreement, while expressing concern that attacks against ZANU-PF supporters could have a negative effect on relations between the parties. On the same day, Tsvangirai said that he was confident that the deal would hold and that Mugabe was committed to it. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080918134920250C835153 "Zim rivals to divide up cabinet posts"] , Sapa-AFP ("IOL"), September 18, 2008.]

The parties held talks regarding the allocation of portfolios on September 18, but according to Chamisa, the MDC-T spokesman, no agreement was reached and "the matter [was] referred to the negotiators". [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080918174157928C174940 "Zim cabinet talks stall"] , Sapa-AFP ("IOL"), September 18, 2008.] The negotiators met on September 19, but according to Chamisa they failed to reach an agreement. Chamisa said that ZANU-PF had a "take, take and take mentality" and wanted to hold all of the most important portfolios, while the MDC favored a "give and take situation" in which the most important portfolios would be divided fairly. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080919161031612C490638 "Zim cabinet talks still deadlocked"] , Sapa-AFP ("IOL"), September 19, 2008.] In particular, the MDC wanted to control the finance portfolio, justifying this by pointing to the disastrous state of the economy, but ZANU-PF objected.Celia W. Dugger, [http://www.iht.com/articles/2008/09/23/africa/23zimbabwe.php "South African's resignation poses risks for Zimbabwe power-sharing deal"] , "International Herald Tribune", September 22, 2008.]

With the situation still unresolved, Mugabe embarked on a trip to the United Nations on September 19; the MDC complained that he did not swear in Tsvangirai before leaving for this trip, which was expected to last at least a week. Vice-President Joseph Msika was responsible for handling Mugabe's duties while he was out of the country. Chamisa said that Mugabe was unwilling to leave the country in Tsvangirai's hands during his absence. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080920130948650C815999 "Mugabe leaves for UN amid chaos"] , Sapa-Associated Press, September 20, 2008.] A column in "The Herald" on September 20 belittled the agreement, saying that Mugabe remained free to appoint a Cabinet of his choosing and was only required to consult with the Prime Minister; it also said that the agreement could "collapse any day". Aside from this, Tsvangirai expressed concern regarding the stark and bitter language in the column (which was generally believed to have been written by Mugabe's spokesman George Charamba, under the pen name Nathaniel Manheru), describing it as hateful. One passage in the column seemed to suggest violence, saying that an audit of land reform, as provided by the agreement, would "draw blood redder than the setting sun." Although Tsvangirai emphasized that he did not think the column's writer was expressing Mugabe's views, he said that if the column reflected ZANU-PF's attitude, the agreement was already doomed.

Only a few days after the agreement was signed, Mbeki was forced to resign as President of South Africa by his party, the African National Congress (ANC). This raised additional concerns about the future of the agreement; it was unclear if Mbeki would continue to act as mediator, and it was unclear if South Africa, under new leadership, would remain so heavily involved in resolving Zimbabwe's political situation. Jakaya Kikwete, the President of Tanzania and Chairman of the African Union, said on September 24 that "the South African government ... will continue to focus on the issue", while SADC spokesman Charles Mubita said that Mbeki would continue to act as mediator. According to Mubita, Mbeki was appointed as mediator "based on his knowledge, understanding and acumen of the situation" and did not necessarily need to be a sitting president to serve in that role. For his part, Mugabe was quoted in "The Herald" on September 25 as saying that Mbeki's removal as President of South Africa was "devastating" and "very disturbing", while also stating that it was "the action of the South African people" and that as a Zimbabwean he was in no position to judge. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=nw20080925124111244C290397 "Mugabe devasted by Mbeki's recall"] , Sapa-DPA ("IOL"), September 26, 2008.] Mbeki's successor, Kgalema Motlanthe, said on October 2 that he wanted Mbeki to continue mediating. [ [http://www.iht.com/articles/ap/2008/10/02/africa/AF-South-Africa-Zimbabwe.php "SAfrican leader wants to keep Mbeki on Zimbabwe"] , Associated Press ("International Herald Tribune"), October 2, 2008.On October 3, a spokesman for the South African government announced that Mbeki had agreed to continue in his role as mediator. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=nw20081003175216615C820502 "Mbeki to resume Zim mediation"] , Sapa-AFP ("IOL"), October 3, 2008.]

Mugabe returned to Zimbabwe from the UN on September 29. He said upon returning that "there is no deadlock" and that only four ministries were left to be decided. According to Mugabe, the Cabinet would be formed later in the same week. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=nw20080929150040744C651224 "Mugabe promises unity government 'soon'"] , Reuters ("IOL"), September 29, 2008.] On September 30, Mugabe and Tsvangirai met, but they were unable to reach an agreement on the allocation of Cabinet portfolios and "the matter was referred to the mediator", according to Chamisa. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=nw20080930174615832C398787 "Zim rivals fail to agree on cabinet posts"] , AFP ("IOL"), September 30, 2008.] Chamisa argued that if the portfolios were allocated according to ZANU-PF's wishes, then ZANU-PF would control the government and the MDC would be "a mere cosmetic accessory and mere lipstick". He warned that this was "completely unacceptable" and that the MDC was not so "desperate to be in the government" that it would accept a secondary status. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=vn20081001055619986C172636 "Zim deal looks dead in the water"] , "The Star" ("IOL"), October 1, 2008, page 5.] ZANU-PF's Chinamasa, however, denied that there was any deadlock in negotiations and said that all parties were committed to reaching an agreement. He said that any disagreement that might exist was insufficient to warrant Mbeki's intervention and expressed confidence that the matter could be resolved without his help. [ [http://www.int.iol.co.za/index.php?set_id=1&click_id=68&art_id=vn20081002060138456C363861 "Mugabe and his men reject mediation proposal"] , "The Star" ("IOL"), October 2, 2008, page 3.]

Mugabe, Tsvangirai, and Mutambara met in Harare on October 4 for talks on the distribution of portfolios, but could not reach an agreement; according to Charamba, Mugabe's spokesman, the negotiating teams would meet again to discuss the allocation of the portfolios of finance and home affairs. Spokesmen for the MDC-T and the MDC-M also acknowledged the failure to reach an agreement and said that negotiations would continue. [ [http://afp.google.com/article/ALeqM5jFpjnTD1q2dN7NqJIX7rbOQ0-KBg "Zimbabwe opposition, Mugabe fail to reach agreement: officials"] , AFP, October 4, 2008.] The MDC-T's Chamisa said on October 5 that all of the Cabinet portfolios were in question, not just two of them, as claimed by Charamba. [ [http://www.iht.com/articles/ap/2008/10/05/africa/AF-Zimbabwe.php "Zimbabwe factions resume Cabinet talks"] , Associated Press ("International Herald Tribune"), October 5, 2008.]

The negotiators met briefly on October 7 but again failed to reach an agreement. According to Chamisa, the parties were "still in different worlds in a fundamental way". [ [http://afp.google.com/article/ALeqM5iOg1dqs_-RBPIBMFXFEVQ_BYUY1g "Still no deal on Zimbabwe govt: opposition"] , AFP, October 7, 2008.] For his part, Biti said that he and fellow MDC negotiator Elton Mangoma left the meeting in outrage after the ZANU-PF negotiators said that they were only present "to justify why they needed the two ministries of home affairs and finance". Biti insisted that the MDC had never agreed to the allocation of any ministries and that it was deceptive for ZANU-PF to claim that there were only two in dispute. He expressed hope that Mbeki could help resolve the situation, saying that if Mbeki was unsuccessful the only remaining hope was divine intervention. It was reported at this time that the power-sharing agreement was near collapse; reportedly, some members of the ZANU-PF leadership were adamant that the party needed to hold the key portfolios, believing that ZANU-PF would be in grave danger if it did not control those ministries. [Stanley Gama, [http://www.int.iol.co.za/index.php?set_id=1&click_id=84&art_id=vn20081008055143818C142397 "Zimbabwe power-sharing close to collapse"] , "The Mercury" ("IOL"), October 8, 2008, page 4.] ANC President Jacob Zuma said on the same day that he hoped the Zimbabwean parties could reach an agreement on their own, but he also said that Mbeki was available to facilitate the negotiations if necessary. [ [http://afp.google.com/article/ALeqM5iDKKLd_hc1HE_eefr8YQN7d9v8ug "Zuma urges more Zimbabwe talks to end deadlock"] , AFP, October 7, 2008.]

Tsvangirai said on October 9 that the talks were deadlocked and progress was impossible unless Mbeki intervened. Meanwhile, Information Minister Sikhanyiso Ndlovu dismissed the claim of a deadlock entirely: "Deadlock is the figment of imagination by our detractors from outside Zimbabwe". According to Ndlovu, it was necessary for ZANU-PF to "teach art of government formation and implementation of policies" to the MDC, as they were "still new". [ [http://afp.google.com/article/ALeqM5itqtBeCe1fFptOtC5UXdscdk7f-Q "Zimbabwe inflation soars; power-sharing talks deadlocked"] , AFP, October 9, 2008.] Nevertheless, Mugabe, Tsvangirai, and Mutambara met on October 10 and agreed that Mbeki's mediation was needed. [http://afp.google.com/article/ALeqM5h8FIMlyGl8Hx4UCCMNLFTq7LqI2w "Mugabe to retain control of army and police"] , AFP, October 11, 2008.]

On October 11, "The Herald" published an official list showing the allocation of ministries to the three parties; defence, home affairs, foreign affairs, justice, and local government were among the 14 portfolios allotted to ZANU-PF. The MDC-T's 13 portfolios included constitutional and parliamentary affairs, economic planning and investment promotion, labour and social welfare, sport, arts and culture, and science and technology development, while the MDC-M's three portfolios were listed as education, regional integration and international co-operation, and industry and commerce. According to "The Herald", only the finance ministry remained in dispute, and it said that Mbeki would travel to Zimbabwe to assist in negotiations on the matter. The allocations published in "The Herald" were not approved by the MDC-T, which rejected them outright. MDC-T spokesman Chamisa denounced the publication of the list as "unilateral, contemptuous and outrageous", saying that such imbalance in the importance of the portfolios would effectively give ZANU-PF control of the government. He warned that ZANU-PF's "arrogance" would "put the deal into jeopardy".

Reported draft restructure of executive branch

According to media reports in August, the estimated details of an executive coalition government would consist of the following offices:

* A ceremonial president as head of state (most likely Mugabe, with immunity from prosecution concerning his role in past acts of human rights abuse and war crimes, including the Gukurahundi of 1982-1987)
* Two or three vice-presidents
** It is being negotiated on whether this would include just the current two vice-presidents, Joseph Msika and Joyce Mujuru (both of the ZANU-PF), or whether they should be joined by a third vice-president, Thokozani Khuphe of the MDC-T
* An appointed executive prime minister as head of government (most likely Tsvangirai)
* Two deputy prime ministers:
** One, appointed from the ZANU-PF, with oversight over the defence forces
*** It is being debated whether this deputy prime minister would be Emmerson Mnangagwa or John Nkomo
** Another, appointed from the MDC, with oversight over the Zimbabwe Republic Police
*** It is being debated whether this deputy prime minister would be Arthur Mutambara or Thokozani Khuphe
* A coalition cabinet that would numerically reflect the balance of each party's share of members in the House of Assembly, similar to the then-current unity coalition in power in Kenya. [ [http://www.businessday.co.za/articles/topstories.aspx?ID=BD4A815644 Zimbabwe parties debate ‘hybrid’ government] , Business Day]

References

External links