The government was putting a squeeze on non-governmental organisations insisting that all NGOs must register with the state.
A proposed bill was also expected to prohibit “foreign” NGOs from operating in the areas of human rights and governance.
It would also bar local NGOs from operating in those areas with “foreign funds”.
“Foreign” NGOs were any organisation not entirely composed of permanent residents or citizens of Zimbabwe who were also physically domiciled in Zimbabwe.
To be considered local, all funding had to be from persons who were permanent residents or citizens of Zimbabwe also domiciled in Zimbabwe or a company that was both registered and operating in Zimbabwe.
This practically made almost all NGOs operating in the country “foreign” as they were funded from foreign sources.
Full cable:
Viewing cable 04HARARE1250, CRACKDOWN ON NGOS?
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C O N F I D E N T I A L SECTION 01 OF 03 HARARE 001250
SIPDIS
AF/S FOR AGALANEK
NSC FOR SENIOR AFRICA DIRECTOR C. COURVELLE, D. TEITELBAUM
LONDON FOR C. GURNEY
PARIS FOR C. NEARY
NAIROBI FOR T. PFLAUMER
E.O. 12958: DECL: 12/31/2009
SUBJECT: CRACKDOWN ON NGOS?
REF: A. (A) HARARE 1206
¶B. (B) HARARE 1179
¶C. (C) HARARE 1067
¶D. (D) HARARE 720
¶E. (E) HARARE 461
¶F. (F) HARARE 409
Classified By: Political Officer Bianca Menendez for reason 1.5 d
¶1. (C) SUMMARY: The Government of Zimbabwe is putting the
squeeze on non-governmental organizations. GOZ officials have
said NGOs will be required to operate with the permission of
provincial governments and in accordance with conditions set
out in a proposed restrictive new NGO bill. The draft bill
would require all NGOs to register with the government, would
outlaw activities in human rights and governance by foreign
NGOs or local NGOs with foreign funding, and would permit
government micromanagement of organizations–all purportedly
to ensure that NGOs do not interfere with the government.
These measures permit further politicization of food and seek
to counter possible positive effects of any electoral reform.
END SUMMARY.
The NGO Bill
—————–
¶2. (U) Under the existing Private Voluntary Organizations
Act, NGOs are required to register with the government. The
government issued a notice in September 2002 alerting NGOs
that they would be closed down if they did not register. A
June 28 article in the Chronicle newspaper reported Minister
of Local Government Ignatius Chombo as saying that the
government would be enforcing the existing law and also
requiring NGOs to get permission from provincial governments
for their activities, because those officials are best placed
to direct NGOs to areas of need and to prohibit activities
that “meddle in internal affairs.” According to Lancester
Museka, the Permanent Secretary in the Ministry of Public
Service, Labour, and Social Welfare, who was quoted in the
July 18 Sunday Mail newspaper, NGOs must register to ensure
they are working toward their stated purpose and are not
helping the opposition to destabilize the countrys. He said
NGOs who are not registered would be closed down.
¶3. (U) President Mugabe’s address to the opening of the fifth
session of the fifth Parliament (ref A) echoed comments of
the Public Service Ministry. He confirmed that the government
would be introducing the bill to Parliament and stated that
NGOs must work for the betterment of the country and not as a
means for foreign influences to interfere in internal affairs.
¶4. (U) According to an unofficial copy of highlights of the
bill that the government plans to propose in Parliament, all
NGOs must register with the government. The bill would also
create an NGO Council, which would establish a code of
conduct for all NGOs and oversee the management of NGOs. The
bill prohibits “foreign” NGOs from operating in the areas of
human rights and governance or local NGOs from operating in
those areas with “foreign funds.” The bill defines a
“foreign” NGO as any organization not entirely composed of
permanent residents or citizens of Zimbabwe who are also
physically domiciled in Zimbabwe. Similarly, to be considered
local, all funding must be from persons who are permanent
residents or citizens of Zimbabwe also domiciled in Zimbabwe
or a company that is both registered and operating in
Zimbabwe. Given these restrictive definitions, the vast
majority of NGOs would be considered foreign or funded from
foreign sources. Under the bill, the Minister of Public
Service, Labour, and Social Welfare would oversee the
financial books of each NGO and would be able to separate
branches of NGOs and establish them as independent
organizations. The Minister of Public Service could also
suspend any NGO for “maladministration.”
NGO and Donor Responses to the Bill
——————————————— –
¶5. (C) Comments from Democracy and Human Rights Fund from
grantees indicate that many are not seriously concerned about
the bill, because, despite the prior warnings from the GOZ
that the PVO Act would be enforced, it has been enforced only
rarely. The Catholic Commission for Justice and Peace plans
on holding meetings to deal with these issues many months
from now. Zimbabwe Lawyers for Human Rights, another DHRF
partner, commented that the new law would not apply to it
because the organization is not really an NGO, but rather a
membership organization.
¶6. (U) Other NGOs have shown more concern. Brian Kagoro,
co-chair of the Crisis in Zimbabwe Coalition was quoted in
the UK Daily Telegraph newspaper July 19 expressing concern
that NGOs that are currently registered as trusts–the
majority of human rights NGOs–would be illegal under the new
law. Trusts do not register under the current PVO law, and
any organization not already registered would have to
completely cease activities while it applies for registration
under the new law.
¶7. (C) ZLHR and the National Association for NGOs (NANGO) are
both forming a response to the new bill. ZLHR is working on a
legal opinion of the proposed legislation and is
contemplating litigation to overturn it if enacted. NANGO has
also formed a legal committee and a negotiating committee in
the hopes that the proposed legislation is the GOZ’s opening
position in a negotiation. According to comments made to
USAID, ZLHR plans to meet with NANGO representatives to
coordinate activities.
¶8. (C) USAID Democracy and Governance program partners have
indicated that, if the bill becomes law, they plan on
registering first then challenging the requirement to
register in court to avoid the problems the Daily News
encountered in its legal challenge to the requirement for
newspapers to register under the Access to Information and
Protection of Privacy Act (AIPPA). In that case, the Supreme
Court declined to rule on the Daily News’ claim that AIPPA
was unconstitutional, finding that the Daily News had unclean
hands because it had not registered, and the GOZ subsequently
closed the Daily News for failing to register (ref F).
¶9. (SBU) Mission officers are scheduled to attend a general
meeting July 27 with representatives of donors to governance
programs to discuss the new bill and possible responses.
Problems for NGOs
————————-
¶10. (C) Some NGOs are already experiencing problems. One
USAID partner, Victory Tabernacle, experienced difficulties
with the launch of their Mutare Tertiary Students for Peace
program. Student organizers of peace clubs had planned a
public launch and peace concert and were interrupted by
police who asked for their registration papers. Police
permitted the function but warned organizers that they would
be arrested if they mentioned politics, and police set up
roadblocks to prevent students from being ferried to the
event from schools.
¶11. (C) At a World Food Program food aid coordination meeting
attended by USAID, several NGOs indicated they were having
problems in the countryside. As mentioned above, some are
being told to stop general food distribution although they
may be asked to continue feeding programs to targeted,
vulnerable populations. Police stopped one NGO, Feed the
Hungry, from carrying out its activities and told staff to
get a letter of approval from the local MP. Some NGOs
reported that they are denied access to targeted populations,
such as displaced farm workers. CSAFE said it has written
letters to officials at the district levels with planned
activities and asked for a stamp of approval from each. Many
of the NGOs said they were planning to schedule a meeting
between NGOs and Permanent Secretary Museka from the Public
Service Ministry.
¶12. (SBU) Other NGOs have experienced other types of
harassment for their activities. For example, 48 members of
Women of Zimbabwe Arise!, a human rights group, are on trial
for demonstrating against the Public Order Security Act. The
trial has been continued several times, and a delayed
resolution distracts the group from its activities (ref B).
COMMENT
—————–
¶13. (C) In a worst-case scenario, if the bill is gazetted and
passed as the unofficial copy describes, all of USAID’s
democracy and governance partners would be affected and most
likely would not be able to continue if funded by USAID. This
could spell the end of many USAID activities in Zimbabwe.
¶14. (C) The attempt to limit and monitor NGO activity appears
to be a further tactic in the GOZ,s strategy of limiting
international presence in the run-up to the March 2005
parliamentary elections (ref E). The GOZ continues to insist
that there will be a bumper harvest of maize this year and
that Zimbabwe needs no food aid. Comments from USAID NGO
partners indicate that they have been asked to cease general
feeding programs and instead focus on programs to targeted
groups, such as school feeding programs or areas that have
had particular problems with diseased farm animals. The new
NGO legislation would significantly enhance GOZ capacity to
manipulate food politically by cutting access to the
countryside by donors and by further securing its control of
food distribution throughout the country.
¶15. (C) A more direct and obvious attempt to limit the impact
of NGOs on the elections is with electoral reform. The
electoral amendment bill gazetted in April 2004 and
subsequently withdrawn contained a provision to bar NGOs with
foreign funding from conducting voter education (ref D). It
is unclear if the current electoral reforms proposed by the
government (ref C) will contain this measure since the NGO
bill would bring under the direct control of the GOZ
governance-related work by NGOs, if not eliminate it
altogether, in any event.
¶16. (C) As elections approach, the government will probably
make it increasingly difficult for all NGOs to operate,
whether this bill is enacted or not. The GOZ wants to keep
international elements from interacting with local
constituencies or reporting on local conditions to the
outside world. The proposed new NGO legislation may be just
an intimidation tactic or, if passed, may represent the
latest tangible tool with which to asphyxiate voices of
debate and to perpetuate ruling party control. The unofficial
bill is also an indication of the government’s likely
intention to counter the impact of proposed election reform
by further limiting access to information and politicizing
food aid to an even greater extent. END COMMENT.
WEISENFELD
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