In face of large-scale killings, urgent calls for dialogue and contingency planning.

Gravely concerned at the continued deterioration of the security situation in Burundi, which had resulted in further "large-scale killings" in Buhoro and Kivyuka, and at the increasing flow of refugees from the country, the Security Council on 15 May condemned any use of violence and called again for a comprehensive political dialogue aimed at national reconciliation.

Burundian authorities and all parties concerned should "set aside their differences, renounce the use of force and demonstrate a firm political will for a prompt settlement of the conflict, the Council urged. It also called on the parties to refrain from actions that could aggravate the refugee problem, and expressed concern that relief organizations had been prevented from delivering humanitarian and development assistance in Burundi.

In a statement (S/PRST/1996/24) by its President, Qin Huasun of China, the Council asked Secretary-General Boutros Boutros-Ghali and interested Member States "to continue to facilitate, as a matter of urgency, contingency planning for a rapid humanitarian response in the event of widespread violence or a serious deterioration in the humanitarian situation" in the strife-torn Central African country. Mr. Boutros-Ghali was also encouraged to pursue planning for steps that might be taken to support a possible political agreement. The Council had called for contingency planning on 5 March under resolution 1049 (1996).

The Council once again voiced support for the ongoing efforts of Julius Nyerere, former President of the United Republic of Tanzania, to resolve the crisis and called on all parties to use an upcoming meeting which he had helped to arrange for 22 May in Mwanza, Tanzania, to move forward on national reconciliation. It further called on all States concerned to cooperate in the convening of a regional conference on peace, security and development in the Great Lakes region.

The Council stressed its readiness to consider still further measures, "should the parties fail to demonstrate the necessary political will for a peaceful solution to the crisis".

`Downward spiral of violence'

In a 3 May report (S/1996/335), the Secretary-General had cited persistent reports indicating a "downward spiral of violence". Extremist Hutu rebels, apparently infiltrated from Zaire, were undertaking hit-and-run attacks against Tutsi and moderate Hutu civilians. Burundian armed forces sometimes exacted reprisals against Hutu civilians in the areas where attacks had taken place, "thus reinforcing the propaganda of those who control the extremists", the Secretary-General stressed. He called for the creation of a genuine, effective coalition Government as the only way to break the present "vicious circle".

Under such disturbing circumstances, Mr. Boutros-Ghali remained "convinced of the necessity for the international community to proceed with contingency planning for a possible military intervention to save lives if disaster should strike Burundi and lead to large-scale killing of civilians". The intervention would be exclusively to save civilian lives. "If the worst happened, Member States might find that they had no alternative but to deploy a multinational force authorized by the Security Council under Chapter VII of the UN Charter", he said, adding that it was therefore "sensible" to undertake preliminary planning. Planning for a UN peace-keeping operation under Chapter VI was also under way, in the event that the Burundian parties might reach a political agreement and seek UN help in implementing it.

Member States had agreed that contingency planning for other eventualities, including a worst-case scenario, should also proceed, Mr. Boutros-Ghali said. A number of countries had expressed readiness in principle to consider contributing troops, provided certain conditions were fulfilled. Other Members had also expressed readiness in principle to consider providing assistance for intervention. However, none had yet volunteered to take the lead in planning, deploying and commanding the operation, he stressed. In view of the urgency, he would use his good offices to facilitate consultations among the various Members that had individually indicated possible interest in contributing. Planning for such a multinational force, however, was beyond the Secretariat's capacity and should, as in the past, be carried out by the Member State or States taking the lead in the operation.

Seeking the Council's support, Mr. Boutros-Ghali emphasized: "It is essential for the international community to demonstrate to all parties in Burundi that it has the political will and the capacity to take timely and effective action to avert another tragedy in the Great Lakes region."

On the question of a possible establishment of a UN radio station in Burundi to combat hate propaganda, the Secretary-General reported that a technical mission sent to the country in April had concluded that it was not a viable option now or in the foreseeable future. A radio station on the scale required would involve language constraints and risks beyond the control of the UN that would significantly reduce its chances of success.

On 15 April, the Council had also condemned acts of violence in Burundi, cautioning that reported statements calling for the arming of civilians could have "grave consequences". The dramatic increase in violence already severely inhibited humanitarian aid and could have a negative effect on donors' capacity to implement development assistance in support of reconciliation and rehabilitation.

In a presidential statement (S/PRST/1996/21), the Council expressed concern over the widespread purchase and use of weapons by Burundians, particularly the laying of land-mines. It urged the authorities and all parties "to set aside their differences and demonstrate the necessary cohesion, unity and political will for settlement of the conflict by peaceful means". They should renounce violence and engage in a comprehensive dialogue.

National debate

The Secretary-General was asked to report back by 1 May 1996 with recommendations on progress towards the commencement of a national debate and other initiatives for comprehensive political dialogue and national reconciliation. In that regard, the Council fully supported the efforts of the Secretary-General's Special Representative, as well as those of former President Nyerere and other envoys, "to resolve the present crisis".

In accordance with resolution 1049 (1996) of 5 March, the Secretary-General was also asked to consult with Member States concerned and the Organization of African Unity, as appropriate, "on contingency planning both for the steps that might be taken to support a comprehensive dialogue and for a rapid humanitarian response in the event of widespread violence or serious deterioration in the humanitarian situation in Burundi". Also underlining its commitment to closely follow events in the country, the Council said it would consider "all relevant options for an appropriate response by the international community" after reviewing the Secretary-General's impending report. "I fear that there is a real danger of the situation in Burundi degenerating to the point where it might erupt into a genocidal conflict", the Secretary-General told the Council in a letter of 12 April (S/1996/313).

Conveying "alarming information" received from his Special Representative, the Secretary-General said the security situation in the country had taken another "turn for the worse" during March, with a sharp increase in the number of attacks by Hutu rebels. Heavy fighting, formerly concentrated in the northern part of Burundi, had spread to areas in the south that had previously remained untouched by conflict. Estimates placed a few thousand rebels in that part of the country, who were building light fortifications and using more sophisticated weapons, including mines, according to the Secretary-General.

"Serious differences" had also emerged in the relations between Burundi's President Sylvestre Ntibantunganya--a Hutu--and Prime Minister Antoine Nduwayo--a Tutsi--regarding negotiations with the armed opposition. The President favoured negotiations with the Hutu rebels on the condition that they gave up violence, while the Prime Minister opposed any negotiations and had "invited the Tutsi community to arm itself".

Former President Nyerere's efforts were taking place in a very tense atmosphere, the Secretary-General went on, adding that "we will soon know whether the envisaged dialogue has any chance of being started."

Noting reports of arms having recently been distributed to civilians in the capital and elsewhere, the Secretary-General said the situation had deteriorated to the point that "senior parliamentarians have expressed deep concern that the armed forces might engage in reprisals against the Hutu population still living in Bujumbura and its suburbs".

Rights observers

On 27 March, the Commission on Human Rights called for an increase in the number of observers for Burundi to monitor the human rights situation there and prevent abuses. In a resolution adopted without a vote, the Commission condemned all threats to the democratic process and demanded an immediate end to human rights violations and acts of violence and intimidation. The action came at the end of a special meeting held to examine the deteriorating human rights situation in Burundi. The Commission also condemned the massacres of civilians over the past several years and urged the authorities to put an end to the prevailing situation of impunity. Also, it extended the mandate of the Special Rapporteur on the human rights situation in Burundi for one year, and asked Human Rights High Commissioner Jose Ayala Lasso to set up an assistance programme for the country.

In a 27 February report (E/CN.4/ 1996/16/Add.1), the Special Rapporteur, Paulo Sergio Pinheiro of Brazil, had warned of a "creeping genocide" marking the situation in Burundi for the past year, and had called for the immediate deployment of at least 100 human rights observers. During a visit to Burundi from 9 to 16 January, he had found little or no progress on certain major issues.