Assessment of the state of democratic consolidation and governance in Guatemala : late 1996

Concurrently, negotiations between the Government and the Unidad Revolucionaria Nacional de Guatemala (URNG) have yielded six "substantive accords," all signed since an autogolpe (suspension of constitutional liberties and democratic institutions) failed in May of 1993. A definitive "firm and lasting" Peace Accord is to be signed in Guatemala City on December 29, 1996. The peace process creates a more positive set of circumstances for democratic transition and consolidation than has existed in over four decades. Yet not all Guatemalan actors are enthusiastic about democratization. This report describes the political climate in Guatemala; identifies important or potentially important political actors, key institutions, and arenas of interaction; outlines the legal framework and the political dynamics; and suggests a role for international donors. In general, three challenges must be met: (1) broadening the vision of the political community on behalf of whom democracy is to be constructed, (2) reducing the use of coercive force in Guatemalan society and politics, and (3) creating an environment conducive to citizen participation in the political process. Crucial actors include (1) organized groups in civil society, including those, such as women and indigenous peoples, who until recently have not organized effectively to express their policy interests; (2) the military and police; and (3) the URNG and various "uprooted peoples", such ex-combatants, exiles, and internal migrants seeking to avoid violence. As for programmatic intervention, four areas seem crucial for donor support: (1) reform of the justice sector; (2) efforts to improve human rights performance (and see that past violations are dealt with in a fashion that contributes to accountability and reconciliation); (3) a variety of mechanisms to increase participation in political life -- electoral participation, participation in advocacy and monitoring organizations in civil society, as well as participation in new venues, such as local development councils, at the local government level; and (4) Congressional modernization, which will be crucial to establishing a juridical basis for implementing the Peace Accords. Includes references. (Author abstract, modified)