Cambodian Peace Was Just a Day Away; Hun Sen's Coup Derailed Ceremony to Announce Truce With Khmer Rouge
After six weeks of secret meetings and a violent power struggle here in the jungles of northern Cambodia, a watershed moment in this country's tortured history was at hand.
The last holdouts of the Khmer Rouge, the radical Communist guerrillas who had killed more than 1 million people when they ruled Cambodia in the late 1970s and thousands more after their ouster, were giving up. They had deposed their notorious leader Pol Pot, effectively abandoned their war against Cambodia's government and had agreed to a formal "surrender" ceremony in which their forces would join the Cambodian army.
As a result of negotiations that Pol Pot violently opposed, but ultimately failed to prevent, it seemed that the end of the 35-year-old guerrilla movement was near -- and with it a termination of the civil war that has gripped the country for most of that time. Plans were made to announce the deal in a ceremony scheduled for July 6. The ceremony never took place. On that day, Second Prime Minister Hun Sen declared himself in full control of the government and announced the overthrow of his rival, First Prime Minister Prince Norodom Ranariddh. Apparently fearing that the peace agreement was a ploy to weaken him politically and militarily, Hun Sen had launched a coup July 5 to scuttle it. Now, Hun Sen's political opponents are waging armed resistance to his authoritarian rule, and there are signs that the Khmer Rouge remnants -- minus Pol Pot -- are reuniting to help them. In the tragic logic of Cambodian politics, an initiative that seemed only a day away from bringing long-awaited peace has instead brought more war. The story of the ill-fated peace initiative, played out in this Khmer Rouge jungle stronghold surrounded by land mines, emerges from documents and interviews with the government and Khmer Rouge negotiators involved in the talks. The Khmer Rouge officials were interviewed at the time of an extraordinary July 25 show trial in which an ailing Pol Pot was sentenced to "life imprisonment" by a tribunal made up of younger guerrilla leaders, who had revolted against him in June. Frail, white-haired and visibly traumatized, the former dictator hobbled on a bamboo cane as he was escorted away to house arrest. Government documents obtained by The Washington Post, signed by both the government and Khmer Rouge negotiators, show that on July 4 the guerrillas finally had agreed to integrate their troops into the army and recognize the government. The agreement, principally between Ranariddh and the Khmer Rouge's nominal leader Khieu Samphan, was the culmination of a score of secret meetings between Khmer Rouge leaders and government military negotiators. The talks proceeded against a backdrop of bitter divisions within both the government and the Khmer Rouge. Ranariddh and Hun Sen, steadfast political opponents, coexisted uneasily as co-prime ministers. The Khmer Rouge, meanwhile, had split a year ago when about half its fighters, followers of former Khmer Rouge foreign minister Ieng Sary in the western gem-mining center of Pailin, agreed to join the government army in a deal brokered by Hun Sen. Pol Pot, in firm control of the rest of the organization in its northern redoubt of Anlong Veng, bitterly opposed any peace negotiations. But many of his top commanders, seeing continued warfare as futile if they played no political role, wanted to strike a deal like the one agreed to in Pailin. Pol Pot's notoriety made him a major obstacle to such an accord. Between April 1975 and January 1979, when he ruled the country as head of a Khmer Rouge government, Pol Pot orchestrated a campaign of terror and mass murder that left more than 1 million Cambodians dead and the country in ruins. Formal negotiations with the Khmer Rouge were attempted last February, but Pol Pot loyalists ambushed a government team of 15 emissaries when its helicopter landed in Khmer Rouge territory. Ten of the government officials were executed and the rest were taken prisoner. Negotiations resumed on May 16, when a government military delegation met with Khmer Rouge officials led by Tep Kunnal, a senior political figure. A government negotiator who was at the meeting quoted Tep Kunnal as saying "he was in favor of national reconciliation and wanted a permanent cease-fire . . . to study whether we could work together to allow their territory and army to join the government." Tep Kunnal, a French-educated engineer and longtime Khmer Rouge diplomat and political strategist who joined the group in the early 1970s, has emerged as a top new leader. He served more than a decade in New York in the U.N. mission of the former Khmer Rouge government-in-exile and is knowledgeable about U.S. politics. A series of talks continued through the end of May and into early June, with government army negotiators repeatedly traveling by helicopter to Anlong Veng. "Pol Pot was informed of the negotiations," said a government negotiator. "At first Pol Pot said he was in favor of negotiations. But our side insisted strongly that Pol Pot must be completely out. So we discussed secretly with the new {Khmer Rouge} military leaders. So that was why Pol Pot was getting mad. We asked to exclude him." The guerrillas agreed in principle to integrate their army into the government armed forces, recognize the Cambodian constitution and formally disband their "provisional government," according to Khmer Rouge and government sources. On June 1, Ranariddh met Khieu Samphan, the nominal leader, secretly near the Thai border, according to Ranariddh. On June 5, the two sides met at the historic temples at Preah Vihear, where the guerrillas were preparing a site to announce the agreement. But that evening, Im Nguon, chief military representative on the negotiating team and chief of staff of the new Khmer Rouge army, called a senior government negotiator by mobile telephone "and asked me to work carefully on the issue secretly, because the negotiations were very sensitive," the government negotiator said. "I realized that this was a signal that there was a split within the Khmer Rouge. I realized that within the Khmer Rouge there was a split on negotiations. I didn't know who it was between, but {Im} Nguon was warning me." The next meeting was scheduled on June 10, "but there was a big problem," one of the government negotiators said. Khmer Rouge defense minister Son Sen and 12 members of his family and inner circle had been found murdered. It was the beginning of Pol Pot's attempt to scuttle the political negotiations through a violent purge of Khmer Rouge ranks. On June 12, top government military commander Gen. Nhek Bun Chhay and one other government colonel arrived by helicopter in Anlong Veng to find a Khmer Rouge at war with itself. Most of the Khmer Rouge negotiating team, including Tep Kunnal and Khieu Samphan, had been taken hostage by Pol Pot and his loyalists. Heavy fighting, involving mortars, artillery and small arms, could be heard just a couple of miles away, as the Khmer Rouge factions battled for control. Pol Pot's Hostages The Khmer Rouge negotiator, Im Nguon, reported that Pol Pot was holding hostage "all those who were in favor of national reconciliation." The Khmer Rouge said the situation was critical, and asked for immediate military support "to help liberate the hostages," according to one of the government negotiators. "After that we immediately took the helicopter to {the nearby government military base at} Samrong to bring ammunition -- mainly AK-47 ammunition but also heavier ammunition," including helicopters loaded with mortars, rocket-propelled grenades and other heavy munitions, the government negotiator said. With Pol Pot and his loyalists on the run and the entire political leadership held hostage in nearby jungles, government negotiators moved fast. Nhek Bun Chhay flew in from Phnom Penh on June 12 and shuttled back and forth delivering ammunition before returning to the capital. It was that day, while fighting raged in the surrounding jungle, that Nhek Bun Chhay first met Khmer Rouge strongman Ta Mok, the 72-year-old, one-legged overall commander of the new Khmer Rouge who had joined the revolution in 1963 with Pol Pot -- and now had turned against him. "I place all my hope on you," he reportedly told Nhek Bun Chhay. "Please continue the negotiations for national reconciliation in order to bring trust between our two groups. I want to see peace in Cambodia and to not see any more killing," he was quoted as saying. The next day, June 13, the government team returned by helicopter. "It was a very tense meeting because the fighting was still going on, and they asked us to postpone the meeting because they had to solve their internal problems first," one of the negotiators said. The team left after four hours. When they returned four days later, they were told that "the situation had calmed down" and that some of the hostages had been rescued. "They said that Tep Kunnal and the others had been liberated and they would arrive back the next day, but political leader Khieu Samphan was still held and Pol Pot had not yet been captured," one of the negotiators said. On the next day, they returned and met with Tep Kunnal, who "expressed fear for his group because Khieu Samphan, their leader, was missing with Pol Pot," according to the government negotiator. Tep Kunnal said that Pol Pot's battle slogan was, "Fight! Fight! Fight! Struggle! Struggle! Struggle!" Meanwhile, back in Phnom Penh, there was another developing issue: the attitude of Cambodia's other prime minister, Hun Sen. Nhek Bun Chhay and other government military officials say Hun Sen was kept informed of daily developments by a committee of senior military and political officials, formed earlier this year to ease tensions between the two government camps headed by Ranariddh and Hun Sen. "Tep Kunnal . . . asked about Hun Sen's stance. What did Hun Sen say about the groups returning back to join the society?" recalled a government negotiator. The team replied that there "was no problem provided that he abandon Pol Pot, accept the constitution, and integrate their army." Strongman's Downfall As the days went on, Pol Pot's remaining loyalists, who had numbered only about 300, began to abandon him one by one. He had fled northeast toward the Thai border, and by June 19 was surrounded. When the man who had once wielded absolute power over 7 million people was finally captured, two of his soldiers were carrying him through the jungle in a green Chinese military hammock strung on a bamboo pole. With him were his wife, a woman in her 30s, their 12-year-old daughter, a niece, three other loyalists and Khieu Samphan as hostage. A witness to his capture said he was given oxygen immediately and seemed near death from exhaustion and trauma, which were exacerbating his serious heart disease and high blood pressure. A white Toyota Land Cruiser that the Khmer Rouge had seized from U.N. peacekeepers years earlier was sent to bring him back to Anlong Veng. On June 21, government negotiators returned to Anlong Veng, where they met a tired and drained Khieu Samphan. Nearby was a very sick 72-year-old man hooked to an intravenous drip with an oxygen mask over his face. When asked by government negotiators if they could take a picture of Pol Pot to prove to the world that he was alive and captured, Ta Mok erupted: "Let me throw the contemptible Pol Pot in a cage first, and then you can take his photograph!" "He was very angry," said a witness. Ta Mok reportedly told negotiators they could take Pol Pot away if they could find a suitable place in exile for him, but no specific country was mentioned. From that point, the peace negotiations moved more quickly. On June 20, during an official visit by Thai Prime Minister Chavalit Yongchaiyudh to Phnom Penh, Ranariddh announced that Pol Pot was under arrest and Khieu Samphan would agree to surrender. The comments were met with widespread skepticism by diplomats and others, coming on the heels of similar claims over recent months that had proved unfounded. A military subcommittee was formed to hammer out the details of integrating the guerrillas into the government army. Nhek Bun Chhay demanded that the Khmer Rouge announce its support of the Cambodian constitution over their clandestine radio broadcasts. The Khmer Rouge prepared a draft statement agreeing to support the constitution, turn over their army and territory to formal central government command and recognize the role of King Norodom Sihanouk as sovereign of the nation. But the government negotiators spent days hammering out wording and demanding the deletion of vitriolic language condemning Hun Sen -- particularly frequent references to the second prime minister as "contemptible" and a "puppet" of Vietnam. Hun Sen defected from the Khmer Rouge in 1977. Vietnam installed him as Cambodia's foreign minister after its invasion toppled Pol Pot in 1979 and later elevated him to prime minister. "We said to them to you must stop using these words. . . . We asked specifically to stop using `puppet' . . . in their language on the draft announcement to surrender to the government," said one of the chief government negotiators. On June 22, the Khmer Rouge reiterated a request for assurances that they be allowed to keep the same military arrangement in Anlong Veng that was given to earlier defectors. In those cases, the military units changed into government uniforms and pledged allegiance to the king, government and constitution, but were not forced to disperse from their territory. Nhek Bun Chhay agreed. And it was agreed that the former Khmer Rouge, who now called themselves the National Unity Party, could join the National United Front coalition of anti-Hun Sen political opposition parties, which had been formed earlier this year in preparation for elections scheduled for 1998. Request for Amnesty On June 29, Khmer Rouge leader Ta Mok met the government negotiators over lunch at Anlong Veng. Ta Mok complained about attempts to bring him to an international court on charges of crimes against humanity, citing the royal amnesty granted to former Khmer Rouge official Ieng Sary after his defection last year. "Now Ieng Sary has already been given amnesty by the king, and Ieng Sary was number three in the command structure of the Khmer Rouge. But I was number five. So if the number three is amnestied, why not me who was less powerful?" complained the commander who has been accused of leading major purges of political enemies during the Khmer Rouge's years in power. "From the very beginning of the struggle to now I have never issued an order to kill anyone," Ta Mok contended, according to sources who were present. "All orders were decided by Pol Pot alone. Pol Pot made all decisions with absolute dictatorship!" The question of Ta Mok's fate was left unresolved. A formal surrender ceremony was tentatively set for June 30, "but the problem was lack of helicopter transportation for all the journalists and diplomats" to the remote jungle base, which is surrounded by thousands of land mines and is unreachable by road. In any event, a few small issues remained. By July 3 both sides had hammered out all details of the agreements, "and we flew back to Phnom Penh to report to the prime minister that everything was finished," one of the government negotiators said. A statement that was to be announced on the radio and read by Khieu Samphan at a press conference on July 6 was signed by both sides, including Ranariddh on behalf of the government. "On 4 July we flew back to Anlong Veng and we informed the Khmer Rouge to proceed because we got the final agreement from Prime Minister Ranariddh," said one of the chief government negotiators. The surrender ceremony was to be held at the Preah Vihear temple site, with diplomats and journalists flown in to witness the historic occasion. It never happened. Early on the morning of July 5, Hun Sen launched his coup d'etat in Phnom Penh, targeting Nhek Bun Chhay and inflicting a total military and political defeat on Ranariddh's forces in the capital within 48 hours. The chance for a negotiated peace, only 24 hours away, was gone. Back to Square One Ranariddh's forces are now holed up in jungle sanctuaries, and Hun Sen, in control of the government, is sending thousands of troops and heavy weapons to the areas in an attempt to subdue them. The forces loyal to Ranariddh have begun to form a military coalition with former Khmer Rouge fighters, both from Anlong Veng and from the other faction that surrendered last year. "I hope that ASEAN {the Association of Southeast Asian Nations} and the international community will be aware that our government was not able to take Anlong Veng militarily, in a series of major offensives since 1993," Ranariddh said in an interview in Bangkok last week. "Now it is Hun Sen alone. My priority is diplomatic and political struggle, but I have clearly warned the U.S. if you do not help me put pressure on Hun Sen, you will have civil war, a bloody civil war, and you cannot avoid having the participation of the Khmer Rouge." He added, "The Khmer Rouge are coming back, but they are coming back as nationalists, patriots, not as killers. It is not fair that they accuse Ranariddh. It is Hun Sen who has brought back the war."