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For a Safer Tomorrow Protecting Civilians in a Multipolar World Oxfam Ireland, Món Oxfam (Spain), Tional 2008 Na Ong, Inter Acterises Modern Warfare

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For a Safer Tomorrow Protecting Civilians in a Multipolar World Oxfam Ireland, Món Oxfam (Spain), Tional 2008 Na Ong, Inter Acterises Modern Warfare For a Safer Tomorrow For a Safer Tomorrow Protecting civilians in a multipolar world Since the end of the Cold War, the number of armed conflicts in the world has fallen. But is this trend now about to be reversed? Climate change, poverty and inequality, and the wider availability of weapons all add to the risk of conflicts increasing. In 1949, the Geneva Conventions enshrined people’s rights to be protected from atrocities in conflict. Yet civilians are still killed, raped, and forced to flee their homes, 60 years on. In 2005, almost every government in the world agreed its Responsibility to Protect civilians. Many have failed to keep this promise. Governments must now make new efforts to take up the challenge in a rapidly changing ‘multipolar’ world, where China and the USA will be the ‘superpowers’, and Protecting civilians in a m where India, the European Union, Brazil, and others are gaining new global influence. Many people feel that there is little that can be done to prevent the brutal targeting of civilians that characterises modern warfare. They are wrong. This report, based on Oxfam International’s experience in most of the world’s conflicts, sets out an ambitious agenda to protect civilians through combining local, national, and regional action with far more consistent international support. ultipolar wor For ld a Safer Eric Canalstein/UN Photo Tomorrow www.oxfam.org © Oxfam International 2008 Protecting civilians Oxfam International is a confederation of 13 organisations working together in more than 100 countries to find lasting solutions to poverty and injustice: Oxfam America, Oxfam Australia, Oxfam-in-Belgium, in a multipolar world Oxfam Canada, Oxfam France - Agir ici, Oxfam Germany, Oxfam GB, Oxfam Hong Kong, Intermón Oxfam (Spain), Oxfam Ireland, Oxfam New Zealand, Oxfam Novib (Netherlands), and Oxfam Québec. am Vitale/Oxf Ami Oxfam International is a Oxfam France - Agir ici Oxfam Québec Linked Oxfam Acknowledgements confederation of 13 104 rue Oberkampf, 2330 rue Notre Dame Ouest, organisations. organisations working 75011 Paris, France bureau 200, Montreal, The following organisations This report was written by Edmund Cairns, Research Co-ordinator of Oxfam together in more than Tel: + 33 1 56 98 24 40 Quebec, H3J 2Y2, Canada are linked to Oxfam E-mail: Tel: +1 514 937 1614 International: International’s humanitarian campaign. 100 countries to find [email protected] E-mail: [email protected] lasting solutions to Oxfam Japan www.oxfamfrance.org www.oxfam.qc.ca Maruko bldg. 2F, 1-20-6, Nicholas Martlew provided principal research assistance, with additional research by poverty and injustice: Oxfam Germany Higashi-Ueno, Taito-ku, Kim Scriven and Anna Hirsch-Holland. The report was edited by Jacqueline Smith and Oxfam America, Tokyo 110-0015, Japan Greifswalder Str. 33a, Oxfam International Oxfam Australia, Tel: + 81 3 3834 1556 designed by Alison Beaumont. The author would like to thank everyone who helped in 10405 Berlin, Germany Secretariat: Suite 20, 266 Oxfam-in-Belgium, Tel: +49 30 428 50621 E-mail: [email protected] Banbury Road, Oxford, www.oxfam.jp its production including Michael O’Hanlon of the Brookings Institution, Katie Allan, Oxfam Canada, E-mail: [email protected] OX2 7DL, UK Jo Leadbeater, and Oxfam staff in more than 30 countries. Oxfam France - Agir ici, www.oxfam.de Tel: +44 1865 339100 Oxfam Trust in India Oxfam Germany, Email: information@oxfam- B - 121, Second Floor, Oxfam GB Malviya Nagar, New Delhi, Oxfam GB, Oxfam House, John Smith international.org. www.oxfam.org 1100-17, India First published by Oxfam International in 2008. This publication is distributed in print for the Oxfam Hong Kong, Drive, Cowley, Oxford, Tel: + 91 11 2667 3 763 Intermón Oxfam (Spain), OX4 2JY, UK Oxfam International publisher by Oxfam GB and is available from E-mail: [email protected] Oxfam Ireland, Tel: +44 1865 473727 advocacy offices: www.oxfamint.org.in © Oxfam International 2008 Oxfam Publishing, Oxfam House, John Smith E-mail: E-mail: advocacy@oxfam- Oxfam New Zealand, Oxfam International and Drive, Cowley, Oxford OX4 2JY, United Kingdom [email protected] international.org ISBN: 978-0-85598-630-8 Oxfam Novib www.oxfam.org.uk Ucodep Campaign Office (email: [email protected]). (Netherlands), and Brasília: Via Masaccio, 6/A 52100 SCS Quadra 8 Bloco B-50 Sala A catalogue record for this publication is available Oxfam Québec. Oxfam Hong Kong Arezzo, Italy For details of local agents, stockists, and 17/F., China United Centre, 401, Edifício Venâncio 2000, Tel: +39 0575 907826 from the British Library. Please call or write to Brasília-DF, 70333-900, Brazil representatives throughout the world, consult 28 Marble Road, Fax:+39 0575 909819 any of the agencies for North Point, Hong Kong Tel: +55 61 3321 4044 E-mail: ucodep-oi@oxfam- Published by Oxfam International, Oxfam the website: www.oxfam.org.uk/publications further information, or Tel: +852 2520 2525 Brussels: international.org International Secretariat, Suite 20, 266 Banbury E-mail: [email protected] Rue Philippe le Bon 15, Copies of this report and more information are visit www.oxfam.org. Road, Oxford OX2 7DL, United Kingdom. www.oxfam.org.hk 1000 Brussels, Belgium available to download at www.oxfam.org Oxfam observer member Oxfam America Tel: +32 2 501 6700 All rights reserved. This publication is copyright, Intermón Oxfam (Spain) The following organisation Printed by Information Press, Eynsham 226 Causeway Street, Roger de Llúria 15, Geneva: is currently an observer but may be reproduced by any method without 5th Floor, Boston, MA 15 rue des Savoises, Cover printed on FSC accredited 100% recycled 08010, Barcelona, Spain member of Oxfam fee for advocacy, campaigning, and teaching 02114-2206, USA Tel: +34 902 330 331 1205 Geneva, Switzerland International, working paper, inners printed on recycled paper made Tel: +1 617 482 1211 Tel: +41 22 321 2371 purposes, but not for resale. The copyright holder E-mail: towards possible full with 100% post-consumer waste. (Toll-free 1 800 77 OXFAM) [email protected] New York: affiliation: requests that all such use be registered with them E-mail: www.intermonoxfam.org 355 Lexington Avenue, Fundación Rostros y Voces for impact assessment purposes. For copying in Oxfam is registered as a charity in England and [email protected] 3rd Floor, New York, www.oxfamamerica.org Oxfam Ireland (México) any other circumstances, or for re-use in other Wales (no. 202918) and Scotland (SCO 039042). NY 10017, USA Alabama 105, Colonia Dublin Office, 9 Burgh Quay, Tel: +1 212 687 2091 publications, or for translation or adaptation, Oxfam GB is a member of Oxfam International. Oxfam Australia Dublin 2, Ireland Napoles, Delegacion Benito Washington: Juarez, C.P. 03810 Mexico, prior written permission must be obtained from 132 Leicester Street, Carlton, Tel: +353 1 635 0422 Victoria 3053, Australia 1100 15th St., NW, Ste. 600, D.F. the publisher, and a fee may be payable. Belfast Office, 115 North St, Tel: +61 3 9289 9444 Belfast BT1 1ND, UK Washington, DC Tel: + 52 5687 3002/5687 3203 E-mail: Tel: +44 28 9023 0220 20005–1759, USA Fax: +52 5687 3002 ext. 103 [email protected] E-mail: Tel: +1 202 496 1170 E-mail: comunicación@ www.oxfam.org.au rostrosyvoces.org Front cover image: Fadera Diatta, displaced by communications@oxfam www.rostrosyvoces.org the war in Casamance (2000). Oxfam-in-Belgium ireland.org Ami Vitale/Oxfam Rue des Quatre Vents 60, www.oxfamireland.org 1080 Brussels, Belgium Oxfam New Zealand Tel: +32 2 501 6700 Back cover image: The Indian contingent of the PO Box 68357, Auckland E-mail: 1145, New Zealand United Nations Mission in Liberia (UNMIL), [email protected] Tel: +64 9 355 6500 consisting mostly of women, arrives in Monrovia www.oxfamsol.be (Toll-free 0800 400 666) to begin its tour of duty (2007). Oxfam Canada E-mail: [email protected] Eric Canalstein/UN Photo 250 City Centre Ave, Suite www.oxfam.org.nz 400, Ottawa, Ontario, Oxfam Novib (Netherlands) K1R 6K7, Canada Mauritskade 9, Tel: +1 613 237 5236 Postbus 30919, 2500 GX, E-mail: [email protected] The Hague, The Netherlands www.oxfam.ca Tel: +31 70 342 1621 E-mail: [email protected] www.oxfamnovib.nl Contents Summary 2 1 Introduction 23 2 Real and future danger 39 3 Building on success 67 4 Standing between people and protection 95 5 In place of failure 112 6 Conclusion: choosing the future 131 Notes 134 Index 145 1 Governments and others can reduce the mass atrocities that blight the Summary world in the early twenty-first century. To do so, they need to make four changes that this report will explore. They need to: • make the protection of civilians the overriding priority in the response to conflicts everywhere – actively working to protect civilians, and upholding the Responsibility to Protect civilians from mass atrocities, agreed at the 2005 UN World Summit, as a cornerstone of policy; One night in March 2007, soldiers arrived in the village of Buramba in the Democratic Republic of Congo (DRC). By the time they left at least 15 • adopt zero tolerance of war crimes – whether in counter-terrorism or people were dead. ‘At 5.30 in the morning’, one survivor said, ‘I saw the elsewhere – applying the same standard of international opprobrium to soldiers coming to our house…They kicked down the door, and killed eight war crimes committed by friends or foes alike; people inside. Only my four grandchildren survived. [They] continued • act much more quickly to tackle the trends that threaten new or firing in the village. I fled into the bush. I returned three days later to see prolonged conflicts – including poverty and inequality, climate change, the bodies of my children and my mother.
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