“HUMANITARIAN INTERVENTION TODAY:

NEW ISSUES, NEW IDEAS, NEW PLAYERS”

EXECUTIVE SUMMARY OF THE C ONFERENCE P ROCEEDINGS Sponsored by the Conrad N. Hilton Foundation The Hilton New York • New York City • September 24, 2003

The fifth international humanitarian assembly sponsored by the Conrad N. Hilton Foundation brought together leaders from governments, non-governmental organizations (NGOs), foundations, corporations, and multilateral institutions to explore the changing and challenging circumstances that are transforming the landscape of humanitarian interventions in the 21st century. In addition to the distinguished panelists, the Honorable Mary Robinson, executive director of the Ethical Globalization Initiative and former United Nations High Commissioner for Human Rights and President of Ireland, delivered the keynote address. As in previous years, the conference was broadcast on the Internet. Its complete proceedings are published and distributed to world leaders and are also available on the Hilton Foundation website.

The assembly was held in conjunction with the eighth annual presentation of the Conrad N. Hilton Humanitarian Prize. His Holiness the Dalai Lama, spiritual and temporal leader of the Tibetan people and recipient of the 1989 Nobel Peace Prize, was the keynote speaker for the Hilton Prize luncheon honoring the 2003 recipient, International Rehabilitation Council for Torture Victims (IRCT). The Denmark-based global network of rehabilitation centers and programs in 80 countries supports and promotes the rehabilitation of victims of torture and advocates worldwide for the prevention and eradication of torture.

SPEAKERS

CONFERENCE ADDRESS PANEL THREE The Honorable Mary Robinson “Civil-Military Cooperation—An Impossible Dream?” Executive Director, Ethical Globalization Initiative, George F. Ward, Jr. Former United Nations High Commissioner for Human Rights Former Coordinator for Humanitarian Assistance, Office of Reconstruction and Humanitarian PANEL ONE Assistance, Iraq (ORHA) “Expanding Humanitarian Space: A Challenge for Global Philanthropy” “The Role of the UN in Reconstruction in Iraq” Lincoln Chen, M.D. Mark Malloch Brown Director, Global Equity Initiative, Harvard University Administrator, United Nations Development Programme (UNDP) “Human Security Through Women’s Eyes” Noeleen Heyzer, Ph.D. PANEL FOUR Executive Director, “Ending Global Poverty” United Nations Development Fund for Women (UNIFEM) Jeffrey D. Sachs Director, The Earth Institute at Columbia University and PANEL TWO Special Advisor to the UN Secretary-General “Righting Human Wrongs: on the Millennium Development Goals The First Arab Human Development Report” Zahir Jamal “Religion: the Little Girl with the Curl” Chief of Regional Programmes in the Arab States, Robert A. Seiple United Nations Development Programme (UNDP) Chairman and Founder, Institute for Global Engagement

“Opportunities for Africa in the HIV/AIDS Pandemic” “Reaching Those in Greatest Need? Bob Francis Jalang’o Current Realities—Future Trends” Former Permanent Representative, Todd Petersen Republic of Kenya to the United Nations Chief Executive Officer, HelpAge International

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ONFERENCE YNOPSIS C S

“The challenge has been, and continues to be, how to best prevent and alleviate human suffering, no matter what. It is the ‘no matter what’ that makes us pause. Starting in 1998 with (Hilton Conference) ‘Humanitarian Challenges in the New Millennium,’ perhaps at some level we have simply been reacting to a major symbolic change—moving into a new century and new millennium. But as it so happens, the changes have been very real and very concrete indeed. We knew about the end of the Cold War, the collapse of communism, the proliferation of ethnic and religious regional and local conflicts, and globalization in 1998. We did not foresee what else was coming—September 11, a war in Afghanistan, another in Iraq, a world reeling from threats of terrorist attacks and the subsequent reality of attacks. The challenge that brings us together, that makes us seek each other out, is that for all the differences these catastrophes and disruptions have, they all, without exception, demand a humanitarian response. We are all in this together….Let us work together today to shed some light on dark times.” --Steven M. Hilton, President, Conrad N. Hilton Foundation

“Humanitarian Intervention Today: New was frequently repeated: the obligation to work Issues, New Ideas, New Players” brought for the prevention of conflict. “A new approach to together 270 participants—leaders, policy makers, humanitarian intervention must focus on and activists in the fields of humanitarianism and preventing conflicts and threats to human human rights. They were representatives of life through shared responsibilities—the governments, foundations, non-governmental responsibility to sovereignty.” In defining the organizations (NGOs), corporations, multilateral responsibility to sovereignty, she said, “This institutions, and the media. implies that when states are unable to provide protection and assistance for their citizens, they Starting with Mary Robinson, the repetitive note are expected to request and accept outside offers that sounded underneath all the speakers’ of aid. And if they refuse or obstruct access to comments was “security.” Robinson called for affected populations, thereby putting large humanitarian intervention that strengthened the numbers at risk, there is an international connections between human rights, human responsibility to respond.” development, and human security. The first panelist, Lincoln Chen picked it up and described Successful prevention of conflict will necessarily the “today” of the 21st century: “The world looks embrace dual values of protection and and feels very different today—more uncertain, empowerment. These are core human rights insecure, and troubled—than one decade ago.” principles that, if embraced as part of a new Moments later, Noeleen Heyzer was explaining appr oach to humanitarian intervention, can make why women keep stressing the need for “security, all the difference. Ralph Begleiter summed up the security, security.” day’s discussions noting the speakers’ references to all the changes affecting humanitarian work That security was such a common theme, of today: new relationships with the military; course, was due to the overwhelming reality relationships with government; relationships with facing humanitarians in the 21st century. Less religions; and, relationships to the new than five years into the new millennium, it is demographics of population. obvious we are on a new terrain that bears little relationship to the familiar terrain and ground rules of the previous 150 years of humanitarian interventions. Call it terrorism, guerrilla warfare, regional conflict; call it chaos. To a great degree, this is the space, as it was usually called, or theater, on which humanitarian intervention must operate. Terrorism is not a “one time only” or “freak phenomenon”; it is for the foreseeable future the status quo.

The challenge is not to cave into terrorism, but to learn how to operate with the same humanitarian values as always, but realistically. Mary Robinson sounded a theme early on that Steven M. Hilton, President, Conrad N. Hilton Foundation

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AREAS OF CONSENSUS

Still reeling from terrorism and its aftermath, still A global alliance. It is now recognized that a sorting it out, the discussions went forward, and global alliance of governments, international despite differences, there were common threads institutions, foundations, non-governmental and consensus discernible throughout. organizations, and the private sector, including business, is necessary in any serious effort to The humanitarian space is shrinking. What address a major humanitarian problem, be it started to become evident in the 1990s, often poverty, disease, education, or the aftermath of a seeming an aberration, is now undeniable as a violent conflict or natural disaster. And it was fact of life—humanitarians cannot go about their agreed, the military often must be included. The business as usual; they are often not allowed to challenge is how to assign responsibility and how carry out their mandate. Humanitarians are to work well together. What evaded consensus on losing the space they had taken for granted. There this topic was the question of unilateral versus is no longer the belief that all combatants in a multilateral intervention, with Iraq visibly conflict situation understand and respect the hovering over the discussion. humanitarian space in which they operate. This subject resonated with conference participants Catastrophic disease, especially HIV/AIDS, is a who asked many question about what a new human security issue. Mary Robinson called humanitarian space would look like. No one could HIV/AIDS “perhaps the greatest humanitarian give a definitive answer. challenge we face today.” Catastrophic illness not only causes human suffering, but the costs of There is a connection between terrorism and emergency medical care can precipitate a poverty. It cannot be demonstrated that poverty financial crisis, leading to a vicious spiral of directly causes terrorism. Not all terrorists are impoverishment. Catastrophic illness is truly the poor, but it is the climate created by poverty that catastrophe that can turn a family’s permits them to flourish. Poverty can create a circumstances around completely. With sympathetic populace that will protect terrorists HIV/AIDS the same effect is hitting entire and provide foot soldiers. With poverty comes an communities and societies. When countries get environment of insecurity, alienation, and a poorer, then systems break down along with feeling of loss of control. Terrorism finds a home. human security.

E XCERPTS FROM THE HONORABLE MARY ROBINSON

“Some in the humanitarian field have raised legitimate concerns about mixing international political and military management of crises under the flag of ‘humanitarian intervention.’ They warn of dangers in blurring the lines between humanitarian and more political intervention.

As one expert put it, ‘Without a way of distinguishing between political and humanitarian intervention, both conceptually and organizationally, humanitarian aid may well become more politicized and thus struggle with acceptance and safety, not to mind legitimacy…’ What is needed today is reflection on how we can continue to develop a positive relationship between those working to alleviate humanitarian crises and those working to promote systems of government which ensure respect for Mary Robinson, Executive Director, fundamental rights.” Ethical Globalization Initiative

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EXCERPTS FROM PANEL ONE

Both speakers talked about humanitarian and weapons-based security; and, finally, women, intervention in terms of human security, linking peace, and security belong on the Security humanitarian intervention inextricably to human Council agenda together. Involvement of women rights. Our basic impulse to intervene in human in peace -building and reconstruction is a major crises goes back to the very basics of our genetic key in returning to stable peace with sustainable makeup. Women must be brought into the development and democratic engagement. equation on human security. Their presence is a Reconstruction offers more than rebuilding prerequisite for lasting results. buildings. It is an opportunity to reconstruct constitutions, legal systems, and government Expanding the Humanitarian Space: Challenge institutions in ways that link human security, for Global Philanthropy. Covenants and laws human rights, and human development. Investing and clear divisions of labor crafted over the past in women is a way of addressing extremism, 150 years to guide humanitarian interventions because women never benefit from extremism or are breaking down. The humanitarian “space” is bad governance. shrinking in the 21st century. Civilians are targets; humanitarian agencies are seen as “We in the international community are more partisans; neutrality is equated with partisanship; comfortable having warlords at the peace table and, laws are dismissed. What endures, however, than women who hold these communities of hope are the values that propel us toward together. Yet when women come to the peace table, humanitarian intervention—human empathy, the the issues they bring are very different—issues that capacity of every human being for sympathizing have broken through the culture of shame and blame. They put on the table extremely difficult with the plight of others and to extend a helping issues that are crucial to the rebuilding hand to people in distress. process…issues like rape babies, traumatized

communities, inheritance, education—all issues of “What will the contours of humanitarian space look truth and reconciliation, of being able to find new like in the future? It will be determined, in part, by understanding or forgiveness in order to put the new issues, new ideas, and new players…One past behind and to rebuild a future. In fact, in such new idea is human security. The independent some of the communities that I visited in Rwanda, it Commission on Human Security’s report, ‘Human was very touching to hear the Tutsi and the Hutu Security Now,’ articulated four basic principles. women saying to one another, ‘Let’s adopt each First, human security is people-centered, prioritizing other’s orphans, because these are the children of security according to the perspective and agency of Rwanda.’ That is the depth of forgiveness that they people, not of states. Human security does not have come to…The brutalization of women in replace state security but complements state action Afghanistan under the Taliban was a very good to protect its citizens in a borderless world and indicator that the breakdown in women’s security strengthens concepts of human development and was the best barometer of the breakdown in human rights. Second, human security is national security, and yet nobody wanted to heed comprehensive, promoting freedom from both the early warning signals and take necessary violence and poverty. A mother is not consoled if action.” Noeleen Heyzer her child is killed by bacteria rather than a bullet.

One type of insecurity may generate another…Third, the strategy for human security is protection from above and empowerment from below...Finally, and most importantly, human security is interdependent. My security ultimately depends on your security. I am unable to achieve my own security at the expense of your insecurity.” Lincoln Chen

Human Security Through Women’s Eyes. There are four messages about security today: our lives are increasingly intertwined; global security is integrally linked with national security to the extent that there is no way to think of security realistically in unilateral terms; human security must be based on human rights and Lincoln Chen and Noeleen Heyzer human development, not on terms of military

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EXCERPTS FROM PANEL TWO

Out of two disparate topics, the speakers hardest on Africa. With 10% of the world’s identified a common factor for ultimate success— population, Africa has more than 70% of HIV- women’s empowerment and equality between men infected people; it has over 90% of the world’s and women. The status quo for much of the AIDS orphans. Focusing on a people-centered world, especially for countries in the Arab world approach may present new opportunities. and sub-Saharan Africa, leads to more than Development work in Africa has tended to be injustice. The absence of women as a dominated by practices that undermine the contributing factor to development in both areas importance of the network of human has been a major factor in the backwardness of relationships. Most highly-developed societies many countries. The low status of women in so seem to have ignored the need to maintain this much of African society has contributed to the human connectedness and have paid a high price spread of the HIV/AIDS pandemic and infection for social alienation. Africa still has this network among women. A change in women’s status and of human relationships and communities more or empowerment would bring a significant, and less intact and with very little technology. In almost immediate, reversal to the current Africa, the world has an opportunity to try situations. another approach to development: grafting technology onto a viable base of enhanced Righting Human Wrongs: the First Arab community life and supportive human Human Development Report. The results of the relationships. This approach may benefit the groundbreaking first Arab Human Development human race. Report defines stumbling regional development as a crisis of governance and identified three “I think it is safe to say that most societies are male cardinal deficits as obstacles to development— dominated, even if some societies are more male deficits in freedom, women’s empowerment, and dominated than others. While the vulnerability of knowledge. A safer world in the Arab region females to HIV continues to be much higher than requires: political regimes and their supporters that of males due to biological and social factors, working to narrow divides; internal tensions to be the tremendous opportunity that promoting gender mediated through pluralism and democratic parity provides is a focus on how to strengthen representati on; and, economic growth that natural relationships between boys and girls, women and men, to enhance a state of partnership. presents opportunities of the people. In the This gives Africa and the world a chance to absence of these factors, terrorism can flourish— deliberate on new symbols for manhood and the final breakdown in communication between womanhood. Which nurturing and caring attributes marginalized people and normative society. would mark out the new heroes? What would someone need to do to promote these new symbols “The (Arab Development) report made several of real men and real women? Would not the practical and far-reaching proposals…but they promotion of nurturing and caring attributes in the remain very difficult to implement in the context of long run be better for everyone’s survival and well- failed governance. However, expectations and being?” (Bob Francis Jalang’o presenting on pressures of a rising generation could rapidly tip behalf of Dr. Miriam Were, Chairman, National the balance in their favor. The report insisted that a Aids Control Council, Kenya) new inclusive and rights-based social contract was needed to guarantee essential freedoms and liberate capabilities…[Terrorism] finds its recruits in situations of conflict, oppression, and despair, where people lack economic security, political expression, and hope…As long as the sources of terrorism remain, the conditions remain ripe for further figures to emerge with their followings. In what some of you have already characterized as an unjust world order with rising inequality and millions on the wrong side of the inequality ladder, denied voice, or ownership over the direction of their lives, terror is often the weapon of the weak against the powerful.” Zahir Jamal

Opportunities for Africa in the HIV/AIDS Pandemic. The HIV/AIDS scourge has fallen p Bob Francis Jalang’o and Zahir Jamal

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EXCERPTS FROM PANEL THREE

Talking about the war in Iraq and Iraq’s The Role of the UN in Reconstruction in Iraq. reconstruction, the panelists, one having While accepting the absolute necessity and represented the U.S. government in Iraq and the importance of civilian/military relations and other representing the United Nations stressing the indispensability of the logistical Development Programme, found much to disagree capacity of military operations, Mark Malloch on, but they both acknowledged a common reality Brown underscored the increasingly disturbing in the foreseeable future —that in dealing with phenomenon that the space in which failed states and international terrorism, humanitarians can safely work is narrowing. civilian/military relations in humanitarian work Dialogue with the Taliban in Afghanistan or the are critical and essential. The problems they armed elements in Iraq is not possible. Beyond bring, however, can be troublesome. the extremely violent nature of the conflict is the fact that the nature of terrorism and the war Civil-Military Cooperation—An Impossible against it has created such a high degree of Dream. Why, despite much experience , do polarization, there is no neutral space in which civilians and military personnel often fail to work negotiation can take place. In the meantime, together as partners in humanitarian efforts? humanitarians are targeted; there is no middle Why can’t all the players recognize that space, only polar opposites. Recalling the humanitarians come in all shapes and sizes and situation in Northern Ireland, long treated as a that each has an appropriate role? George Ward military-only operation against terrorists, Malloch answered his own questions by describing the Brown reminded people that the resolution came cross-purposes under which both operate— only when a political dimension to the conflict different cultures, different mandates, different was acknowledged. interests, and different languages. These are exacerbated by the inability to communicate. Ad “I would just observe to a room of people such as hoc structures no longer suffice. In the U.S., a yourselves that we appear to have put ourselves in White House-level authority should oversee U.S. a situation where there is a military-only strategy humanitarian participation; government agencies in dealing with a global terrorist problem. Where is should reach out to NGOs and provide them early the counterpart political strategy of any seriousness access to planning efforts; the military should to address the soft support for these kinds of incorporate civilian government representatives in actions that are so much the enabling environment in which terrorism thrives? Ultimately the success its humanitarian operations centers; and, the or failure of terrorism is not the dozens, or U.S. should seek recognition at the UN that the hundreds, or even thousands of people who take up coalition model of dealing with failed states and weapons or are willing to be suicide bombers; it is international terrorism is here to stay and involve the broader support within a civilian community the UN in consultations and joint planning. that they enjoy. That is what has to be drained. That is where a political strategy is so necessarily “Cultural differences run quite deep. The military the counterpart.” Mark Malloch Brown with its focus on mission accomplishments sometimes fails to realize that other organizations have different objectives. This came home starkly to me in Iraq when a senior military colleague asked me what the acceptable casualty rate for humanitarian workers was, clearly assuming that there was such a figure. On the civilian side, humanitarians too often project that only they truly understand the plight of the downtrodden. These attitudes, when put together, can produce an explosive mixture. What can be done? We need to redefine humanitarianism in a way that recognizes the legitimacy and indispensability of both civilian and military roles. To accomplish this we need to recognize the existence of both shared and diverging interests.” George F. Ward, Jr. George F. Ward, Jr. and Mark Malloch Brown

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EXCERPTS FROM PANEL FOUR

Positive and negative appraisals and predictions to take religion seriously, not to understand our were forthcoming from the panelists, all based on own faiths, and not to learn and respect other sober and honest looks at the world today. We faiths, is to encourage the conditions that led to could end absolute poverty within a generation; 9/11. but not if we ignore the profound change in the world’s demographic profile that is fast bringing “The single biggest contribution that each one of us us to a point that by the year 2050, for the first can make to homeland security is to understand our own faith…and enough about our neighbor’s in time in human history, the number of people over the age of 60 will exceed those aged 0 to 15. We order to show them respect. Let me give you the could ignore religion as an important and backside of the mantra. Osama bin Laden did not legitimate factor in geopolitics, but do so at understand his own faith and certainly had no considerable peril. respect for anyone else’s. When you have a truncated faith, a redacted gospel, misunderstood,

inappropriately applied…in the hands of a religious Ending Global Poverty. For the first time in zealot, you have the potential for huge problems. history, the world could end extreme poverty This is really the new factor in today’s geopolitical within a generation, but leaders fear that the dynamic—madmen masquerading as devout problems are so overwhelming that facing them religionists. It is very scary indeed, and when it is will require too much of a commitment, too much bad it is horrid.” Robert A. Seiple money. The problems of disease, hunger, poverty, and environmental degradations are horrendous, Reaching Those in Greatest Need? Current but manageable. Poverty has declined in absolute Realities—Future Trends. We are on the cusp of terms. What is needed now is not high theory, but the most dramatic demographic shift in the practical, pragmatic investments in things like history of the human race. Birthrates are falling anti-malarial nets, road building, water and people are ageing. There are 500 million management, electrification. In 2001, we people over age 60 in the world today; by 2050 identified 49 basic life-saving interventions that there will be almost two billion, some 20% of the could save eight million lives per year. It would world’s population. Most will live in the take $25 billion a year. We can’t pretend we can’t developi ng world and they will be poor. Today do it. there are 16 million children under the age of 15 who are AIDS orphans; in the next 10 years there “…actually the more seriously you do the analysis, will be another 40 million. Who is taking care of the more rigorously you do it, and the more you them? More often than not, the grandparents; study what can be done and what can’t be done, they have lived in poverty; their children have how to do it and where to put the priorities, the died in poverty; and now it is poverty that is being more you realize something absolutely bequeathed to the next generation. In the shocking…we are truly so rich that if we ever really made a serious effort…for the first time in the Millennium Development Goals, not a single goal deals with older people. Something must be done history of the world [we have] the chance to end extreme poverty within a generation. Rigorous to address the poverty of the ageing be cause this analysis shows, and this is what makes one change is coming rapidly. shudder, that for less than one percent of the GNP of the rich world, we could end extreme poverty in “We are seeing an extraordinary shift in the our own generation.” Jeffrey D. Sachs numbers of old people…Why we have to care about this is because most older people, particularly in

Religion: the Little Girl with the Curl. “…and the developing world, are the poorest. If you really when she was good, she was very, very good and want to look at the poorest and most marginalized people, you look particularly in the developing when she was bad, she was horrid.” So it is with world for older women…We’ve focused a lot in the religion. Religion has been an important player in development world on the issue of the ageing world events, negatively and positively—the population. Twenty-five to twenty-eight percent of Crusades, the Inquisition—and in contrast, the the most rapidly ageing countries are in the OECD Peace of Westphalia. Most of the West separated countries and there will be profound changes in the religion and government, so we are reluctant and next 40 years…What is phenomenal about this uncertain how to include it in today’s geopolitical change is not only the scope of it, the size of it, but dynamic. The first war of the 21st century, 9/11, it is the pace of it. It is how quickly it is happening.” could be called a religious war, although the Todd Petersen enemy operated on a perversion of religion. Not o

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EXCERPTS FROM HIS HOLINESS THE DALAI LAMA

“The Conrad Hilton Foundation has been members of the society gains the benefit. And if established to promote humanitarian work, and society as a whole never feels affection, and the particularly to promote humanitarian work that whole society atmosphere is something cruel; then would extend toward the long-term well-being of each individual, everyone, will eventually suffer. human beings on this planet….One fact which So I always try to make clear compassionate impressed me was the farsightedness of the vision motivation. Compassion is something very, very of the founder (Conrad N. Hilton), and particularly precious. his interest in understanding the psychological dynamics that are imbedded in the human “Everyone wants a happy life, a peaceful life, but psyche—as it is expressed in various human peace and a happy life, our happiness, we must emotions such as aggression. This resonates with bring by ourselves. So much depends on our own my own personal belief that if you examine human way of thinking. Everyone has great potential to actions, most of them are really determined by a create a happy atmosphere, a happy mind.” human heart or a mindset underlying those actions. The real demarcation of violence and nonviolence ultimately depends on motivation. A parent or teacher…in order to stop certain behaviors which are harmful, as a preventive measure may use harsh words or even physical action. But if someone’s motivation is to cheat or take advantage and may use nice words and nonviolent methods, that is essentially violent because the motivation is to want to harm.

“What is the right kind of motivation? We realize all brothers and sisters are the same; human beings all have the same rights. An individual’s future depends much on society. If society is a calm, friendly compassionate society, then each of the o His Holiness the Dalai Lama CONCLUSION

In the few short years that the Hilton Foundation has been sponsoring humanitarian conferences, starting in 1998, the world has changed so much that at times this side of the new millennium bears little resemblance to the world we knew so recently. The millennium is a symbolic marker; 9/11, Afghanistan and Iraq are markers of a different nature. The humanitarian challenge has never been so great and yet, as was spelled out more than once during the conference proceedings, these may be grim times, but there is every reason to hope. The world has been moving forward; education and health have improved; poverty has decreased. We know what to do about many of the problems we face. Together, we have it within our means to turn the situation around. Now we need to muster the will, particularly the political will.

FOR MORE INFORMATION

If you would like to receive a full transcript of the conference, please contact CONRAD N. HILTON FOUNDATION Leslie Shopay via email at [email protected]. For additional 10100 Santa Monica Boulevard, Ste. 1000 information, contact Judy Miller, Director, Conrad N. Hilton Humanitarian Los Angeles, California 90067-4011 Prize, or visit www.hiltonfoundation.org. Telephone: (310) 556-4694 Facsimile: (310) 556-8130 This was the fifth international humanitarian conference sponsored by the Conrad E-mail: [email protected] N. Hilton Foundation. The Hilton Foundation was established in 1944 by the late www.hiltonfoundation.org hotel entrepreneur, Conrad N. Hilton, to provide aid to the world’s most unfortunate and disadvantaged. The one million dollar Hilton Humanitarian Prize was established in 1996 to recognize and advance the work of organizations that are making extraordinary contributions toward alleviating human suffering.

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