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Human Rights and Democratic Development: By THE INTERNATIONAL CENTRE FOR HUMAN RIGHTS AND DEMOCRATIC DEVELOPMENT: A REVIEW OF THE FlRST TEN YEARS BY Jesse Rutledge Submitted in partial fulfilment of the requirements for the degree of Master of Arts Dalhousie University Halifax, Nova Scotia September, 1998 O Copyright by Jesse Rutiedge, 1998 Nationai Library Bibliothèque nationale du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 Weflingtori Street 395, rue Wellingîm Ottawa ON K1A ON4 Ottawa ON K1A ON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribiite or sell reproduire, prêter, distti'buer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/film, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts ikom it Ni la thèse ni des extraits substantiels may be p~tedor otherwise de celle-ci ne doivent être imprimés reproduced -out the author's ou autrement reproduits sans son permission. autorisation. TABLE OF CONTENTS List of Tables v Abstract vi List of Abbreviations Used vii viii Chapter One: Introduction 1 Chapter Two: Human Rights and Canadian Foreign Policy 13 Chapter Three: Legislative History and Institutional Dynamics 44 Chapter Four: From Silent Partner to Audacious Advocate? 73 Chapter Five: ICHRDD's Relationship with CIDA and DFAIT 1O8 Chapter Six: Conclusion 127 Appendîx "A": International Centre for Human Rights and Dernocrutic Developrnent Act Appendix "B": Members of the Board of Directors Bibliography LIST OF TABLES Breakdown of ICHRDD's Annual Expenditures By Category Government of Canada ODA and Trade Figures ( 199 1- 1992) for ICHRDD's Initiai 13 Core Countries ABSTRACT Ten years derits creation, and after almost eight full years of operation, the International Centre For Human Rights and Democratic Development (ICHRDD) is an institution which has been largely ignored in the academic world. Drawing mainly upon interviews with staff at ICHRDD, and with officiais at CIDA and DFAIT as well as in the NGO comrnunity, this study begins to fil1 this gap in scholarship by examining the Centre in light of its mandate under the International Centrefor Human Rights and Democratic Development Act of 1988. The investigation that follows fin& that the Centre has had an impact greater than one would deduce from the very limited acadernic attention paid to the organization. From the outset, ICHRDD has been heralded for its unique design as an organization stabilized by govemment funding, yet, despite the potentially politically- sensitive nature of its work, at arms length from the govemment of Canada. Created in the nadir of the Cold War. the Centre has been largely displaced from its original raison d'être of funding front-line human rights NGOs in developing countries by its much wealthier sibling, CIDA. In response, ICHRDD's leadership has re-aiigned the organization to make it more of an "influencing" agency, advocating human rights at the national and supranational level. The Centre has also put more resources into educating the Canadian public, while continuing to fund organizations which lie beyond CIDA's grasp, such as Burma' s National Coalition Goverment. Through the Centre's own efforts, and through the multiplier effect it creates by funding other organizations, ICHRDD has pushed Canada to adopt a foreign policy which advances respect for univenal human rights. The Centre has also moved to occupy a niche as a 'bridge builder" between state and society in deveioping countries, in line with its own status as a quasi non-govemmentai organization (QUANGO). While a variety of organizational and institutional difficulties have impaired the development of a long-term strategic vision, this study argues that the Centre remains a valuable organization within Canadian society, and is worthy of continued support from the public purse. APEC - Asia Pacific Economic Co-operation BCNI - Business Council on National Issues CCIC - Canadian Council for International Cooperation CIDA - Canadian International Development Agency CLAIHR - Canadian Lawyers Association for International Human Rights Cabie News Network Department of National Defence Federation internationale de droits de l'homme Department of Foreign Affairs and International Trade Human Development Index (of the United Nations) International Centre for Human Rights and Democratic Development ICTR - International Criminal Tribunal for Rwanda IDRC - International Deveiopment Research Centre IFI - international Financial Institution iMF - International Monetary Fund INGO - InternationaI Non-Govermental Organization MP - Member of Parliament NAFTA - North American Free Trade Agreement NTHR - Network on International Human Rights NGO - Non-Govemrnental Organization OAS - Organization of American States ODA - Official Development Assistance OECD - Organization for Economic Co-operation and Deveiopment PCO - Privy Council's Office PM0 - Prime Minister's Office PRC - People's Republic of China QUANGO - Quasi Non-Governmental Organization SBSI - Indonesian Welfare Union (in Indonesian) SLORC - State Law and Order Restoration Council (of Burrna) UDHR .. Universal Declaration of Human Rights UN - United Nations UNcm - United Nations Commission on Human Rights UNDP - United Nations Development Program WO - World Trade Organization vii This study benefited greatly from the contributions of nearly 20 individuals who took part in interviews during May and June of 1998, mostly in person but some by telephone. If there is integrity to this project, much of it is because of the honesty and frankness of their offerings. 1 am grateful to all of them for making time for me, and sincerely hope al1 will find faithful representations of their views within these pages. Any errors of fact or of interpretation are, of course, my own. I am particularly thankful for the CO-operationof those at ICHRDD who ensured my research trip was productive. Patricia Poirier deserves special praise for facilitating my visit on short notice. Serge Rousseau provided me with unrestricted access to the documentation centre, where al1 of the intemal documents used in this study were found. Pat Daigle was a most reliable correspondent on follow-up matters. The Centre proved a mode1 of public transparency worthy of replication by other govemment organizations. At home, Don Rutiedge and &me Rutiedge ensured the manuscript was up to their exacting standards. In Halifax, Professor Moira McConnell of the Faculty of Law dedicated many hours and offered insightful feedback throughout the process, and Politicai Science Professor Denis Stairs aided me in sharpening my focus. 1 owe my greatest debt to Dr. David Black of the Political Science department, who persuaded me that this project was feasible and worthy of pusuit. His perceptive cnticism and untiring encouragement will not be forgotten. Finally, my dearest thanks to Vanessa, for sustenance of body, mind, and spirit. CELAPTIER ONE Introduction This thesis is an institutional and political history of the International Centre for Human Rights and Democratic Developrnent (ICHRDD). The Centre was established by an Act of Parliament on September 30, 1988, and inaugurated in Montreai on October 19. 1990.' According to the Centre's mission statement, The International Centre for Human Rights and Democratic Development (ICHRDD) is a Canadian institution with an international mandate. It is an independent organization which promotes, advocates and defends the democratic and human rights set out in the International Bill of Rights. In CO-operationwith civil society and govemments in Canada and abroad, the Centre initiates and supports programmes, to strengthen laws and democratic institutions, principally in developing countries. Although its mandate is global, the Centre focuses its work in a number of core c~untries.~ A creation of the Canadian govemment. ICHRDD was heraided for its unique design: an organization at once stabilized by govemment funding, yet. despite the potentially politically-sensitive nature of its work, at arms length from officiai Canada. The result, an institution which spanned both government and non-govemment sectors, was without precedent and devoid of peen in the human rights community. In the years since the passage of its statute, ICHRDD has pushed the Canadian govemment to adopt a foreign policy which advances respect for universai human nghts. both through the Centre's own efforts, and by funding other organizations to do the same. The Centre has aiso moved to occupy a niche as a "bridge builder" between state and society in developing countries, in Line with its own status as a quasi non-govemmental I ICHRDD Annual Report 1990- 199 1, 1. See also the Internatio~alCentre for Human Rights and Democratic Development Act, attached as Appendix "A". ' ICHRDD Board of Directors Minutes. February 13 and 14, 1998.7. organization (QUANGO). In spite of a variety of organizational and institutional difficulties which have impaired the development of a longer-terni institutional vision, the Centre remains a valuable organization within Canadian society, and is worthy of continued support. The study that follows examines ICHRDD1s
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