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From Ethiopia to Chechnya François Jean

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From Ethiopia to Chechnya François Jean François From Jean Ethiopia to Chechnya Reflections on Humanitarian Action 1988-1999 Reflections on Humanitarian Action 1988-1999 Edited by Kevin P.Q. Phelan Translated by Richard Swanson Franços From Jean Ethopa to Chechnya Reflections on Humanitarian Action 1988-1999 Edited by Kevin P.Q. Phelan Translated by Richard Swanson Copyediting by Nicole Lisa The Médecins Sans Frontières Charter Contents Médecins Sans Frontières/Doctors Without Borders (MSF) offers assis- iv Preface tance to populations in distress, victims of natural or man-made disasters, v Introduction and victims of armed conflict, without discrimination and irrespective of race, religion, creed, or political affiliation. Secton One MSF observes strict neutrality and impartiality in the name of universal medical ethics and the right to humanitarian assistance, and demands Famne full and unhindered freedom in the exercise of its functions. 2 Famine and Ideology (1988) 13 Ethiopia: A Political Famine (1988) MSF volunteers undertake to observe their professional code of ethics 24 North Korea: A Famine Regime (1999) and to maintain complete independence from all political, economic, and religious powers. Volunteers are aware of the risks and dangers of the missions they under- Secton Two take and have no right to compensation for themselves or their beneficia- Conflct ries other than that which MSF is able to afford them. 50 Security: How Do We Know When Not to Go Too Far? (1991) 53 Have You Heard About Somalia? (1992) 56 The Sudanese Conflict (1993) 59 What Role for MSF? (1993) 61 Necessary Independence (1997) 63 Mission Impossible…On the Back Roads of Chechnya (1996) 66 The Problems of Medical Relief in Chechen War Zones (1996) 71 Chechnya: Moscow’s Revenge, Statistics Included (2000) Secton Three Internatonal Ad 82 Life, Death, and Aid(1993) 93 Europe, Refugees, and War (1994) 107 Humanitarian Action and Politics: A Marriage from Hell (1994) 114 Compromised Humanitarian Action? (1994) 125 From State-to-State to Transnational: The Role of Non-State Actors in Conflicts (The Case of International Humanitarian Organizations) (1998) 157 Humanitarian Action: Image, Perception, and Security (1998) Preface Introducton Necessary Memory: François Jean and Humanitarian Action François Jean left a mark on Médecins Sans Frontières. He was probably For nearly two decades, François Jean practiced humanitarian action the only one who didn’t know this, as he hated drawing attention to him- based on a deep, pragmatic desire to understand, constant self-question- self. He also probably would have asked why in the world we decided to ing, and broad intellectual curiosity. It will be clear to anyone reading gather the texts and discussions he had given over the course of 17 years his collected works, From Ethiopia to Chechnya: Reflections on Humanitarian of work with MSF. He was not concerned with his legacy, which is why he Action, 1988-1999, that his writings resonate with dilemmas we face today. never went to the trouble of collecting his works in one place. This was In the essays that start the book, Jean examined the political roots of only made possible because of the great patience and tenacity of Cécile famines in Ukraine and China from the first half of the 20th century and Lapérou, and then Marie Le Page. They deserve wholehearted thanks. saw similar forces at work in Ethiopia and North Korea in the 1980s and Their editing reveals his piercing insight into the key situations and 1990s. Both regimes prolonged the crises by perversely manipulating the themes that marked the evolution of contemporary humanitarian action. food assistance pouring into the famine-wracked countries. The ideology François explored, questioned, and shed light on the field of international underpinning these actions allowed for the sacrifice of tens of thousands aid, from the famine in Ethiopia to the one in North Korea, from the of people in exchange for the promise of a radiant, future utopia. In such Lome accords to the right to intervene, from humanitarians in war zones contexts, Jean wrote, it was imperative for humanitarian aid organizations to humanitarian wars. Far from moralizing, animated by a permanent rest- to closely monitor the delivery of assistance lest they “fund a lunatic proj- lessness about action and its uncertainties, he always remained a calm and ect of social transformation.” lucid practitioner, anxious to understand and to act, without ever sacrific- Fast-forward to 2005 and the central African country Niger. As a nutri- ing one to the other. The texts that follow attest to the fruitfulness of his tional crisis deepened there, development organizations and donor doubts and the relevance of his critical reflections. countries initially argued against providing emergency food aid because François put an end to his own days on December 25, 1999—a dark day, it might negatively affect long-term projects. Thus, the not-yet-born were a day of storms. The homage we pay him here in the form of a publication privileged over those who were actually dying. is not an act of piety but rather one of profound and sincere recognition. Such calculations would have been obscene to Jean, for whom humani- Thank you, François, for who you were, for what you brought to us, and tarian action is, at its core, an act of human cooperation and solidar- for what you have left us. ity—not an ideology. Nor is it a mere technocratic exercise of efficiently stuffing “digestive apparatuses” with food and medicines—such a stance Rony Brauman, 2004 “can breed attitudes of arrogance and contempt.” Rather, for Jean, the humanitarian’s goal should be to help “people in times of acute crisis rees- tablish their capacities for choice.” François Jean joined Médecins Sans Frontières (MSF) in 1982 to estab- lish and run medical surgical programs in Lebanon, and he made an immediate impression on people for his ability to navigate a country con- v v vulsed by war. Relying on a nuanced analysis of the chaotic situation, an no less—in volatile and fluid situations dominated by nervous armed men, innate talent for negotiating, and sheer common sense, he managed to where our own self-preservation is the obvious prerequisite for contin- pass through all of the checkpoints set up by a dizzying array of warring ued action. Real security, Jean felt, was elusive and not simply evacuation parties—Palestinian, Christian, pro- and anti-Syrian, as well as factions procedures and context analysis, but “the result of day-to-day conduct, of within these factions—to bring a measure of medical relief to people understanding a society, and of being able to size up situations.” trapped by the fighting. As the shadow of the Cold War receded, the nature of conflicts changed He would continue for the next 17 years in the field and at headquarters and the aid system itself underwent a serious transformation. Jean to make important contributions to the evolution and direction of MSF struggled to understand this new landscape and MSF’s role within it. operations, with people running emergency medical aid programs seeking Manipulation of aid grew more subtle while conflicts fragmented and his advice and insights—from Afghanistan, Central Asia, and Kurdistan, revealed the localized antagonisms that had been obscured by East-West to the former Yugoslavia, Sudan, Somalia, and Ethiopia. He played an proxy battles. There was a massive proliferation of aid groups running especially key role in helping resolve hostage situations in Chechnya and programs closer and closer to the center of conflicts. Refugees lost the Tajikistan in the early and mid-1990s. political significance they had in the West during the Cold War, and now Jean wrote prolifically during his time with MSF for internal publications people fleeing conflicts were actively kept in war zones and called “eco- as well as for a variety of magazines and journals about the difficulties nomic migrants.” The diminishing importance of state-to-state interac- and challenges faced by humanitarian aid workers. He helped create and tions in these areas was coupled with the increasing influence of non-state edit the series Populations in Danger, a collection of essays that wrestled actors—not only nongovernmental organizations (NGOs), but also gun- with defining the scope and limits of humanitarian action. The series was, runners in search of new markets and multinational corporations bent on according to Dr. Rony Brauman, president of MSF’s French section from securing diamonds, oil, and other natural resources. 1982 to 1996, “the first attempt by MSF to establish a global framework During these years, the United Nations became much more assertive in of our work in war-torn nations.” Jean also co-founded MSF’s Fondation, deploying military force, often becoming a party to conflicts while consign- a center for reflection on humanitarian action based in Paris, after being ing relief efforts to a supporting role to political and military objectives. the lead researcher for MSF’s short-lived Liberté Sans Frontières project. Western governments found that the humanitarian label could pay political All of these efforts had a clear operational focus: how to overcome the dividends while masking political-military actions, or semblance of action. practical constraints to delivering meaningful assistance to people trying As the lines between military engagement and humanitarian action blurred, to survive crises, particularly in times of conflict. When war broke out in Jean saw quickly how aid organizations sometimes helped accelerate the Chechnya in 1996, Jean wrote how the team in Grozny was “trapped by process. By relying disproportionately on government funding to run pro- the fighting without much in the way of resources.” Instead of staying on grams, many groups were simply becoming subcontractors beholden to the sidelines, they left the city on foot, trudged medical supplies through the shifting political winds of their benefactors.
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