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Humanitarian Diplomacy United Nations University Press is the publishing arm of the United Nations University. UNU Press publishes scholarly and policy-oriented books and periodicals on the issues facing the United Nations and its peoples and member states, with particular emphasis upon international, regional and trans-boundary policies. The United Nations University was established as a subsidiary organ of the United Nations by General Assembly resolution 2951 (XXVII) of 11 December 1972. It functions as an international community of scholars engaged in research, postgraduate training and the dissemination of knowledge to address the pressing global problems of human survival, development and welfare that are the concern of the United Nations and its agencies. Its activities are devoted to advancing knowledge for human security and development and are focused on issues of peace and governance and environment and sustainable development. The Univer- sity operates through a worldwide network of research and training centres and programmes, and its planning and coordinating centre in Tokyo. Humanitarian diplomacy Humanitarian diplomacy: Practitioners and their craft Edited by Larry Minear and Hazel Smith United Nations a University Press TOKYO u NEW YORK u PARIS 6 United Nations University, 2007 The views expressed in this publication are those of the authors and do not nec- essarily reflect the views of the United Nations University. United Nations University Press United Nations University, 53-70, Jingumae 5-chome, Shibuya-ku, Tokyo 150-8925, Japan Tel: þ81-3-3499-2811 Fax: þ81-3-3406-7345 E-mail: [email protected] General enquiries: [email protected] http://www.unu.edu United Nations University Office at the United Nations, New York 2 United Nations Plaza, Room DC2-2062, New York, NY 10017, USA Tel: þ1-212-963-6387 Fax: þ1-212-371-9454 E-mail: [email protected] United Nations University Press is the publishing division of the United Nations University. Cover design by Rebecca S. Neimark, Twenty-Six Letters PrintedinIndia ISBN-10: 92-808-1134-7 ISBN-13: 978-92-808-1134-6 Library of Congress Cataloging-in-Publication Data Humanitarian diplomacy : practitioners and their craft / edited by Larry Minear and Hazel Smith. p. cm. Includes index. ISBN 9280811347 (pbk.) 1. Humanitarian assistance. 2. War relief. 3. Diplomacy. I. Minear, Larry, 1936– II. Smith, Hazel, 1954– HV639.H85 2007 363.340988—dc22 2006028976 Contents Listofcontributors.................................................... vii Listofabbreviations .................................................. xi Foreword .............................................................. xiv Ambassador Lakhdar Brahimi Introduction . ........................................................ 1 Larry Minear and Hazel Smith Part I: Craft and concept ............................................. 5 1 Thecraftofhumanitariandiplomacy ............................ 7 Larry Minear 2 Humanitariandiplomacy:Theoryandpractice.................. 36 Hazel Smith Part II: The Middle East ............................................. 63 3 Protecting Palestinian Refugees: The UNRWA experience . 65 D. Sena Wijewardane 4 NegotiatingforresultsintheLebanon........................... 84 Andre´ Roberfroid vi CONTENTS 5 Negotiating the legitimacy of humanitarian action in Iraq . 108 Claudia Rodriguez Part III: Asia ......................................................... 131 6 NGOs break the Cold War impasse in Cambodia . .......... 133 Brian Walker 7 NegotiatingwiththeTaliban..................................... 153 Antonio Donini 8 Principled humanitarian action in the East Timor crisis . 174 Toni Pfanner 9 SteeplearningcurvesintheDPRK ............................. 194 David Morton 10 SteeringthroughinsurgenciesinNepal ......................... 215 Erika Joergensen Part IV: Africa ....................................................... 237 11 Nurturing humanitarian space in Sudan . ........................ 239 Masood Hyder 12 ‘‘Militaryhumanitarianism’’inLiberia .......................... 258 ’Funmi Olonisakin 13 Negotiating the release and rehabilitation of child soldiers in SierraLeone ...................................................... 276 Omawale Omawale 14 BlurringofmandatesinSomalia................................. 298 Karin von Hippel Part V: Europe and the Americas .................................. 323 15 ProtectionthroughdiplomacyinColombia ..................... 325 Lizzie Brock 16 TheBalkans:Thelimitsofhumanitarianaction ................ 347 Nicholas Morris Bibliography .......................................................... 372 Index .................................................................. 382 Contributors Ambassador Lakhdar Brahimi served as a volunteer and then as as Special Adviser to the Secretary- Coordinator of the Bogota´ team. General from 1 January 2004 to 31 In 2003, she co-conducted a study December 2005. During his career funded by Terre des Hommes Ambassador Brahimi has served in Germany on the effectiveness of a number of diplomatic capacities, Urgent Action Alerts in preventing including as Special Representative human rights violations. From 2004 of the Secretary-General for to 2006, Lizzie was director of Afghanistan and Head of the United Nuestra Casa, a Latino immigrant Nations Assistance Mission in community organization in the San Afghanistan; the Secretary- Francisco area. General’s Special Envoy for Antonio Donini is Senior Researcher Afghanistan; Under-Secretary- at the Feinstein International General for Special Assignments in Center (FIC) at Tufts University, Support of the Secretary-General’s USA. He previously worked for 26 Preventive and Peacemaking years in the United Nations in Efforts; Special Representative for research, evaluation and Haiti; and Special Representative humanitarian capacities. His last for South Africa. Mr Brahimi was post was as Director of the UN Under-Secretary-General of the Office for the Coordination of League of Arab States. Ambassador Humanitarian Affairs (OCHA) Brahimi is the former foreign to Afghanistan (1999–2002). Before minister of Algeria. going to Afghanistan, he was Chief Lizzie Brock worked with Peace of the Lessons Learned Unit at Brigades International’s Colombia OCHA, where he managed a Project between 1999 and 2003, first programme of independent studies vii viii CONTRIBUTORS on the effectiveness of relief efforts. humanitarian crises and He has published widely on emergencies. Between 2000 and evaluation, humanitarian and UN 2006 she worked with the United reform issues. In 2004 he co-edited Nations World Food Programme, a volume on Nation-Building first as the Representative in Unraveled? Aid, Peace and Justice Armenia and then as the in Afghanistan (Kumarian Press) Representative in Nepal. She is and he has written several articles presently the Deputy Regional exploring the implications of the Director for the WFP Regional crises in Afghanistan and Iraq for bureau in Bangkok. the future of humanitarian action directs the (seetheFICwebsiteathhttp:// Larry Minear Humanitarianism and War Project www.famine.tufts.edui). at the Feinstein International Karin von Hippel is the Co-Director Center at Tufts University, USA. of the Post-Conflict Reconstruction Since co-founding the Project in Project at the Center for Strategic 1991, he has conducted and and International Studies in coordinated research on many Washington, DC, USA. Previously humanitarian crises. His most recent she was a Senior Research Fellow at books include The Humanitarian the Centre for Defence Studies, Enterprise: Dilemmas and King’s College London, UK, and Discoveries (Kumarian Press, 2002) spent several years working for the and, with Ian Smillie, The Charity of United Nations and the European Nations: Humanitarian Action in a Union in Somalia and Kosovo. Her Calculating World (Kumarian Press, publications include Democracy by 2004). Force (Cambridge University Press, was a staff member 2000)and(aseditor)Europe Nicholas Morris of the Office of the United Nations Confronts Terrorism (Palgrave High Commissioner for Refugees Macmillan, 2005). (UNHCR) from 1973 to 2001. He Masood Hyder worked for the United served as the High Commissioner’s Nations World Food Programme Special Envoy for the former (WFP) from 1984 to 2006. He was Yugoslavia from June 1993 to WFP Representative and Deputy December 1994 and for the former Humanitarian Coordinator, Sudan, Yugoslavia and Albania from April 2000–2002; UN Resident Coordina- 1998 to April 1999. Prior to tor, UN Humanitarian Coordinator retirement he was the UNHCR and WFP Representative, North Inspector General. Korea, 2002–2004; and WFP spentmostofhiscareer Representative to the Bretton David Morton with the World Food Programme Woods Institutions, 2004–2006. (WFP) in Africa and Asia. He was Erika Joergensen worked for 18 years sent to the Democratic People’s with the Danish Refugee Council Republic of Korea (DPRK) as (DRC), from which she gained her WFP’s Representative and UN main experience with the integration Humanitarian Coordinator (Office of refugees and working with for the Coordination of CONTRIBUTORS ix Humanitarian Affairs), and later Andre´ Roberfroid is currently was appointed, in addition, UN President of the Association Resident Coordinator and Resident Montessori International, promoting Representative for the United the Montessori pedagogy in more Nations Development Programme in than 60 countries around the world. DPRK. He served in the DPRK He worked as a field officer and from 1998 to 2002. representative for
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