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Why We Fail in the Face of Genocide

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Why We Fail in the Face of Genocide Again, and Again, and Again: Why We Fail in the Face of Genocide Table of Contents Introduction........................................................................................................................ 1 Chapter One....................................................................................................................... 3 The Legal Framework Surrounding Genocide......................................................................... 3 A: The Genocide Convention’s History, Contents, and Status in International Law................. 3 B. The UN Charter and the Court System................................................................................. 6 C. Political and Social Genocides................................................................................................ 8 D. Specific Intent....................................................................................................................... 10 Chapter Two.................................................................................................................... 11 How States Have Failed the Law....................................................................................... 11 A. The Role of National Security and Economic Interests...................................................... 11 B. The Role of Domestic Politics.............................................................................................. 13 C. The Role of Selective Enforcement...................................................................................... 15 Chapter Three.................................................................................................................. 17 Consequences of the UN System and Its Ideology................................................................. 17 A. The Reasons and Purpose of the United Nations’ Political Neutrality................................ 17 B. Neutrality in Practice............................................................................................................ 18 C. The UN System and Peace Versus Justice............................................................................ 20 Conclusion and Recommendations....................................................................................... 23 Bibliography..................................................................................................................... 26 - i - Introduction On April 6, 1994, an organized and premeditated campaign of large-scale ethnic slaughter began in Rwanda. In the name of an ideology known as Hutu Power, the Hutu government of Rwanda killed and encouraged the killing of the country’s Tutsi minority and of the moderate Hutus who opposed Hutu Power. In the three months before the Hutu Power government was overthrown, an estimated 800,000 to 1,000,000 Rwandans lost their lives, the great majority of them Tutsi.1 Although one wants to believe that events of this nature are few and far between, history demonstrates otherwise. It provides us with a catalog of similar occurrences: the killing of communists in Indonesia in the 1960s, of Bengali nationalists in Pakistan in the 1970s, of Bosnian Muslims in the former Yugoslavia in the 1990s, and even as this paper is being written, of various tribal groups in Sudan.2 The world had claimed after the exposure of the Nazi atrocities in World War II that it would never stand for such violence again. Yet this has clearly not been the case. Why is it that despite the post-World War II codification of international law pertaining to genocide and genocide-like crimes these crimes continue to abound, leaving no recent decade untouched? This thesis seeks to understand the reasons for the continuing prevalence of genocide and genocide-like crimes, and is presented as a three chapter analysis. One should note that the definition of genocide that guides this paper is drawn from the Convention on the Prevention and Punishment of the Crime of Genocide (Genocide Convention). Genocide-like crimes here refers to the promotion or execution of policies resulting in the destruction of a substantial portion of a distinct group not protected in the Genocide Convention, such as a political group. Chapter one addresses the current status of genocide law and demonstrates that the Genocide Convention is a valuable, but flawed, document. While it provides a legal basis for states to take action to prevent, halt, and prosecute genocide in many cases, it is incomplete, and thus fails to adequately protect potential victims of genocide while simultaneously providing a legal loophole for perpetrators of such crimes. The first two sections detail the history and current legal framework of the Genocide Convention and the Charter of the United Nations in order to prove that in cases of national, ethnical, racial, and religious genocide, international law both requires action and provides states with the authority to take it. The last two sections address how the current interpretation of genocidal intent and the Genocide Convention’s exclusion of political and social groups weaken the impact of the Genocide Convention and contribute to the ongoing prevalence of genocides and genocide-like crimes. Chapter two argues, in three parts, that adherence to the law as it pertains to genocide has been hampered by actualities of state practice in the current international system. The first 1 “Leave None to Tell the Story: Genocide in Rwanda,” Human Rights Watch, http:// www.hrw .org/reports/1999/Rwanda/. 2 Barbara Harff and Ted Robert Gurr, “Toward Empirical Theory of Genocide and Politicides: Identification and Measurement of Cases Since 1945,” International Studies Quarterly vol 32, no 3 (Sept 1988): 8. - 1 - section addresses how the lack of effective enforcement stems in part from the effects of a state’s national security and economic interests on its global and foreign policy. The second section details how domestic politics can affect a state’s international political will when it comes to the suppression of genocide and genocide-like crimes. The third section describes how selective enforcement undermines the rule of law as it pertains to genocide and genocide-like crimes. Chapter three contends that the United Nations’ highly valued ideology of political neutrality and the UN system’s emphasis on achieving peace instead of distributing justice hinders the suppression, prevention, and prosecution of genocide and genocide-like crimes. The first section describes the reasoning behind the UN’s neutrality ideology. The second section illustrates how the practice of this ideology contributes negatively to the genocidal conflicts the UN means to alleviate. The third and final section details how the emphasis on peace instead of justice, which results from the state-based nature of the UN system, benefits those who commit genocide and genocide-like crimes and leads to the continuation of these crimes. In conclusion, this thesis demonstrates that the continued prevalence of genocide and genocide-like crimes is a result of the current status of genocide law, the realities of state practice, and the dilemmas created by the United Nations system and its ideology. And in closing, it presents a series of recommendations intended to increase the prevention, suppression, and prosecution of genocide and genocide-like crimes. - 2 - Chapter One The Legal Framework Surrounding Genocide Although there are many contributing factors to the ongoing frequency of genocide and genocide-like crimes, part of the blame rests squarely on the international legal framework. This chapter provides a brief history of the origins of genocide law and then goes on to present a two- part analysis of its current status. The legal framework is revealed as incomplete, as it provides a legal basis for states to take action to prevent, halt, and prosecute genocide in some cases, but not in others. Thus, it fails to adequately protect potential victims of genocide and genocide-like crimes and simultaneously provides a legal loophole for perpetrators of such crimes. A: The Genocide Convention’s History, Contents, and Status in International Law In the years leading up to and throughout the Second World War, the leaders of Nazi Germany and their collaborators systematically murdered approximately six million Jews, three hundred thousand mentally and physically handicapped individuals, tens of thousands of Roma, and an untold number of political opponents, non-Jewish religious groups, and homosexual men.3 Despite the scale of the violence, it was only after the close of World War II and the triumph of the Allied Powers that the full scope of the mass extermination campaign conducted by the Hitler regime came to light.4 The international community, shocked by the heretofore- considered impossible extent of the killings,5 believed that justice could be found through the tribunal created in Nuremberg to try Nazi officials. Yet despite knowledge that the Nazi policies of extermination had begun before the start of World War II, the International Military Tribunal established in Nuremberg by the United States, Britain, France, and the USSR found “insufficient basis in existing international law to convict defendants” for the policies they carried out before the start of the war in 1939, despite the appalling nature of these policies.6 Basing its jurisdiction on Germany’s violation of its treaty obligations, the Tribunal was able to charge the defendants with the crime of planning and waging an aggressive war.
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