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State of the World's Minorities and Indigenous Peoples under Threat 2014: hate crimes and mass killing Mark Lattimer crime against humanity is defined includes in its monitoring a ‘sudden increase in the statute of the International in inflammatory rhetoric or hate propaganda, A Criminal Court as a widespread especially by leaders, even if it does not amount or systematic attack directed against any to incitement to genocidal violence in itself’.) civilian population ‘in furtherance of a state or The prevalence of hate crimes in society may thus organizational policy’. Similarly, the analysis demonstrate collusion or even coordination by framework used by the UN Special Adviser parts of the state. on the prevention of genocide to determine At the same time, the persecuted group or whether there may be a risk of genocide in a groups may also be targeted by official measures, given situation includes consideration of the whether symbolic (such as the removal of ‘motivation of leading actors in the state’, as protection for minority languages) or repressive well as factors such as discriminatory legislation, (for example, exclusion from public positions, systematic exclusion of groups from employment compulsory registration or identification) - in state institutions, imposition of emergency measures which may themselves invite further laws, and other manifestations of state power. persecution. In the most deadly circumstances, While a number of other factors are also the state itself becomes a mechanism for mass considered, the focus here on state behaviour is killing, including through its own security forces both logical and essential given the central role of or other agents. In such cases the state may also the state in coordinating and legitimating mass co-opt or constrain private actors to take part, atrocities in recent history, including the Nazi or may even coordinate death squads or armed Holocaust and the Rwandan genocide. militias to perpetrate killing clandestinely or at However, state officials may not be the only one remove from the state. actors involved in the commission of atrocities, or The Peoples under Threat index identifies those in the racist or sectarian violence that frequently countries around the world where communities precedes atrocities. A range of private or non-state face the greatest risk of genocide, mass killing or actors, from racist individuals and criminal gangs systematic violent repression. Based on current to extremist associations, political parties or armed indicators from authoritative sources (see box opposition groups, may be responsible for attacks below), Peoples under Threat has been compiled on minorities and other vulnerable communities. every year since 2005 to provide early warning of Much of this activity could, or should, be treated potential future mass atrocities. A number of states as hate crime under national criminal law. that rose prominently in the index over the last two States are obliged to prevent and punish such years – including South Sudan, the Central African hate crimes. The failure to do so effectively is Republic, Pakistan and Syria – subsequently faced an important factor in creating an environment episodes of extreme ethnic or sectarian violence. where atrocities are more likely to occur. The 2014 release of Peoples under Threat shows The 2014 release of the Peoples under Threat that the risk in those states remains critical – but index demonstrates the complexity of the also that threat levels have risen in other states. relationship between the role of the state and In many cases, the threat comes not just from the role of private actors in the commission of governmental forces, or even armed opposition widespread hate crimes and, in the extreme case, groups seeking to form a new government, but mass atrocities. States may lack the capacity to also from private or non-state actors whose respond to rising hate crimes in society or may be relationship with formal authorities may be opaque otherwise unable or unwilling to recognize and or controversial. In some cases, the involvement of prosecute hate crimes. The impunity thus created non-state actors may even be a deliberate ruse to may be strengthened by elements of the state avoid accountability mechanisms. sharing the prejudices or bias motivation of the perpetrators. In some cases the persecution can Rising threats in 2014 be led by state officials or politicians, including The Middle East and Africa dominate the list of through public statements. (The office of the UN major risers in the index this year. Special Adviser on the prevention of genocide In January 2014 the Office of the UN High State of the World’s Minorities Peoples under Threat 2014: 207 and Indigenous Peoples 2014 hate crimes and mass killing Commissioner on Human Rights announced that killed in an army crackdown on protest camps the difficulty of verifying information had led it in the Nahda and Rabaa al-Adawiya squares in to abandon updating death tolls for the conflict Cairo and subsequent clashes across the country, in Syria, last estimated at over 100,000. The although exact figures remain heavily disputed. fragmentation of the war, in terms of both the Attacks on Coptic Christians and on Coptic proliferation of armed groups and the complex churches were blamed on Muslim extremists, pattern of shifting control on the ground, creates but human rights activists also criticized an further problems for determining accountability. inadequate response from Egyptian authorities, It also accompanies a growing sectarianization including in Minya governorate. A new of the conflict. The government of President Constitution, approved by referendum in January Bashar al-Assad retains principal culpability for 2014, improved protections for minorities but the slaughter, including through indiscriminate also entrenched the power of the military. After bombardment of civilian areas and the deployment Morsi’s removal, a major military operation was of the Shabiha militia. But the Free Syrian Army launched against Islamist militants in North (FSA), the military wing of the national coalition Sinai. Sinai Bedouin, long marginalized by opposed to the Assad government, steadily lost Egyptian authorities, fear their communities will ground during the year to a number of Islamist suffer most in the escalation of the conflict. militias with a sectarian agenda, including Jabhat It continues to host the largest UN peace- Al-Nusra, the Islamic Front and the Islamic State keeping mission in the world, but the Democratic of Iraq and the Levant (ISIS), all responsible for Republic of the Congo (DRC) rose again in the gross human rights abuses. Kurds in the north, Peoples under Threat index in 2014. Katangan long persecuted under Assad, faced repeated separatism, at the centre of the first Congo crisis attacks in the second half of the year by Islamist in the 1960s, led to resurgent violence and the groups as well as the FSA, pushing some 50,000 displacement of up to 200,000 people in the refugees to flee to Iraqi Kurdistan. province of Katanga last year. In a rare success Yemen has steadily risen in Peoples under for government forces, the M23 rebellion in Threat over eight years and now finds itself the east was suppressed with the support of UN in the top ten states in the index. A national peace-keepers, but the threat levels in the DRC dialogue conference concluded in January 2014, remain high for at least three related reasons: the with delegates agreeing to extend the term of proliferation of different armed groups, leading President Abdu Rabbu Mansour Hadi by one to dozens of separate conflicts, particularly in year to oversee the drafting of a new Constitution the east, over ethnicity and natural resources; the before general elections and moves towards a track record of neighbouring states in consistently more federal system of government. But the supporting such armed groups; and the repeated dialogue process was marked by entrenched practice of integrating former rebels into the disagreements, mirroring conflict on the ground Congolese armed forces, who are now often as on a number of separate fronts, including feared by local communities as the militias from between al-Houthi (Shi’a) rebels in the north and which they came. Sunni tribes, as well as between the authorities When the newly independent state of South and Southern secessionists. Large-scale attacks Sudan sprang straight near the top of the index and assassinations by al-Qaeda in the Arabian two years ago, it seemed that pessimism had Peninsula and other Islamist groups continued, as prevailed over hope. But the events of recent did US drone strikes against them. months have sadly proved the prescience Egypt has risen a striking 33 places in the of Peoples under Threat. A dispute between index this year, although it remains outside the President Salva Kiir Mayardit and his deputy, critical upper reaches of the table. Following Riek Machar, quickly degenerated into open the removal of President Mohamed Morsi by ethnic conflict in December, pitting Dinka forces the military in July, clashes between Muslim controlled by the government against ethnic Brotherhood protesters and security forces Nuer. The NGO International Crisis Group escalated in August. Over 1,000 people were estimated that up to 10,000 people had been 208 Peoples under Threat 2014: State of the World’s Minorities hate crimes and mass killing and Indigenous Peoples 2014 Major Risers since 2013 Rank Rise in rank Country Group Total since 2013 3 3 Syria Political
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