R2P: the Next Decade
Total Page:16
File Type:pdf, Size:1020Kb
NUMBER 74 | Spring 2012 PROVOKING THOUGHT AND ENCOURAGING DIALOGUE ABOUT THE WORLD R2P: The Next Decade Marking 10 Years of R2P Notable Change in the Debate With Success, New Complications INSIDE The Future of Atrocity Prevention Marking Ten Years of the R2P10 Responsibility to Protect Policymakers, experts gather to assess the evolving principle of human protection arlier this year, the Stanley Foundation, UN advisors to the secretary-general in this along with the MacArthur Foundation and field, on our advisory council. Ethe Carnegie Corporation of New York, organized an event titled “Responsibility to Our January 2012 conference may very well Protect: The Next Decade.” The daylong confer- have marked a turning point in global under- ence was intended to mark the tenth anniversary standing of the R2P doctrine. While there is still of the “Responsibility to Protect” concept and vigorous debate about “how” best to prevent “In 2011 history chart a path toward more effectively halting and and halt mass atrocities, a cross section of inter- preventing genocide and mass atrocities around national participants in our event underscored took a turn for the world. The event featured an all-star lineup widespread agreement that the task is an appro- the better. The of panelists and participants including United priate and necessary part of fostering a global Nations Secretary-General Ban Ki-moon along Responsibility to with many original members of the International Committee on Intervention and State Sovereignty Protect came of (ICISS) that launched the “Responsibility to age; the principle Protect” report in December 2001. was tested as never That 2001 report spelled out a global frame- before. The results work for stopping and preventing some of the most devastating man-made atrocities in the were uneven but, world. The idea, often shortened to R2P, involves (1) the responsibility of countries to C at the end of protect their populations from genocide, war the day, tens of crimes, ethnic cleansing, and crimes against humanity—and from their incitement; (2) the thousands of lives commitment of the international community to were saved.” assist countries in meeting these obligations; and (3) the responsibility of the world to respond in —excerpt from UN Secretary- General Ban Ki-moon’s a timely and decisive manner when a country is community. Once, vocal groups of nations could keynote at “R2P: The manifestly failing to provide such protection. claim that most domestic cases of mass violence Next Decade” R2P was unanimously approved at the 2005 were internal matters unsuited for discussion at World Summit organized by the United Nations the international level, including the UN and has since been an important factor in crisis Security Council. Today, that idea no longer debate and action around the world. holds sway. The Stanley Foundation has long been active in In this edition of Courier, former ICISS Cochair helping the world promote and live up to the Gareth Evans gives us a quick overview of how Cover Photo. Recent R2P ideals of R2P. We have organized many confer- R2P has developed over the last ten years. He debate has centered around ences and dialogues on the topic, commis- says, “The principle is firmly established and events in Syria. Here, Syrians sioned original writing and analysis, and pro- has delivered major practical results. But its and others protest in front of duced a widely distributed event-in-a-box completely effective implementation is going to the Syrian Consulate in toolkit titled Before the Killing Begins: The be a work in progress for some time yet.” December 2011 in Istanbul, Politics of Mass Violence. In addition, the Turkey. (Photo by Sadik foundation has been honored by the presence Around the world today, from Syria to Libya Güleç/iStockphoto) of Francis Deng and Ed Luck, two prominent and Côte d’Ivoire, the idea of R2P animates the 2 Courier 74 LThe Road Ahead. Ivorian refugees head down a road after fleeing from mass atrocity violence in western Côte d’Ivoire, March 2011. (Photo by Juliette Robert) Courier rationale for military intervention. As Gerber points L Held Accountable. In December 2011 former Côte d’Ivoire out, “Setting the sights of global policy to prevent President Laurent Gbagbo (center), accused of crimes against human- rather than simply respond to mass atrocity threats ity, appeared at the International Criminal Court. The year also saw raises deeper questions about the internal dynamics the arrests of two remaining fugitives from the Balkans conflict in the that drive atrocity violence.” Answering these ques- 1990s, including Bosnian Serb Ratko Mladic, who will stand trial in a UN backed war crimes tribunal for genocide and inflicting terror on tions and responding to those dark motives will be civilians. (Photo by Peter Dejong/UNDPI/ICC/AP Pool) vital for R2P’s future. —Keith Porter Director of Policy and Outreach, The Stanley Foundation debate about global responses. Foundation program offi- cer Sean Harder reports on how policymakers and Resource. experts at the New York conference considered these More details on the R2P10 event, including full video present day applications—from Gareth Evans who and a post-conference policy memo, can be found on expressed concern that R2P may be undergoing a bit of page 10 or at www.r2p10.org. a “midlife crisis” to Knut Vollebaek who wondered what happens when the “international community…fails No. 74 Spring 2012 | ISSN 1044-5900 to take up this responsibility?” Vlad Sambaiew Courier is published quarterly by the Stanley PRESIDENT Foundation and mailed without charge to interested readers within the United States. The views expressed Keith Porter Finally, in this issue of Courier, foundation program here are not necessarily those of the foundation. EDITOR Sean Harder officer Rachel Gerber looks beyond the horizon at the ©2012 by The Stanley Foundation DEPUTY EDITOR To receive future issues, contact: challenges R2P will face in its second decade of exis- The Stanley Foundation Donna Vandygriff tence. She reminds us that at the 2005 World Summit, 209 Iowa Avenue :: Muscatine, IA 52761 USA COPYEDITOR 563·264·1500 :: 563·264·0864 fax Amy Bakke leaders “reinforced R2P’s focus on peaceful, preventive [email protected] CREATIVE DIRECTOR means” rather than pigeonholing R2P as merely a www.stanleyfoundation.org Spring 2012 3 Haunting Past. The 1995 mass atrocity killing of 8,000 Bosnian Muslims in Srebrenica by Bosnian Serbs is one of the historic precursors to development of the Responsibility to Protect. About 20,000 Bosnian Muslims fled the immediate aftermath of the killing. (REUTERS/Stringer) The Responsibility to Protect R2P10 In Action The debate today is about how, not whether, to protect civilians or all the setbacks and frustrations in responding came to effective collective response to these catastro- to mass atrocity crimes, the world has come a long phes, the international community was impotent. Fway in the last ten years. To understand just how far, we need to remind ourselves where we were at the The basic problem was political. Policymaking in the end of the 1990s—the decade of Rwanda, Bosnia, and 1990s was a consensus-free zone. In bitter and divisive Kosovo in which it became tragically clear that the debates in the UN General Assembly and elsewhere, a catastrophes of the Holocaust of the 1940s and fundamental conceptual gulf opened between those, Cambodia in the 1970s were not unrepeatable aberra- largely in the Global North, who rallied to the banner tions. For all the great advances in international human of “humanitarian intervention” or “the right to inter- rights and humanitarian law made after World War II— vene,” and those, largely in the Global South, who— above all, the UN Convention on Genocide—states proud of their newly won independence, often con- repeatedly ignored their legal obligations. And when it scious of their fragility, and remembering all too well 4 Courier 74 the “civilizing missions” of the former imperial pow- more clarity and consensus has emerged as successive ers—argued that state sovereignty was absolute and cases have been debated—from Iraq to Darfur, Sri Lanka, internal events, however conscience-shocking, were Georgia, Myanmar, Kenya, Guinea, Côte d’Ivoire, Libya, none of the business of the rest of the world. and now Syria. It is generally agreed that they don’t involve natural disasters, human rights violations general- A Winning Argument ly, or broad “human security” problems, but large-scale It was to find a way out of this political impasse that mass atrocity crimes (genocide, ethnic cleansing, war the Responsibility to Protect (R2P) was born in the crimes, and crimes against humanity) that are being com- 2001 report of that name by the Canadian-sponsored mitted, or feared likely, here and now. international commission I cochaired. Its groundbreak- ing contribution was to lay the foundation for a new Third, there has been much progress made in develop- consensus that both the North and South could accept. ing the institutional capacity—diplomatic, legal, civil, Two moves were particularly crucial. The first was to and military—in national governments and internation- use much less confrontational language—insisting that al organizations, to anticipate and respond effectively we talk not about “right” but “responsibility,” not to R2P challenges. about “intervention” but “protection,” and focus not on the entitlement of big states to throw their weight Fourth, the Security Council decision in March 2011 to around as they saw fit, but the responsibility of every authorize the use of military force in Libya, saw the state to protect the victims of mass atrocity crimes. invocation and implementation of R2P at the sharpest end of all—when prevention had manifestly failed and The other crucial step was to make clear that R2P was a massacre was manifestly imminent.