United Nations Framework of Analysis for ATROCITY CRIMES A tool for prevention [blank inside cover] Framework of Analysis for ATROCITY CRIMES A tool for prevention United Nations, 2014 (reprinted in 2018) Secretary-General Ban visits Auschwitz-Birkenau, Poland UN Photo/Evan Schneider Cover photos (counter-clockwise from top): Santa Cruz massacre 17th anniversary march, Dili, UN Photo/Martine Perret A woman testifies in the trial of former Guatemalan military dictator, Photo © Elena Hermosa/Trocaire, licensed under Creative Commons Attribution 2.0 Generic license A woman mourns at the Srebrenica-Potocari memorial and cemetery, AP Photo/Marko Drobnjakovic Darfur village abandoned after heavy clashes, UN Photo/Albert González Farran Rwandan refugees returning from Goma, UN Photo/John Isaac Young children at the “Killing Fields” memorial in the outskirts of Phnom Penh, UN Photo/John Isaac Foreword by the Secretary-General of the United Nations All of us have a responsibility to ask ourselves what we humanitarian law are happening or could happen. can do to protect populations from the most serious Through the “Human Rights Up Front” initiative, we are international crimes: genocide, crimes against human- committed to upholding the promise of “never again” ity and war crimes. These crimes continue to be per- and drawing lessons from past failures. In practice, it petrated in many places across the world. Although means putting human rights, the protection of popu- calls for accountability are now the norm when such lations and the prevention of atrocity crimes at the crimes are committed, impunity is all too common. centre of our work. We can and must do more, much earlier, to save lives and prevent societies from collapsing and descending As affirmed at the 2005 orldW Summit, States have into horrific violence. the primary responsibility for protecting their own populations from genocide, war crimes, ethnic cleans- The first thing we can do is to be more alert and pay ing and crimes against humanity. The international attention to the warning signs. Atrocity crimes take community has committed to support each State in place on a large scale, and are not spontaneous or this endeavour and, should States manifestly fail in isolated events; they are processes, with histories, meeting their responsibilities, to take collective action precursors and triggering factors which, combined, in a timely and decisive manner in line with the United enable their commission. Nations Charter. My Special Advisers on the Prevention of Genocide I therefore urge the widest possible use of this and on the Responsibility to Protect have developed Framework to support prevention strategies at the this Framework of Analysis for the Prevention of national, regional and international levels. Prevention Atrocity Crimes as a guide for assessing the risk of means acting early; to do that, we need to know what genocide, crimes against humanity and war crimes. to look for. Together with a commitment to account- With the help of the Framework, we can better sound ability, we owe this to the millions of victims of the the alarm, promote action, improve monitoring or horrific international crimes of the past — and those early warning by different actors, and help Member whose lives we may be able to save in the future. States to identify gaps in their atrocity prevention capacities and strategies. I am pleased to present this Framework at a time when the United Nations is undergoing a system-wide BAN Ki-moon revision of the way we respond to situations where United Nations Secretary-General serious violations of international human rights and July 2014 A tool for prevention Framework of Analysis for Atrocity Crimes iiiiii Contents Foreword by the Secretary-General of the United Nations ...................................iii I. INTRODUCING THE FRAMEWORK OF ANALYSIS .......................................1 What do we mean by atrocity crimes? ...................................................1 Who are the victims of atrocity crimes? ..................................................1 Why is it important to prevent atrocity crimes? .............................................2 Is there a legal responsibility to prevent atrocity crimes? .......................................2 How can atrocity crimes be prevented?. 3 What are the roles of the Special Advisers on the Prevention of Genocide and on the Responsibility to Protect? ...4 What is the Framework of Analysis? .....................................................5 What are risk factors and indicators? ....................................................5 How to use the Framework of Analysis ...................................................6 How accurate are risk assessments of atrocity crimes? .......................................7 II. FRAMEWORK OF ANALYSIS FOR ATROCITY CRIMES ...................................9 Common Risk Factors Risk Factor 1: Situations of armed conflict or other forms of instability .........................10 Risk Factor 2: Record of serious violations of international human rights and humanitarian law .........11 Risk Factor 3: Weakness of State structures ...........................................12 Risk Factor 4: Motives or incentives .................................................13 Risk Factor 5: Capacity to commit atrocity crimes .......................................14 Risk Factor 6: Absence of mitigating factors ...........................................15 Risk Factor 7: Enabling circumstances or preparatory action ................................16 Risk Factor 8: Triggering factors ...................................................17 Specific Risk Factors Risk Factor 9: Intergroup tensions or patterns of discrimination against protected groups ............18 Risk Factor 10: Signs of an intent to destroy in whole or in part a protected group .................19 Risk Factor 11: Signs of a widespread or systematic attack against any civilian population ............20 Risk Factor 12: Signs of a plan or policy to attack any civilian population ........................21 Risk Factor 13: Serious threats to those protected under international humanitarian law .............22 Risk Factor 14: Serious threats to humanitarian or peacekeeping operations .....................24 ANNEX I: Legal Definitions of Atrocity Crimes ..........................................25 A tool for prevention Framework of Analysis for Atrocity Crimes v Atrocity crimes are considered to be the most serious crimes against humankind. Their status as international crimes is based on the belief that the acts associated with them affect the core dignity of human beings. I. INTRODUCING THE FRAMEWORK OF ANALYSIS What do we mean by atrocity crimes? Who are the victims of atrocity crimes? The term “atrocity crimes” refers to three legally Atrocity crimes are considered to be the most serious defined international crimes: genocide, crimes crimes against humankind. Their status as international against humanity and war crimes. The definitions crimes is based on the belief that the acts associated of the crimes can be found in the 1948 Convention with them affect the core dignity of human beings, in on the Prevention and Punishment of the Crime of particular the persons that should be most protected Genocide, the 1949 Geneva Conventions1 and their by States, both in times of peace and in times of war. 1977 Additional Protocols,2 and the 1998 Rome However, the victims targeted by acts of genocide, Statute of the International Criminal Court, among crimes against humanity and war crimes differ. other treaties.3 Genocide, according to international law, is a crime In the 2005 World Summit Outcome Document committed against members of a national, ethnical, (paragraphs 138 and 139), United Nations Member racial or religious group. Even though the victims of States made a commitment to protect populations the crimes are individuals, they are targeted because from genocide, war crimes, ethnic cleansing and of their membership, real or perceived, in one of these crimes against humanity, a principle referred to as the groups. When speaking about potential victims of gen- “Responsibility to Protect”. In this context, the term ocide, the Framework will refer to them as “protected “atrocity crimes” has been extended to include ethnic groups”. cleansing which, while not defined as an independent crime under international law, includes acts that are Crimes against humanity encompass acts that are serious violations of international human rights and part of a widespread or systematic attack directed humanitarian law that may themselves amount to one against any civilian population. Even if non-civilians of the recognized atrocity crimes, in particular crimes might also become victims of the attack, for an act against humanity.4 to be considered a crime against humanity, the ulti- mate target of the attack must be the civilian popula- 1 The Geneva Conventions comprise the 1949 Geneva Convention tion. When speaking about potential victims of crimes (I) for the Amelioration of the Condition of the Wounded and Sick in Armed Forces in the Field; the 1949 Geneva Convention against humanity, the Framework will refer to them as (II) for the Amelioration of the Condition of Wounded, Sick a “civilian population”. and Shipwrecked Members of Armed Forces at Sea; the 1949 Geneva Convention (III) relative to the Treatment of Prisoners of War; and the 1949 Geneva Convention (IV) relative to the War crimes can be committed against a diversity