Eastern Zaire, 1994-1996: Refugees and the Manipulation of Humanitarian
Assistance
Stephen J. StedmanPS 114T
May 20, 2003
Today’s Talk
1). The problem of refugee manipulation
2). Why such a recurrent problem?
3). The case of Eastern Zaire
4). What is to be done?
“It is the manipulation of refugee populations for geopolitical purposes that often presents the greatest threat to refugee security.”
UNHCR June 2000
What is a refugee?
“Owing to a well-founded fear of being persecuted for reasons of race, religion, nationality,
membership of a particular social group or political opinion, is outside the country of his
nationality and is unable or, owing to such fear, is unwilling to avail himself of the protection of that
country; or who, not having a nationality and being outside the country of his former habitual residence as a result of such events is unable or, owing to such fear, is unwilling to return to it.”
The 1951 Convention and 1967 Protocol.
The Modern Refugee Regime
A Global Problem
Groups
Escaping from Violence
Often not possible
Repatriation
Protecting a physical challengeIncapable or unwilling to meet
obligations
Founding Assumptions Realities
• A European problem
• Individuals
• Escaping from political persecution
• Legal determination of individual status
• Third country resettlement viable
• Protecting a legal challenge
• Host states capable of meeting obligations
Rwanda and Eastern Zaire
“Everyone knows what must be done; but
who will bell the cat?”
Sharyar KhanSpecial Representative of the Secretary General
November, 1994
“the best way for the United Nations to help improve security
in the refugee camps is for UNHCR to address this issue
under its refugee protection and humanitarian assistance
programs.”Boutros Boutros-
Ghali
Jan. 17, 1995
Ethical Dilemmas
1). Needs of genuine refugees vs. strengthening warriors
2). Short-term vs. long-term suffering3). Needs of refugees vs. non-combatants in
the home and host country4). Humanitarianism and sovereignty
Competing Policy Prescriptions
1). Give war a chance
2). Do no harm
3). Minimize harm
4). Let humanitarianism be humanitarianism
UNHCR’s Response
1). Emphasize prevention2). Responsibility of Host State3). When prevention fails, civilian and police
monitors to assess and report4). International police or military forces
Operationalizing the Response
1). Humanitarian security officers
2). Report to DPKO
3). DPKO assesses and considers appropriate responses
CISAC Critique
1). Hard to argue against prevention, but …
What to do when warriors and host states don’t cooperate?
2). Long on fact finding, short on fact facing
Aid to be withheld
• When major powers can be shamed
or
• When withholding aid likely to seriously limit manipulation
Selective Non-Engagement
“Nothing empowers people quite like their own
survival.”