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.”