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Human Rights in CrisisICG and Human Rights, July 1996
IntroductionThis paper discusses the way in which the mission of the International Crisis Group�to reinforce the resolve and ability of the international community to prevent crises arising from human causes�ties in directly with efforts to protect and promote human rights around the world. The paper looks at the relationship between the social, political and economic stability of a country and the capacity of its people to exercise basic freedoms such as freedom of expression, movement and association. Finally, it reports on the experiences of ICG field staff working in Africa and the Balkans and the practical effects that their work has had in terms of helping to bring about an environment in which people are able to exercise their rights freely, safely and effectively.
The impact of crises on human rightsIn recent years, there has been a proliferation and intensification of crises in many parts of the world and a parallel erosion of human rights. Problems of social exclusion, inter-ethnic tension, aggressive nationalism and other forms of inter-group of struggle have escalated into violent clashes that have killed, maimed and displaced millions of civilians and subjected whole populations to the arbitrary whims of brutal, opportunistic regimes. Despite having had ample opportunity to step in and prevent many of these crises escalating, the international community has repeatedly failed to do so and major humanitarian disasters have been allowed to develop in Somalia, Rwanda, Burundi, Liberia, the former Yugoslavia and elsewhere. In every case, a common characteristic has been a dramatic erosion in the freedom of individuals living in zones of impending or actual crisis. The destructive impact of crises on human rights is hardly surprising. Human rights do not exist in a vacuum. They exist and flourish within an environment where people are both legally permitted and feel secure and confident enough to exercise their rights without fear of reprisal or persecution. Evidently, the more stable, open and secure a society, the more robust will be the human rights of its members. Social, political and economic crises, of the kind we have seen in many parts of the world over the past few years, directly endanger human rights because they give rise to conditions in which the exercise of basic freedoms becomes either difficult or impossible. Democratic institutions are often weakened, sometimes to the point of collapse, giving rise to authoritarian government, uncontrolled state and anti-state violence, a breakdown in law and order, heightened ethnic tensions sometimes boiling over into open conflict, and in the worst cases widespread killings, even genocide. In such a context, people�s ability to function freely is severely impaired and harsh restrictions are imposed on basic rights such as freedom of movement, expression, association and political participation.
ICG�s approach to protecting to human rightsThe International Crisis Group was created specifically to address this threat to human rights by seeking to strengthen the capacity and resolve of the international community first to prevent such crises at source, through resolute preventive action, and, secondly, to make them less likely in the future, by providing sustained, strategic support for societies undergoing a process of transition to democracy. ICG�s most significant contribution to the cause of human rights is made through the organisation�s main field and advocacy projects which are designed to analyse crises and draw up and mobilise support for measures that address the root causes and help restore the freedom and security of those affected. In addition, ICG has recently established a Human Rights Support Fund which will enable the organisation to provide resources and advice directly to indigenous human rights NGOs in countries where the organisation operates field and advocacy projects. The ICG Human Rights Support Fund is discussed in further detail below.
ICG�s field and advocacy projects
Modus operandiICG works in a number of countries where crises or potential crises threaten the human rights of local civilians. At present, ICG�s efforts are focused on four countries�Sierra Leone, Bosnia, Burundi and Nigeria�although as the capacity and resources of the organisation expand, so a number of further countries will be added to the list. In each case, ICG has initiated field or advocacy projects whose common aim is to encourage international policy-makers to take a more preventive approach to addressing impending or escalating crises and a more pro-active approach to helping create environments in which human rights are properly protected. The field and advocacy projects initiated for this purpose form the core of ICG�s mission and they offer the organisation its most important opportunity to human rights situation in crisis-prone countries.ICG�s approach to this task varies according to the nature of the impending crisis and the type of preventive action required to cope with it. In certain instances, ICG will seek to give greater prominence to information already gathered by other NGOs in the field. In others, ICG staff may be posted to a country for a period to consult widely and produce an analysis. High-profile visits to potential crisis zones by ICG board members may also form part of the strategy. Typically, however, ICG�s approach can be broken down into the following stages:
Sierra LeoneBackgroundSierra Leone has been embroiled in crisis more or less continuously since the mid-1960s. By the early to mid 1990s, however, the crisis had intensified dramatically, with rampant corruption eating away at the capacity of the state to support itself and the government army enmeshed in an increasingly messy and bloody civil war with rebel armed forces. Caught in the cross fire were the people of Sierra Leone, of whom 50,000 were killed as a result of the conflict and 2 million forced to flee their homes. Furthermore, the period saw Sierra Leoneans steadily stripped of their resources, social, political and economic opportunities and basic human rights. No elections were held in Sierra Leone between 1971 and 1996. Various regimes came and went without reference to the wishes of the people. Critics were repeatedly rounded up and imprisoned without a fair trial. Freedom of expression was heavily curtailed and the few independent newspapers in existence came under heavy pressure to tow the government line. Freedom of movement became almost impossible as vast areas of the country fell into the hands of rebel forces and passage by road became highly dangerous. Social services including education and healthcare were practically non-existent and unemployment rose rapidly as foreign companies pulled out of the country and economic confidence collapsed.In late 1995, however, a chink of light opened up. The leader of the military government, President Valentine Straaser, announced his willingness in principle to hand over to a democratically elected government and for the first time held out the prospect of elections early in 1996. At the same time Fodah Sankoh�the leader of the main rebel force, the RUF�indicated his desire to engage in serious negotiations aimed at reaching agreement on a cease-fire and possibly a permanent peace between the rebels and the government army.
MissionIn November 1995, ICG staff arrived in Sierra Leone in West Africa to begin a three month mission to assess the risks and opportunities facing the country as it struggled to overcome its problems. Their purpose was to produce a comprehensive analysis of the causes and likely consequences of the continuing crisis facing Sierra Leone and to report on what specific actions the international community should take to help shore up Sierra Leone�s transition to democracy and better governance.Staff travelled extensively throughout the country and consulted with a wide range of local people including the political leadership, the military, civil servants and judges, women�s groups, youth groups, community groups, ethnic groups and church groups and local and international business people operating in the country. They also met with personnel from embassies, UN agencies and international NGOs in the field. Recommendations were produced, on the strength of which ICG mounted a major advocacy initiative:
Over the next twelve months, the Campaign for Good Governance will implement an extensive program of activities including:
Contribution to human rightsIn summary, ICG�s work in Sierra Leone stands to advance the cause of human rights in the following respects:
Bosnia
BackgroundFor four years the human rights of the people of the Balkans have been subsumed in a bloody and ferocious conflict in which over 200,000 have been killed and millions of others forced to flee their homes. A breakdown in order, widespread rape, arson, murder and genocide exacted an appalling toll on civilians and, in some parts of the region, virtually all basic rights were extinguished in the struggle for territory. Even now, six months after the signing of the Dayton Peace Agreement, the human rights situation in Bosnia remains desperate.The current position in Bosnia neatly illustrates the interdependence of peace, stability and human rights. An expansion and strengthening of people�s human rights will not be possible in Bosnia unless peace and stability are preserved and entrenched. At the same time, however, peace and stability depend, to a large extent, on further progress being made to free up the ability of people to return to their homes, express their opinions, obtain information and participate in the political process. The construction of democratic institutions capable of protecting human rights is a key component of the Dayton peace process. On its success rides the hopes of future peace in the region.
ICG�s missionEarly in 1996, ICG began a 12-month project in support of the international effort to implement the Dayton Peace Agreement in Bosnia. A team of 14 ICG staff (plus local support) are based in Bosnia�their role is to gather information and advise on progress towards implementation of the peace agreement, pointing out problems and sources of tension and formulating recommendations as appropriate.ICG�s priority in Bosnia is to assist the international community�particularly those organisations inside and outside Bosnia involved in implementing the agreement�to identify potential obstacles and devise ways of dismantling them before they have a chance to derail the implementation process. In addition, ICG is lending assistance to the private sector�including both local and international business organisations�whose role in reconstructing Bosnia�s economy will be critical to the process of building an enduring peace in the region. Already, a number of issues are emerging which will form foci for ICG�s advocacy effort. These issues include: ensuring the removal of nationalist war crime suspects from positions of power and influence; encouraging and aiding the repatriation of refugees and displaced persons; removing legal and political impediments to reintegration; ensuring that the elections scheduled for later this year militate against rather than confirm ethnic partition; devising new ways to ensure security and support reconciliation once IFOR�s mandate ends; and emphasising the importance of rapid progress in reviving Bosnia�s shattered economy as a part of the overall process of peace-building.
Contribution to human rightsIn summary, ICG�s work in Bosnia stands to advance the cause of human rights in the following respects:
Burundi
BackgroundIn April 1996, following consultations with UN officials, governments, journalists and many NGOs, ICG published a policy paper on Burundi�a country where between 100 and 700 people are being killed every week in ethnic violence and where over 800,000 people are either refugees or internally displaced. The report assessed the adequacy and effect of the international response to the crisis in Burundi and identified scope for further action on the part of the international community.Following the publication of the report, ICG called a meeting of leading advocacy groups with an interest in Burundi. The meeting established common support for a series of policy measures deemed essential to deter further violence in Burundi and encourage dialogue between Burundi�s warring factions. These measures include:
ICG is now engaged in an intensive lobbying effort to convince the US government and other national governments to take preventive action along these lines. Activities include gathering Congressional signatures for a letter to President Clinton; meetings with top US Administration officials; articles in the US and European press; pressing for the issue of preventive action in Burundi to be placed on the agenda at the G7 summit in Lyons in late June 1996; and encouraging CNN and other TV networks to send crews to cover the situation on the ground.
Contribution to human rightsICG�s work on Burundi stands to make an indirect contribution to the human rights of Burundi�s 6.2 million citizens by helping to stave off a new bout of genocide and encouraging the so-far fruitless search for a peaceful settlement to Burundi�s problems. It is only through a reduction in the number of killings and a concerted and successful effort to reach a negotiated agreement at both a regional and inter-factional level that there is any hope of restoring the human rights of the people of Burundi.
NigeriaBackgroundSince the coup that installed General Abacha in power in November 1994, Nigerians have witnessed a steady and depressing erosion of their human rights to a point where Nigeria today has one of the worst human rights records in the world. Presidential elections have been annulled, the winning candidate locked up without trial; critics of the regime have been rounded up and executed; political parties have been dissolved and political activities banned; trade union bosses have been removed and public servants sacked en masse; independent newspapers have been closed down and any attempt to voice criticism of the regime has been dealt with harshly.
ICG�s missionICG has commissioned a paper on Nigeria that examines the direction of international opinion�both governmental and non-governmental�on Nigeria and considers the costs/ benefits of various policy options available to the international community. It will be released shortly.
Contribution to human rightsOne outcome of the report is likely to be an ICG advocacy program aimed at mobilising support for Nigeria�s struggling civil society, including pro-democracy and human rights groups. Unless greater attention and resources are invested in strengthening the capacity and effectiveness of democratic forces inside Nigeria there can be no successful transition to democracy, no escape from the present climate of repression and human rights abuse. ICG is well placed to encourage governments around the world, commercial interests and private aid donors to make pro-democracy and human rights groups in Nigeria a focus of support and to maintain pressure on the military regime to better respect human rights and bring forward planned elections so that an democratically accountable government can be installed in Abuja.
Human Rights Support FundIn early 1996, ICG drew up plans for a cross-cutting program known as the Human Rights Support Fund to provide funding, advice and other forms of assistance to specific indigenous human rights organisations operating inside crisis-prone countries. The program�which spans all of the countries where ICG operates projects around the world�is in-line with ICG�s goal of not only averting crises in the short-term but to also reducing the likelihood of crises in the longer-term by helping to create lasting conditions for peace and stability. One of the best ways of achieving this goal is by encouraging and supporting the development of strong, vigorous and vocal human rights organisations at a grass-roots level. Such organisations can provide the ongoing vigilance that is necessary to curb the violent and repressive tendencies of many governments, particularly in Africa. By monitoring and speaking out against human rights abuses, such organisations can help both to deter human rights abuse and to foster a greater awareness of--, and respect for, human rights among the population at large, the government and the military. During the course of its work in Africa and the Balkans, ICG has come into contact with a number of such local human rights organisations. Typically, they are staffed by dedicated and often heroic individuals whose ability to make headway is severely blunted by lack of funds, expertise and influence. ICG would like to assist such individuals and their organisations by providing funding, advice and access to our network of decision-makers at all levels of the international community. Some funding has already been found to implement the project although further funding is urgently needed to enable ICG to :
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