Amy Fagin
20th Century Illuminations
Author of Beyond Genocide
Dear Colleagues,
For those of us in the genocide prevention community it can be small solace that increments towards prevention or aversion of atrocities are measured with diplomatic concessions or excruciatingly slow legal indictments with controversy swirling around the reasons for or against seemingly inconsequential efforts. It is important to remember two factors, great social movements can often span generations and that progress in an individual’s lifetime towards these goals may seem too little, too late. Especially when the crimes of humanity continue unchecked in our times and victims are perishing by the hundreds of thousands, our worthy goals can seem as ephemeral as a spring flower in a late winter storm. With this understanding we continue to remind, cajole and mobilize against the tide of indifference with the underlying conviction that we will eventually bring the age of genocide to an end and create healthy, internationally recognized institutions that preserve human rights, dignity and respect for self determination. Prevention is the key concept to aid in thwarting polarization and victimization of groups, wherever in the world these dangerous collective activities become apparent. To this effect two important documents have been created recently to aid policy makers and diplomats, activists and average citizens to take the responsibility of genocide prevention into our own hands so that we can all proudly take part in eradicating mass atrocity. In November of this year the Genocide Prevention Task Force, a committee sponsored by the US Holocaust Memorial Museum, The American Academy of Diplomacy and The US Institute of Peace created a landmark comprehensive blueprint for prevention entitled: Preventing Genocide, A Blueprint for US Policymakers. Co chairs Madeleine Albright and William S. Cohen along with a 12 member committee have outlined central components, in a 174 page document, to challenge governments and citizens, worldwide to “stop allowing the unacceptable” and identify practical steps to enhance the capacity of the U.S. government to prevent and respond to genocide and mass atrocities. An older report, called the Doctrine of the Responsibility to Protect, was first released into the international community in 2001. This report examined when, if ever, it is appropriate for states to take coercive, and in particular, military action, against another state for the purpose of protecting populations at risk. The conclusions of the committee, led by Gareth Evans, former Foreign Minister of Australia and Mohamed Sahnoun, special Advisor to the UN Secretary-General, determined that: …” when a group of people are suffering from egregious acts of violence resulting from internal war, insurgency, repression or state failure, and the state where these crimes are taking place is unable or unwilling to act to prevent or protect its population, the international community has a moral duty to intervene or avert or halt these atrocities from occurring. “ In this year end note to colleagues, friends and fellow citizens I offer a synopsis the information in this newly released “Preventing Genocide:” report to help provide a concise overview for those of us who’s concerns prevent deeper examination of this important publication. Embedded in several chapters of this new document is the principal of “the responsibility to protect”. I have included a note about this earlier document due to the central role that it plays in forming the foundation of the Genocide Prevention Task Force’s recommendations. Prevention of genocide is every citizen’s responsibility. With our collective efforts no one of us will carry a burden too heavy for a single individual. With the knowledge of the central components of these documents each of us will be better prepared to find opportunity to act in ways which promote genocide prevention. Our combined efforts can advance the commitment to eradicate genocide and shed the collective burden of helpless witnessing of willful murder on a mass scale. In “Preventing Genocide: A Blueprint for U.S. Diplomacy” the document is organized into 6 chapters which make the claim that it “represents a comprehensive policy approach designed to ensure and effective response to genocide that is not held hostage to arguments over resources, intelligence, geography, sovereignty, or legal definition”. The first chapter, “Leadership” is distinct from the others, recognizing the central role that leadership plays in the implementation of any ideas, proposed in the document, by the President, Congress and the American people. It is a specific call to action to all U.S. citizens, from the highest levels of government to the average citizen to leverage “all sources of relevant power and influence to effectively utilize the 2001 doctrine of “the responsibility to protect populations from genocide, war crimes, ethnic cleansing and crimes against humanity”. First and foremost is fostering a goal of national priority by the President and leaders in Congress as to the importance of creating an “overarching inter-agency policy framework to devise and implement preventative strategies in recognition, analysis and response to perceived threats of genocide or mass atrocity” and to move past the current ad hoc nature of US response to these crises. This critical recommendation recognizes that the US government does not have “an established, coherent policy for preventing and responding to genocide and mass atrocities”. Along side of the policy recommendations is the monetary recommendation of $250 million in annual funds “channeled to the international affairs budget to finance initiatives to prevent genocide and mass atrocities in countries at risk”. The following 5 chapters outline key recommendations as to formulating a strategic interagency policy, professional and citizen action framework for the President, Congress and the American people. Chapter 2, “Early Warning” defines and elaborates on early warning and risk assessment systems as the first major element of a comprehensive strategy to prevent genocide. The task force recognizes that monitoring agencies currently exist and deliver prompt early warning statements to governments around the world of “at risk” regions but points out that these agencies are not coordinated with government institutions in a normative structure so that information received is too sporadic and disorganized to be effective. This chapter points out that improved mechanisms for early warning within government and improved coordination with international watch agencies, civil society, governments and experts is essential in creating effective and practical prevention strategies. Chapter 3,” Early Prevention” advises that the judicial use of the tools of prevention can “successfully obviate the need for a much more difficult crisis response at a later stage.” The committee also cautions that prevention mechanisms do not automatically engender a one size fits all solution to at risk regions. Long term, context specific and multilateral commitments must be assessed, proposed and implemented before the underlying causes of conflict have reached stages where mass violence is imminent. Carrot and stick inducements are recommended to engage international regimes who are at risk of perpetrating mass violence. Power sharing, democratic transition, enhancing rule of law, economic and legal empowerment and free media are categorical strategies recommended for high-risk states…“to assist them in moving away from conflict and impunity towards accountability”. Chapter 4 , “Preventative Diplomacy” acknowledges the “impeded effective action in the past” of U.S. efforts to halt and reverse escalating threats of mass atrocities and recommends a number of reforms to enhance responsiveness. Recognition of the calculations of “national interest” as an overriding influence on U.S. policy and action in contrast to our moral or humanitarian concerns with regards to at risk regions has led to diplomatic dilemmas where available policy choices have limited U.S effectiveness to save lives in conflict ridden situations. Successful diplomacy, largely based on the recommendations in chapters 2 and 3 are reiterated to tackle the “formidable barrier of national sovereignty and nonintervention. The language in the “responsibility to protect” document is again called upon as a legitimate basis for overriding national sovereignty for the purpose of preventative action. Decision making structures, coordinated policy planning, cooperative and coercive tools in the areas of diplomacy, economy, legal and military intervention are recommended as general strategic measures. A key component of this section is the recommendation of the establishment of an Atrocities Prevention Committee to meet bi-monthly to review status and coordinate preventative action and a crisis response plan for at risk regions. Chapter 5, “Employing Military Options” tackles the major challenge of “determining whether, when and how to use military force to prevent or counter the escalation of violence to the level of genocide”. The task force urges leaders to “consider how military assets can be employed toward these objectives.” Citing the emphasis on prevention throughout the report, the committee acknowledges that the success of non military preventative measures may not always work. “Preventing or halting genocide may, at times, require the nonconsensual use of force”. The challenges inherent in military intervention include the dilemma of “taking sides” in determining genocide in the context of a broader armed conflict, and better understanding of the range of military options that can help prevent or stop genocide. It is recommended that the weighty decision to intervene militarily be considered in within “modern international legal and political structures”. The practicalities of assessing and utilizing an array of military operations with respect to basic public security and the intention of a mission are outlined in this chapter. The Department of Defense is specifically called upon to develop tools to prevent or respond to genocide where a “lack of training, doctrine and scenarios to prepare for a mission where force is required to protect civilians exists”. Coordinating military operations within the broader strategic framework of preparedness for genocide response is the critical recommendation of the task force for effective interruption of mass violence. Working with the five multinational organizations that have authority to use military force to help prevent and halt genocide is recommended to “combine political will, international legitimacy and operational capacity”. A clear strategy, international partners and ongoing vigorous diplomacy throughout intervention is critical for long term peace building in post conflict development. Chapter 6, “International Action” implores the international community to consider the costs of inaction as the tragedies of mass atrocity have mounted in this century alone, to consume the lives of tens of millions. The committee places its report in the context of overwhelming “international indifference or inability to act effectively to prevent mass atrocities”. Furthermore, the committee asserts that with “a strong normative framework and capable international institutions” halting genocide is possible. Leadership within the U.S. government, U.N. Security Council, NATO and other internationally recognized peace keeping forces to advance the normative principle of “the responsibility to protect” is cited as the most important collective principle that can be used to assist individual states to prevent mass atrocity. Finally, the committee cites a “revolution in conscience” emerging around the world with the “responsibility to protect” being adopted in new human rights charters across South East Asian Nations and the European Union. Multinational corporations are recognizing their role in facilitating potential atrocities of at risk governments and the leverage they have in promoting responsible behavior. And the prosecutorial powers of the International Criminal Court to bring to justice the mass murderers of our time cannot be underestimated in its nascent power to deter future criminals and inspire judicial action in courts around the world. A bevy of recommendations to inaugurate and implement the content of this task force closes this chapter. On a final note regarding “The Responsibility to Protect” (R2P): Since its first release in 2001 skepticism and criticism among diplomats, policy makers and experts has hindered the prompt implementation of the language of this doctrine. Its generality has been debated and criticized for its non-effectiveness in adequately providing practical implementation or a framework for action. Coming from the standpoint of an average citizen, the language of “responsibility to protect” is plain and sensible language which I would apply to myself under the rule of any government. I certainly expect my government to take “the responsibility to protect” my safety with regards to genocide, war crimes, ethnic cleansing or crimes against humanity. This is practical, ordinary language which appears to me to be a necessary first step in creating normative institutions which prevent the crimes of genocide. I am relieved that the Genocide Prevention Task Force has incorporated the proclamation of the R2P language into the core of its recommendations. The definition of “genocide” has undergone a similar rocky, disputed and easily dismissed path. 60 years after the first official declaration of the crimes of genocide by the UN the declaration of ‘the responsibility to protect” is becoming working language which can be utilized towards prevention of these crimes. Let us hope we do not have to wait another 60 years before we witness the eradication of genocide and the “responsibility to protect” as a universally accepted principle for governing bodies around the world protecting the lives of their citizens. An ounce of prevention is worth a pound of cure!
