Preventive Action for Refugee Producing Situations

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156 Chapter 4 - designate a central focal point of the UN system for this task and - establish a working group on early warning of refugee flows consisting of representatives of ORCI, UNHCR, Centre for Human Rights, UNDRO, FAO, as well as those of UNDP, WFP and others, to work out practical measures for modes of co-ooperation and procedures to develop an effective early warning system for refugees. 360 This matter was then discussed in the UN Administrative Coordinating Committee (ACC) which lead to the establishment of the recommended Working Group by Decision 1991/9. The mandate of the Working Group of the ACC on Early Warning of New Flows of Refugees and Displaced Persons was defined 361 and the Working Group is to present its final report to the ACC in October 1992. Some of the issues that seem to transpire in the process of the ACC Working Group include that, for the consultative mechanism to function effectively, a core group of agencies such as FAO, the Departments of Political and Humanitarian Affairs respectively, UNHCR, UNICEF, UNDP.WFP, and possibly the Center for Human Rights will need to make a serious commitment to carry out specific fundamental activities. These activities will need to include mechanisms, procedures and senior staff within their own organizations capable of handling this enormous additional task. 362 In the resolution of the General Assembly 46/182 of 19 December 1991 that provided the basis for establishing the post of UN Emergency Relief Coordinator to head the new Department on Humanitarian Affairs, early warning is underlined as one of the guiding principles. The academic workshop of York University in its session in early February 1992 suggested the functional structure for a humanitarian early warning system to be divided into five distinct but related functional phases: 1. Data collection, Exchange and Dissemination; 2. Analysis of data; ____________________________ 360 The Role of the United Nations in Early Warning Regarding Refugees and Displaced Persons: A Background Paper, 20 March 1991. 361 "... to develop an effective early warning system related to new flows of refugees and displaced persons, including measures of cooperation and procedures for gathering, analyzing and disseminating information in a timely manner to all concerned, and to make recommendations on the need for an interagency consultative mechanism." 362 Lance Clark, Final Report of the ACC Working Group on Early Warning of New Flows of Refugees and Displaced Persons, Working Document, Rapporteur 13 March 1992. New Approaches and Policies 157 3. Coordination and synthesis of the various analyses received; 4. Formulation on and communication of the early warning; and 5. Action on the warning. 363 The above shows that the United Nations' experience with early warning is considerable. Its effectiveness, however, is difficult to measure. Considering the only recently ended Cold-War, which impeded substantial work in early warning for both conflict prevention and addressing potential crises, the establishment of ORCI in 1987 for early warning, essentially in the political field, and the setting up of the ACC Working Group for early warning in the humanitarian field are and will remain landmarks. Whatever the outcome of the newly emerging early warning constellation and function in the United Nations, it has become an accepted fact that UN organizations must look ahead together. Of course, early warning has more prospects for success in smaller conflicts and crises. Human lives saved, and nuclear catastrophes prevented because of early warning and rapid preventive action make it worth the effort. Even the Members of the Security Council recognized in their Summit meeting in January 1992 that there are new favorable international circumstances under which the Security Council has started to fulfil more effectively its primary responsibility for maintaining international peace and security 364 . There seems to have developed a true political will to take action before and not after the conflicts have blown up. For this to be effective, early warning will be both essential and is likely to be more readily obtainable in this new international environment than before. 4. Conflict management methods: Peace-keeping, Peace-making, Peace-enforcement. Peace-keeping as a concept is not specifically stipulated in the Charter, but it has evolved over the years as an internationally acceptable way of controlling conflicts and promoting the peaceful settlement of disputes. It introduces to the military sphere the principle of non-violence. Thus, for the first time in history, military forces are used worldwide not to wage war, but to control and end conflict between peoples or communities. _____________________ 363 "Towards Practical Early Warning capabilities concerning Refugees and Displaced Persons", Report, Centre for Refugee Studies, York University, North York, Ontario, 7 February 1992. p. 1,4. 364 UN. doc S/23500,31 January 1992, Note by the President of the Security Council.
158 Chapter 4 The first such operation was created in the Middle East in 1948 in the form of an observer mission. The first of the United Nations peacekeeping forces was created also in the Middle East, in 1956. 365 On 10 December 1988, the Secretary-General accepted the Nobel Peace Prize in Oslo on behalf of United Nations peace-keepers. With him were seventeen Blue Berets representing United Nations operations in the field. At the opening session of the Follow-up Meeting of the Conference on Security and Cooperation in Europe (CSCE) in Helsinki on 24 March 1992, the Secretary-General transmitted a message through Mr. Sotirios Mousouris, the Assistant Secretary-General for Political Affairs. This message underlined that the CSCE and the UN share similar ideals and face common challenges and priorities and actions regarding peace and security, such as preventive diplomacy, disarmament, economic and social development, human rights and democracy. Mr. Boutros Ghali referred to the division of labor between the UN and the European Community for peace-keeping and peace-making efforts, respectively. He also referred to a recent dispatch of UN fact-finding missions to Nagorno-Karabakh, which is intended to complement the CSCE in its peace-making efforts. 366 A few days before that, on 19 March 1992 in the UN Headquarters in New York, the Secretary-General gave his first press conference. He reiterated one of his priorities: reinforcing regional cooperation mechanisms for conflict management and making a clear division of labor. For example, a division between the European Community and the United Nations for dealing with peace-making, and with peacekeeping/maintaining the cease-fire, respectively. He sees the UN role as a complementary one: through cooperation with the different regional bodies to promote preventive diplomacy and even a kind of decentralization in the different peacekeeping operations. When asked about peace and development, the Secretary-General mentioned two interesting cases, El Salvador and Cambodia, where the role of the UN is not limited to peacekeeping, but where the UN is moving to the second stage, which is the construction of peace through development. In this connection Mr. Boutros- Ghali reminded his audience that a great majority of the 77 military conflicts have taken ______________________ 365 The Blue Helmets, A Review of United Nations Peace-keeping, Second Edition, United Nations, New York, 1990, p. 13. 366 SG/SM/4723 - DC/2399, 27 March 1992, Secretary-General stresses concerns of UN and CSCE in message to Helsinki Follow-up meeting, DPI UN, New York. New Approaches and Policies 159 place in the countries of the Third World during the past 45 years. Therefore, it is essential that the UN maintain a close relation between peace-keeping and peace-building. Discussions and practical efforts to invigorate peace-keeping and cooperation between the UN and regional organization have so far had limited success. Therefore, a new operation is just starting in Somalia to bring military protection and humanitarian aid. Only recently, the General Assembly urged the United Nations: [...] to provide such technical assistance as may be appropriate to the Organization of African Unity should the latter decide to launch a peace-keeping operation. 367 a) Peace-keeping: According to Mr.Goulding, Under Secretary-General of the UN in charge of peace-keeping, there are two kinds of peace-keeping operations. The classic operation is to help "create the conditions in which negotiations can go on", usually by helping maintain the cease-fire at the end of a war. The newer type, seen in Namibia, Cambodia, Western Sahara and El Salvador, forms part of a political settlement which has already been negotiated but requires an impartial third party to oversee its implementation. He regards the process in El Salvador, where he worked very closely with his "peace-making" colleague Mr. Avaro de Soto, as a model; by contrast, Mr. Goulding explains the arrangements in Western Sahara, negotiated in great secrecy by the Secretary-General's special envoy Mr. Issa Diallo as a disaster. 368 Peace-keeping is in great demand these days. There are 12 operations, including the unprecedently ambitious task of bringing peace and reconstruction to Cambodia, that involves supervising both the existing administration and the election of a new one. The cost of this Cambodia operation alone is estimated to be $1.9 billion. i) What are the problems and means to prevent conflicts? There are two crucially important problems which actually hinder the UN to be as effective as it could if they did not exist: _________________________ 367 A/RES/46/20, 17 March 1992. Cooperation between the United Nations and the Organization of African Unity. Resolution adopted by the General Assembly. 368 Edward Mortimer. Marrack Guolding, the UN's protector of a fragile peace, Financial Times, 29 February -1 March 1992.
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Luise Drüke Preventive Action for
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European University Studies Europä
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Foreword It is a pleasure to welcom
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10 office. The Under Secretary-Gene
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14 origin information work, with a
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18 Part II "New Approaches and thei
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22 Chapter 1 the consequences inste
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26 Chapter 1 [To] call upon member
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30 Chapter 1 20 million according t
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34 Chapter 1 Introduction 35 abroad
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38 Chapter 1 Consideration of Commu
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42 Chapter 1 grassroots efforts in
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46 Chapter 2 international interven
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50 Chapter 2 In 1981, the U.N. Comm
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Page 53 and 54: 102 Chapter 3 return of nonrefugees
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252 Selected Bibliography San Remo:
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256 Selected Bibliography Selected
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260 Selected Bibliography MORRIS, G
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264 Selected Bibliography with Regi
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268 Selected Bibliography .........
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272 Selected Bibliography -—----
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This book provides an empirical ana
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