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and military equipment to Yugoslavia, and August 24, 1993, when it called for an immediate cease-fire throughout Bosnia and Herzegovina and demanded respect for UNPROFOR and UNHCR personnel, the Council approved more than forty resolutions addressing the issues, most of them unanimously. Many of its pronouncements were on political and military matters, although in a large number of these, humanitarian and human rights concerns were prominently mentioned. Often, however, humanitarian and human rights concerns were the subject of entire resolutions. “The worse the crisis has become,” noted Adam Roberts, “the more have humanitarian issues been featured in Security Council resolutions and in other international statements.” (“Humanitarian War: Military Intervention and Human Rights,” in International Affairs, 69, 3, [1993], 442.) In addition to serving as a forum for charting the international response to the crisis, the Security Council formulated and gradually adapted the missions and terms of engagement of the U.N. Protection Force (UNPROFOR). Three sets of U.N. missions and troops were involved: 1. Croatia: UNPROFOR was established under Security Council Resolution 743 of February 21, 1992 to implement the Geneva Agreement of the previous November. That agreement called for withdrawal of Yugoslav Peoples Army units from Croatia, an unconditional cease-fire, and a number of humanitarian measures, including the return of displaced people to their homes. U.N. troops were stationed in four UNPAs in the so-called Krajina region of Croatia, where Serbs were either a majority or large minority. CIVPOL was to oversee the maintenance of law and order in the UNPAs. Subsequent resolutions in June expanded UNPROFOR’s mandate to areas adjacent to the four UNPA sectors (the Pink Zones) and in August gave it the additional task of controlling access to the UNPAs at border points. In 1993, UNPROFOR strength in Croatia totaled 14,389, divided among military (13,340), police (530), and civilian (519) contingents. 2. Bosnia and Herzegovina: With the spreading of the war beyond Croatia beginning in April 1992, the Security Council expanded UNPROFOR’s mandate and strength. Resolution 758 of June 8, 1992 authorized U.N. troops in a phased deploy- 44
ment to establish security conditions permitting the reopening of the Sarajevo airport and its use for humanitarian operations. Having stepped up deployment in June, July, and early August, the Security Council in Resolution 770 of August 13, invoking enforcement powers under Chapter VII of the U.N. Charter, called upon states to take “all measures necessary” to facilitate deliveries of humanitarian assistance to Sarajevo and throughout Bosnia and Herzegovina, providing protection as requested by UNHCR. A month later, in Resolution 776 of September 14, 1992, UNPROFOR was charged with supporting and protecting UNHCR’s humanitarian relief deliveries and, if requested by the ICRC, facilitating the protection of released detainees. In Resolution 824 of May 6, 1993, the Security Council declared a series of “safe areas” within which UNPROFOR would provide protection to humanitarian activities. The complement approved for Sarajevo in June included 1,000 troops, 60 military observers, 40 CIVPOL, and other civilian and military staff. In July, the Security Council increased the numbers to 1,600. In mid-1993, total UNPROFOR strength in Bosnia and Herzegovina stood at about 9,200 personnel. 3. Former Yugoslav Republic of Macedonia (FYRM): In an effort to prevent the conflicts from spreading, the Security Council in Resolution 795 of December 11, 1992 authorized the Secretary-General to deploy UNPROFOR troops, military observers, and civilian police monitors along the border between the FYRM and the Federal Republic of Yugoslavia and Albania. At the time, only very limited U.N. humanitarian action was underway, and humanitarian support duties were not mentioned in the UNPROFOR mandate. Its approved strength was 700 troops, 35 military observers, and 26 CIVPOL. In all three theaters, UNPROFOR press officers handled media relations, accrediting and facilitating access for 5,000 members of the international press, who became a major presence and influence on humanitarian issues in their own right. Anticipated costs of UNPROFOR operations during 1993 were calculated in October at $1.02 billion, excluding the costs of the peacekeeping effort in Bosnia and Herzegovina borne by the troop-contributing countries from NATO. UNPROFOR troops were absent from Serbia and 45
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Occasional Paper #18 HUMANITARIAN A
Page 3:
CONTENTS Foreword .................
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accountable is the United Nations f
Page 8 and 9: areas within the former Yugoslavia.
Page 10 and 11: The deteriorating social situation
Page 12 and 13: IRC LWF MSF NATO NGO ODA ODPR OFDA
Page 14 and 15: xiv
Page 16 and 17: “We got our own hands dirty in th
Page 18 and 19: civilian populations beyond areas i
Page 20 and 21: European Union on November 1, 1993
Page 22 and 23: with its concern for minority popul
Page 24 and 25: U.N. put as much effort into stoppi
Page 26 and 27: No. of displaced / refugees 200,000
Page 28 and 29: How many persons were reached by U.
Page 30 and 31: the entire population of central Bo
Page 32 and 33: quantitative data to qualitative ju
Page 34 and 35: denied access to the centers where
Page 36 and 37: ing proceeded uninterrupted. In the
Page 38 and 39: also difficult. Human Rights Watch,
Page 40 and 41: UNHCR as Lead Agency UNHCR received
Page 42 and 43: primary responsibility for the wide
Page 44 and 45: wars, the terrain was more familiar
Page 46 and 47: * Joint Appeals (UNHCR, UNICEF, WHO
Page 48 and 49: teur it appointed was given more au
Page 50 and 51: port of third-country nationals bac
Page 52 and 53: followed locally. It became more di
Page 54 and 55: had two principal contacts: the gov
Page 56 and 57: national NGOs resident in Serbia an
Page 60 and 61: Montenegro because the Federal Repu
Page 62 and 63: munity played a major role in polit
Page 65 and 66: CHAPTER 3: TEN CENTRAL POLICY CHALL
Page 67 and 68: homeless and lower-income pensioner
Page 69 and 70: international community,” recalle
Page 71 and 72: electricity up and running was unde
Page 73 and 74: UNICEF, charged with the survival a
Page 75 and 76: Relief and Beyond Two issues emerge
Page 77 and 78: ties away from the areas of fightin
Page 79 and 80: sons forced to flee intolerable cir
Page 81 and 82: evacuees to 30,000 bodies.” The i
Page 83 and 84: war in which human displacement was
Page 85 and 86: Based on interviews and observation
Page 87 and 88: tarian organizations did their best
Page 89 and 90: eneficiary population had been reac
Page 91 and 92: with 113 persons, including two WHO
Page 93 and 94: humanitarian access. A lot of time
Page 95 and 96: here than in any previous conflict
Page 97 and 98: fered at a “lower price” would
Page 99 and 100: Third, and perhaps the most visible
Page 101 and 102: ity and seriousness of the U.N.’s
Page 103 and 104: had to adapt to UNPROFOR rather tha
Page 105 and 106: Serbian aggressors is not effective
Page 107 and 108: some of those persons who have alre
Page 109 and 110:
In a letter sent in June 1993 to th
Page 111 and 112:
indirect extermination of the whole
Page 113 and 114:
insisting on a presence in Serb-hel
Page 115 and 116:
has exactly the same problems—lac
Page 117 and 118:
Yugoslavia lends urgency to address
Page 119 and 120:
town of Srebrenica.” DHA’s atte
Page 121 and 122:
population at risk. The numbers wer
Page 123 and 124:
tions would also have been construc
Page 125 and 126:
observed, the situation was reverse
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erly preceded by interagency assess
Page 129 and 130:
Local Resources Recent humanitarian
Page 131 and 132:
the ground rules for dealing with t
Page 133 and 134:
standably dismayed by the time pree
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10. Assisting Civilians without Pro
Page 137 and 138:
sanctions against the Federal Repub
Page 139 and 140:
that the drops were a bad idea but
Page 141 and 142:
CHAPTER 4: RECOMMENDATIONS Several
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political, and military entities. O
Page 145 and 146:
ferently. The interface between the
Page 147 and 148:
takings ultimately rely. Second, we
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ANNEX 1 PERSONS INTERVIEWED * UNITE
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Stephanie Allen Early Joan Edwards
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Karen Kenny Peter Kessler Mostafa K
Page 155 and 156:
Jacques Mouchet Sadako Ogata Pierre
Page 157 and 158:
Serge Telle Tatjania Termacic Sonya
Page 159 and 160:
Derek Boothby Shannon Boyd David Cr
Page 161 and 162:
Marc van Wynsberghe Civil Affairs O
Page 163 and 164:
Ann Grant Rita Hudson Zlatko Hurtic
Page 165 and 166:
Martin Damery Ursula K. Eugster Car
Page 167 and 168:
Arthur Helton John Hicks Lidia Himi
Page 169 and 170:
Jan Williamson Roger Winter John Wo
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ANNEX 2 CHRONOLOGY OF MAJOR EVENTS
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the ICRC suspended relief operation
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Summer 1993. In May, fighting betwe
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ANNEX 3 TEAM MEMBERS Jeffrey Clark,
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ANNEX 4 ABOUT THE HUMANITARIANISM A
Page 181:
167
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