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Chapter I Deficiencies in the Legal and Institutional Framework of IDP Protection .............................. ....................... 9 I. Legal Framework.................................................9 A. International Human Rights Law.................................... 9 B. International Humanitarian Law................................... 12 C. International Refugee Law ..................................... 14 D. Deficiences of the Current Legal Framework.......................... 15 II. Institutional Mechanisms .......................................... 19 A. The United Nations High Commissioner for Refugees (UNHCR) ................................................... 19 B. The International Committee of the Red Cross (ICRC) ...................... 26 C. The Office for the Coordination of Humanitarian Affairs (Formerly the Department of Humanitarian Affairs)............................ 28 D. United Nations Development Programme (UNDP) ............................ 31 E. United Nations Human Rights Mechanisms ................................... 32 1. The Representative of the Secretary-General on IDPs.................... 32 2. The Office of the High Commissioner for Human Rights (OHCHR) ............................................................ 35 Chapter II Kibeho: Autopsy of a Crisis .................................. 39 Background of the IDP Situation ........................................ 40 I. The Actors.................................................. 41 A. The Rwandan Government ................................ 41 B. The Institutional Response.................... ........43 1. The United Nations Assistance Mission in Rwanda (UNAMIR) ............................................................43 2. The Integrated Operations Center (IOC) .......................... 45 II. Development of the Kibeho Incident ...... ........................ 48 A. The Fate of Operation Retour ..................................... 48 B. The Bujumbura Regional Conference .............................. 49 C. Impatience of the Rwandan Government and Development of a New Strategy ............................................... 51 D. Operation Retour - Phase II................................. 53 E. Events Directly Preceding Kibeho .. ............................. 54 F. The Situation Degenerates ............................................... 54 G. Forced Closure and the Kibeho Crisis..................................... 55 H. Independent International Commission of Inquiry ............................... 62 Chapter III Analysis of the 1995 Rwandan Experience.............................. 63 I. UNREO and the "Integrated Humanitarian Response" .............................. 63 A. The Structural Problems of the IOC............................... 65 1. Representation................................................. 65 2. Location....................................................... 66 B. Legitimacy of the IOC ............................................... 68 1. Legal Basis for Operations ............................................... 68 2. Ability to Assume Political Responsibility........................... 70 C. The IOC's "Bargaining Role" ................................... 71 II. The Rwandan Government and Internal Security........................... 74 A. The RPA .......................................................... 75 B. Intentionality ..................................................... 76 C. Lethal Force in Kibeho ................................... 76 III. The Role of UNAMIR .............................................77 A. Mandate............................................................... 77 B. Practice......................................................... 79 C. Prior to Kibeho......................................................... 80 D. During the Crisis ......................................... 81 IV. The Socio-Political Context: Policy in the Region.................. . 86 A. The Creation of the Camps ........................................... 86 B. Assistance to Refugees ............................................ 88 C. The Question of Justice..................................... 92 1. The International Tribunal for Rwanda .................................... 92 2. The Independent International Commission of Inquiry on the Events in Kibeho ......................................... 93 D. The "Aid Conditionality Paradox"........ ............................ 94 Chapter IV Conclusion and Recommendations .... ........................... 98 Recommendations for the Future Protection of IDPs................ 101 I. Legal Issues................................................... 101 II. Institutional Issues ............................................ 102 A. System Reform ...................................... 102 B. The "Integrated Humanitarian Response" .............................. 103 C. A More Effective IOC ............................................ 105 D. UN Human Rights Field Presences ..................................... 106 E. The Representative of the Secretary-General on IDPs ........................ 107 F. UN Peacekeeping Forces .............................................. 108 G. Efforts beyond the UN ............................................ 108 PART TWO Normative and Institutional Weaknesses in the International Protection of Internally Displaced Persons in Rwanda since 1996 Introduction ............................................ 109 I. Normative Developments: The Guiding Principles on Internal Displacement.......................................................... 110 A. Background ............................................ 110 B. Content.................................................................111 C. Legal Character ............................................................................................. 112 D. International Recognition and Standing .................................................. 114 II. Case Studies ................................................. 117 A. Relevance of the Guiding Principles on Internal Displacement to the Kibeho Crisis ................................ ........117 1. Overview ................................................. 117 2. Principles Relating to Protection during Displacement ............... 118 3. Principles Relating to Return, Resettlement and Reintegration..... 120 4. Principles Relating to Humanitarian Assistance............................ 122 5. Role of Humanitarian Organizations .................................................123 6. Responsibility for Genocide, Crimes Against Humanity and War Crimes .......................................... 124 7. C onclusion .............................................................................................. 126 B. Internal Displacement in Northwest Rwanda (1996-1999) .......... . 127 1. Background and Description ...................................................... 127 a. Repeated Displacement, Repeated Misery................................. 127 b. Villagization: a"Solution" Brings Further Problems ................. 129 c. Donor Support of Villagization...................................................... 133 d. A Weak Advocacy Attempt... .............................................. 135 e. Contradiction within the UN ............................................. 136 2. Failed Opportunity: Relevance of the Guiding Princples on Internal Displacement to the Northwest Crisis . ............................ 141 a. General Principles..................................... 142 b. Prindples Relating to Protection from Displacement .............. 143 c. Prindples Relating to Protection during Displacement ............ 146 d. Principles Relating to Return, Resettlement and Reintegration............................................................................. 46 e. C onclusion............. ........... ............................................................ 147 III. Institutional Developments in UN Protection of IDS since 1996.........148 A. The Institutional Response to Displacement in the Northwest..... 149 B. Institutional Coordination through the "Collaborative Approach" 152 C. Reinvigoration of Efforts through the Programme for Reform...... 153 D. Resident/Humanitarian Coordinators and IDP Protection............. 156 E. Senior Inter-Agency Network Finds Continued "Gaps" ...............163 F. The Unit on Internal Displacement...................................................... 165 IV. Conclusion ..........................................170 B ibliography ........................................................................................................... 175Library of Congress Subject Headings for this publication: