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HUMANSECURITYNOWCOMMISSION ON HUMAN SECURITYNew York2003

Copyright Commission on Human Security 2003Reproduction of this publication for educational or other noncommercial purposes is authorized without priorpermission from the copyright holder. Reproduction for sale or other commercial purposes is prohibitedwithout prior written permission of the copyright holder.Editing, design and production by Communications Development Incorporated in Washington, DC, with artdirection by its UK partner, Grundy & Northedge.Photos on front cover and chapters 1, 2, 3 and 5 by UNHCR. Photo in chapter 4 by PhotoDisc. Photos inchapters 6 and 7 by Curt Carnemark, World Bank Photo Library.ISBN 0-9741108-0-9

Members of the Commission on Human SecuritySurin PitsuwanMember of Parliament and former Minister ofForeign Affairs, ThailandAmartya SenMaster, Trinity College, Cambridge, andNobel Laureate in Economics, 1998Donna E. ShalalaPresident of the University of Miami and formerSecretary of Health and Human Services, UnitedStatesCommissionersLakhdar BrahimiSpecial Representative of the UN SecretaryGeneral for Afghanistan and UN Under SecretaryGeneralPeter SutherlandChairman and Managing Director, Goldman SachsInternational, Chairman of BP and formerDirector-General of the General Agreement onTariffs and TradeLincoln C. ChenDirector, Global Equity Initiative, HarvardUniversity, and former Vice President of theRockefeller FoundationAlbert TevoedjreSpecial Envoy of the UN Secretary-General forCôte d’Ivoire, former Deputy Director General ofthe International Labour Organization and formerMinister of Planning, BeninBronislaw GeremekHistorian, former Foreign Minister of PolandFrene Frenny Noshir GinwalaSpeaker of the National Assembly of theParliament, Republic of South Africa.Carl ThamSwedish Ambassador to Germany and formerSecretary-General of the Olof Palme CentreiiiMembers of the Commission on Human SecuritySonia Picado S.President of the Board of Directors of theInter-American Institute of Human RightsCo-chairsSadako OgataScholar-in-Residence, the Ford Foundation, andformer United Nations High Commissioner forRefugees

ForewordWhen the idea of an independent Commission forHuman Security was launched at the 2000 UNMillennium Summit, there was general agreementon the importance of “freedom from want” and“freedom from fear”. Today, three years later, thefears are larger and the apprehensions greater. Thisreport is an attempt to respond to both old andnew worries and also to the underlying reasons forconcern.In addition to the persistent problems andvulnerabilities with which the world has long beenfamiliar, there is a new wave of dramatic crises atthe turn of the millennium related to terroristattacks, ethnic violence, epidemics and suddeneconomic downturns. There is also a fear thatexisting institutions and policies are not able tocope with weakening multilateralism, fallingrespect for human rights, eroding commitments toeradicate poverty and deprivation, outdatedsectarian perspectives in education systems and thetendency to neglect global responsibilities in anincreasingly interrelated world.At the same time, the opportunities forworking towards removing insecurity across theworld are also larger now than ever before.Globalization, despite its challenges, creates newopportunities for economic expansion and, ifproperly aligned, can reach peoples and countriesthat were previously excluded. Democraticprinciples and practices are continuing to gainground and to attract stronger support. There hasalso been a massive increase in the role of civilsociety and of community organizations. Further,the Millennium Development Goals represent amajor initiative aimed at removing deprivations,on which efforts to improve human security canbuild.This report should be seen in the light of theincreased challenges the world faces and theenhanced opportunities. Human security isconcerned with safeguarding and expanding people’svital freedoms. It requires both shielding people fromacute threats and empowering people to take chargeof their own lives. Needed are integrated policies thatfocus on people’s survival, livelihood and dignity,during downturns as well as in prosperity.The demands of human security involve abroad range of interconnected issues. In its work,the Commission has concentrated on a number ofdistinct but interrelated areas concerned withconflict and poverty, protecting people duringviolent conflict and in post-conflict situations,defending people who are forced to move,overcoming economic insecurities, guaranteeingthe availability and affordability of essential healthcare, and ensuring the elimination of illiteracy andeducational deprivation and of schools thatpromote intolerance. The recommendations of theCommission involve policies aimed at bothempowerment and protection, and focus on whatcan be done in the short and the long run toenhance the opportunities for eliminatinginsecurities across the world.This report can, of course, be no more than abeginning, but it is, we believe, extremelyimportant to move rapidly in the right direction.The task demands leadership and vision as well ascommitment from the world community.****The independent Commission on HumanSecurity was an initiative of the Governmentof Japan. We are grateful for the supportand encouragement of UN Secretaryiv

Sadako OgatavAmartya SenForewordCenter for International Exchange. The UnitedNations Office for Project Services efficientlymanaged the administrative arrangements. We aregrateful for their generosity and confidence in ourwork.The commissioners each brought uniquecontributions to the Commission’s work, reflectingtheir wide-ranging professional expertise andpersonal commitment. Their insights contributedenormously to the richness of this report. We arenow counting on them to assist in translating theconcept of human security into concrete policyprogrammes in their regions of the world.Finally, we would like to thank those—indeeda great many—who have shared theirunderstanding, fears and hopes about humansecurity with the Commission in many parts of theworld. We count on everyone’s continuing supportto advance human security around the world.General Kofi Annan and the active engagement andcommitment to human security of successive PrimeMinisters of Japan: Keizo Obuchi, Yoshiro Moriand Junichiro Koizumi. The continuing support ofRuud Lubbers, UN High Commissioner forRefugees, and Mark Malloch-Brown, Administratorof the United Nations Development Programme,made possible the establishment of the CommissionSecretariat and implementation of its researchprogramme. We would like to express our deepappreciation for their cooperation and advice. Weplan to carry forward their ideas as well as theoutcomes of the Commission’s work into a newAdvisory Board for Human Security.The work of the Commission receivedgenerous financial support from the Ministry ofForeign Affairs of Japan. It also received supportfrom the Government of Sweden, the WorldBank, the Rockefeller Foundation, and the Japan

ContentsMembers of the Commission on Human SecurityForewordivChapter 1 Human security now1Security centred on people—not states2Protection and empowerment for human securityInterdependence and shared sovereignty12Feature: Special issues in human security14iii10Chapter 2 People caught up in violent conflictChanges in violent conflict21Adopting a human security approach24Policy conclusions3320Chapter 3 People on the move40Movements of people and state security42Movements of people—and development44Filling gaps in the institutional and normative frameworksAdopting a human security approach46Policy conclusions5245Chapter 4 Recovering from violent conflict56Adopting a human security approach58Ensuring public safety61Meeting immediate humanitarian needs63Launching rehabilitation and reconstruction64Emphasizing reconciliation and coexistence65Promoting governance and empowerment66A new resource mobilization strategy69Policy conclusions70Chapter 5 Economic security—the power to choose among opportunitiesPoverty and human security73Adopting a human security approach73Policy conclusions90Chapter 6 Better health for human securityThe links between health and human securityAdopting a human security approach102Policy conclusions1099496Chapter 7 Knowledge, skills and values for human securityConnecting basic education to human security114Adopting a human security approach116Policy conclusions124vi11372

Chapter 8 Ways to advance the security of peopleA global initiative for human security131Addressing the basics133Linking the many initiatives in a global alliance142Outreach for human security129144ContentsAbout the Commission on Human Security153Boxes1.1 Rethinking security: An imperative for Africa?31.2 Human security and state security51.3 Development, rights and human security82.1 Conflict data are state-centred, not people-centred222.2 Conflict and interpersonal violence232.3 Compassion fatigue and humanitarian action292.4 Civil society and conflict in multiethnic societies323.1 Managing massive population movements—the break-up of the former Soviet Union3.2 Ensuring refugee security504.1 Gaps in today’s post-conflict strategies594.2 “Imagine Coexistence” projects in Rwanda and Bosnia675.1 The challenge of extreme poverty745.2 The market economy, non-market institutions and human security765.3 The importance of foreign direct investment775.4 Trade and protection785.5 People’s alternatives: the case of SEWA815.6 Civil society and human security886.1 Controlling infectious disease986.2 Ensuring human security for women: reproductive health1006.3 What role can antiretroviral drugs play in combating the HIV/AIDS threat? 1056.4 Minimizing threats to human security through global health surveillance1066.5 Community-based health insurance1097.1 Private sector partnerships for education in South Africa1177.2 Famines, wars and information media1227.3 Inflammatory education1247.4 The power of the information media for tolerance or terror1258.1 Global inequality and persistent conflicts132Tables3.1 Countries with the largest number of international migrants, 2000403.2 Countries with the largest number of internally displaced persons, 20024.1 Key human security clusters following violent conflict606.1 Estimated global violence-related deaths, 200010141Figures3.1 UNHCR data on refugee population and movements, 1992–2001416.1 The global burden of disease, 2000956.2 Health and human security linkages976.3 Estimates of current and future HIV/AIDS-infected adults in next-wave countries7.1 Estimated world illiteracy rates, by region and gender, 2000114vii4399

Human securitynow1

With human security theobjective, there must be astronger and more integratedresponse from communities andstates around the globeToday’s global flows of goods, services, finance,people and images spotlight the manyinterlinkages in the security of all people. Weshare a planet, a biosphere, a technologicalarsenal, a social fabric. The security of oneperson, one community, one nation rests on thedecisions of many others—sometimesfortuitously, sometimes precariously. Politicalliberalization in recent decades has shiftedalliances and begun movements towardsdemocracy. These processes openedopportunities for people but also new faultlines. And political and economic instabilities,some involving bitter conflicts with heavycasualties and dislocations, have broken outwithin states. Thus people throughout theworld, in developing and developed countriesalike, live under varied conditions of insecurity.in the 21st century—a response to the threats ofdevelopment reversed, to the threats of violenceinflicted. With so many dangers transmitted sorapidly in today’s interlinked world, policies andinstitutions must respond in new ways to protectindividuals and communities and to empowerthem to thrive. That response cannot be effective ifit comes fragmented—from those dealing withrights, those with security, those with humanitarianconcerns and those with development. Withhuman security the objective, there must be astronger and more integrated response fromcommunities and states around the globe.Security centred on people—not statesThe international community urgently needs anew paradigm of security. Why? Because thesecurity debate has changed dramatically since theinception of state security advocated in the 17thcentury. According to that traditional idea, thestate would monopolize the rights and means toprotect its citizens. State power and state securitywould be established and expanded to sustainorder and peace. But in the 21st century, both thechallenges to security and its protectors havebecome more complex. The state remains thefundamental purveyor of security. Yet it often failsto fulfil its security obligations—and at times haseven become a source of threat to its own people.That is why attention must now shift from thesecurity of the state to the security of the people—to human security (box 1.1).Human security complements state security, enhances human rights and strengthens human development. It seeks to protect people against a broad rangeof threats to individuals and communities and, further,to empower them to act on their own behalf. And itInstitutions have gradually responded. The UnitedNations completed more peacekeeping operationsin the 1990s than ever in its history. It alsonegotiated new international agreements to stopsome threats. Transnational corporations, workingin many countries, have transformed scientific andinformational advances into practical applications.They regularly navigate diverse markets andcultures, facilitating the exchange of goods andservices. Regional entities are finding appropriateavenues of coordinated action. And civil societyorganizations are flourishing, relying on low-costelectronic communication to keep expenses down.This report’s call for human security is aresponse to new opportunities for propellingdevelopment, for dealing with conflict, forblunting the many threats to human security. Butit is also a response to the proliferation of menace2

Traditional notions of security, shaped largely by theCold War, were concerned mainly with a state’s abilityto counter external threats. Threats to internationalpeace and security were also usually perceived as threatsfrom outside the state (see, for example, chapter 7 ofthe United Nations Charter). More recently, thinkingabout security has shifted. In Africa, for example, suchshifts can be traced to the internal struggles of Africanpeople against colonial rule and occupation, whether inAlgeria, Angola, Cape Verde, Kenya, Mozambique,Namibia, South Africa or Zimbabwe.Views on security were shaped by the experiences ofcolonialism and neocolonialism and by the complexprocesses through which internal and external forcescombined to dominate and subjugate people. Theenemy came from within the state, and the conditionsunder which people lived every day placed them inchronic insecurity. These experiences introduced intothe debate such issues as whose security matters andunder what conditions, and what are the moral, ethicaland legal bases for what is now termed a “just war”.These experiences and perceptions were important inshaping such disparate-seeming issues as how thewomen’s movement mobilized against oppression andwhat form reconstruction, development andreconciliation would take in newly independentcountries. Notable in Africa was the way the women’smovement linked struggles for national independenceand security to the struggle for equality and socialequity. The persistent marginalization of countries inAfrica from processes of economic growth anddevelopment, however, reinforced perceptions ofexclusion and vulnerability. For these reasons,development, poverty eradication and greater socialequality were increasingly linked to conflict resolution,peace-building and state building in Africa.Thinking about security broadened from an exclusiveconcern with the security of the state to a concern withthe security of people. Along with this shift came thenotion that states ought not to be the sole or mainreferent of security. People’s interests or the interests ofhumanity, as a collective, become the focus. In this way,security becomes an all-encompassing condition inwhich individual citizens live in freedom, peace andsafety and participate fully in the process ofFrene GinwalaNote: Based on a presentation at the “ParliamentsUniting for African Unity Conference”, Cape Town,June 2002.31Human security nowgovernance. They enjoy the protection of fundamentalrights, have access to resources and the basic necessitiesof life, including health and education, and inhabit anenvironment that is not injurious to their health andwell-being. Eradication of poverty is thus central toensuring the security of all people, as well as thesecurity of the state.This understanding of human security does notreplace the security of the state with the security ofpeople. It sees the two aspects as mutually dependent.Security between states remains a necessary conditionfor the security of people, but national security is notsufficient to guarantee peoples’ security. For that, thestate must provide various protections to its citizens.But individuals also require protection from thearbitrary power of the state, through the rule of lawand emphasis on civil and political rights as well associo-economic rights.Significantly, such thinking on security takes placealongside the development of renewed initiativesfocusing on regional and continental cooperation andregeneration. A convergence in how we understandissues of security and how we view the effects on thelives of people is already evident in the foundingdocuments of the African Union, the New Partnershipfor Africa’s Development, the Conference on Security,Stability, Development and Cooperation in Africa, andthe reformed Southern African DevelopmentCommunity, including its Organ on Politics, Defenceand Security.But, of course, this does not mean an end to thedebate about the role of the state in securitymanagement. Rather, it reinforces the point thatwithout popular participation in shaping agendas onsecurity, political and economic elites will go it alone ina process that will further marginalize and impoverishthe people of Africa. It is against this background thatthe idea of human security must become a tool andinstrument to advance the interests of humanity,particularly in Africa. Rethinking security in ways thatplace people and their participation at the centre is animperative for the 21st century.Box 1.1 Rethinking security: An imperative forAfrica?

Human security thus bringstogether the human elements ofsecurity, of rights, of developmentseeks to forge a global alliance to strengthen theinstitutional policies that link individuals and thestate—and the state with a global world. Humansecurity thus brings together the human elements ofsecurity, of rights, of development.The Commission on Human Security’sdefinition of human security: to protect the vitalcore of all human lives in ways that enhancehuman freedoms and human fulfilment. Humansecurity means protecting fundamental freedoms—freedoms that are the essence of life. It meansprotecting people from critical (severe) andpervasive (widespread) threats and situations. Itmeans using processes that build on people’sstrengths and aspirations. It means creatingpolitical, social, environmental, economic, militaryand cultural systems that together give people thebuilding blocks of survival, livelihood and dignity.The vital core of life is a set of elementaryrights and freedoms people enjoy. What peopleconsider to be “vital”—what they consider to be “ofthe essence of life” and “crucially important”—varies across individuals and societies. That is whyany concept of human security must be dynamic.And that is why we refrain from proposing anitemized list of what makes up human securit

Chapter 1 Human security now 1 . 1.2 Human security and state security 5 1.3 Development, rights and human security 8 2

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