IRIN Interview with Francis Deng

Since 1992, Francis Deng, the Representative of the UN Secretary-General on Displaced Persons has been given a mandate to review how existing international and legal norms can protect and assist internally displaced persons (IDPs) in conflict situations. During this period Guiding Principles for Internal Displacement were developed. He cited particular concern that governments are made more aware of their responsibilities to their citizens in times of conflict. QUESTION: Your office estimates that there are 20-25 million displaced persons in the world today, at least half of whom are in Africa. What are you doing to help them? ANSWER: The statistics are not at all reliable. The OAU estimates that there are some 30 million internally displaced Africans. We believe that our numbers are more or less accurate but recognise that these can vary considerably depending on who is counting and the objectives and criteria they have in mind. Q: What do the Guiding Principles say and are they actually adhered to in practice? A: They provide guidance on how to prevent displacement, how to respond to it once it has taken place in terms of both protection and assistance and how to find durable solutions in terms of return, resettlement and integration with long-term objectives of development. The Guiding Principles are only the beginning because they do not necessarily guarantee that protection and assistance will be provided to IDPs. We also have to look into institutional mechanisms for translating these principles into practical protection. Q: Should the international community change the way it deals with internal displacement? A: We have made proposals to existing institutional arrangements. One was to create a new (UN) agency to deal with IDPs which we soon realised that nobody really wanted to do. The other was to designate an existing agency such as UNHCR, which we thought was most qualified by virtue of its protection and assistance mandate, its capacity and experience, but it was concluded that this was too big a task for one agency. The collaborative approach is preferred by most UN agencies who have become active in the issue of IDPs. Our mandate is specific and lacks resources and operational capacity, therefore we can only count on building on the collaborative approach among relevant actors in the UN system. Q: So you are essentially an advocate on behalf of IDPs? A: Yes, but I like to think of it as a process of studying the problem in order to have a sound understanding on the basis of which you can then advocate. It’s a mix of study, research, advocacy and analysis. Q: What about the issue of national sovereignty? A: We do have a resurgence of the sensitivity about the issue of sovereignty. Countries do have responsibility for their citizens and if large numbers of people get affected by displacement and are in desperate need for the basics of life then the international community cannot close its eyes and say this is an internal matter. Q: You have been to several countries affected by displacement. What did you hope to achieve through these missions? A: I go to conflict-affected countries to try to establish a common ground with the government. Once you have established that you respect their sovereignty you also want to bring to their attention that it is the responsibility of governments to take care of their citizens. If they fail for lack of capacity they should call on the international community to assist. If they fail for lack of will they should also expect international concern. When I find out the needs of the displaced on the ground I come back and report my findings to the government and discuss with them what they can do themselves; how they should organise themselves in terms of institutional arrangements; what kind of operations are needed. But I also assess what the affected country’s requirements are in terms of international assistance. That usually generates a process, a process of awareness, of thinking practically and sometimes actual delivery of assistance and protection. Q: To what extent do you focus on displacement in Africa? A: So far I have made 16 missions around the world and it is important to note that the problem is global. I don’t want the world to think that displacement is only an African problem but we should at the same time bear in mind that Africa is the worst hit. In every country in which there is a conflict you will find internal displacement. Q: You travelled to Burundi recently? A: I went to Burundi with a specific mandate from the IASC (Inter-Agency Standing Committee) to discuss the displacement camps with the government with a view to advocating their dismantlement. I listened carefully to the motives and concerns of the government particularly regarding their security situation. I also shared with them the concerns of the international community about the conditions of the displaced population, not only with a view to seeing how their needs could be met, but preferably to work towards dismantlement. The government was quite responsive. They said they would begin to dismantle the camps as soon as the security situation permitted. I tried to accelerate the process to facilitate transparency and collaboration with UN agencies and NGOs to ensure that the dismantlement takes place in a manner which is respectful of the dignity of the concerned populations. Q: How do you propose to deal with the problems of displacement in Sudan, your own country? A: Sudan is estimated to have over four million displaced, more than any other country in the world. When one goes to one’s own country when one has a global responsibility there is a certain degree of ambivalence involved. You’re seen as focussing on your own concerns but if you don’t you’re also blamed for pointing fingers at others when your own country is in crisis. So I try to strike the balance between being involved in Sudan without being obsessively involved. I have visited and do plan to visit again. In other ways I am in constant touch with all concerned with the conflict, both government and non-state actors. Ultimately the challenge is one of peace. I am involved with many others in the search for peace in Sudan as the most radical way of ending the suffering of the displaced in Sudan. Q: Are you planning a trip to Angola? A: Angola came into the limelight as a result of a visit by Ambassador Richard Holbrooke. He was appalled by what he found there which offered the opportunity for highlighting the problems of the internally displaced worldwide. It’s clearly one of the worst in the world. The conflict and the suffering have gone on for too long. Carolyn McAskie (UN Emergency Relief Coordinator a.i.) also visited Angola and went to areas far worse affected than those visited by Ambassador Holbrooke. They want me to go to look more closely at the situation, to engage in dialogue with all the actors and to advise the international system how best to respond to the situation there.