Speech 02 July 2007
Gunilla Carlsson, Minister for International Development Cooperation

The Challenge of Protecting Civilians in Darfur: Sweden's Response

- Check against delivery -

Dear friends,

Thank you for meeting us here today, to address the situation of the civilian population in Darfur. This is one of the main challenges facing the international community and among the priority concerns of my work as Minister for International Development Cooperation.

We are here because hundreds of thousands of people have been abused, threatened, wounded, raped and killed. Because millions of women, children and men have been forced to leave their villages and homes. We are here because at least 2 million people live in temporary camps for the displaced. Millions of individuals, who should be free to carry on with their daily lives, have become dependent on the decisions of others.

It remains absolutely clear that the primary responsibility to protect its people remains with the Government of Sudan. But these numbers and our historic failure to protect the people of Darfur from this tragedy speak for themselves: The Sudanese Government has failed to exercise this responsibility. What has happened is a disgrace to humanity. And the suffering in Darfur has not subsided.

This is why it is now a major responsibility for us to give the people of Darfur back their human dignity and allow them to start building a future. To put our responsibility to protect into practice.
I went to Darfur to see the reality behind the statistics. I wanted to meet victims of the atrocities and listen to their stories and needs.

I returned more convinced than ever that it is my responsibility to do everything in my power to contribute to an improved situation for the suffering civilians.

We have identified a number of areas where we will strengthen Swedish support to the people in Darfur and their return to peace, dignity and new opportunities. My goal is to provide support that makes a real difference, based on our responsibility to protect civilians and guided by an ambition to intensify our efforts in the field of gender justice.

***

The international community is now spending huge sums on humanitarian efforts in Darfur, resources that could be spent to help build a better future for Sudan. Swedish support to humanitarian efforts in Sudan amounts to approximately SEK 300 million (USD 43 million) a year.

Our efforts to support reconstruction in southern Sudan after decades of civil war continue and our determination to help realise the promises of the north-south peace agreement remains firm. But as long as today's disastrous humanitarian situation in Darfur prevails we must focus on the everyday, basic needs of the suffering people. Humanitarian aid is, for the time being, essential to continue protecting the people of Darfur, to secure human dignity and create hope for the future, especially for those who are most vulnerable.

We are therefore substantially increasing our contribution to the ICRC Sudan programme with an additional SEK 40 million (USD 5.7 million). This is our response to the appeal following the increased responsibility of the ICRC in Gereida in southern Darfur - one of the places where the situation is currently most critical.

***

At the core of development and in the midst of the Darfur tragedy, we find women and children. Women and children are disproportionately affected and abused by the violence prevailing in Darfur. The provisions of the Darfur Peace Agreement on the rights of women and their involvement in building the future of Darfur must be respected and aided. Thus, we are now strengthening aspects of our work in Sudan that particularly focus on the situation of children and women. How are we doing this?

The victims of sexual violence and other forms of abuse must receive care and treatment, redress and remedy. Sudanese authorities have the primary responsibility. But it is also the shared responsibility of donors, of humanitarian actors and of UN bodies such as UNIFEM to support and protect the voice and empowerment of Sudanese women.

In order to strengthen the legal protection of women, Sweden is currently preparing long-term and substantial financial support to UNDP's programme for the rule of law and justice in Sudan. This support will be strategic and concrete, and focus in particular on the vulnerable women of Darfur.

Not least, UNIFEM's dedicated work with gender justice in Sudan has illustrated the opportunities at hand that can make a real difference. We will substantially strengthen our cooperation with UNIFEM and other key actors focusing on the promotion of gender justice and women's political participation. Sudan has committed itself to organising free elections, to giving its people a voice. It is crucial to the future of Sudan that its women are heard and truly involved in rebuilding the nation.

As co-chair of the Partners for Gender Justice in Conflict Affected Countries, I continue to emphasise the implementation of Security Council Resolution 1325 in all aspects of our development cooperation in Sudan.

***

As soon as the security situation allows, Sweden will be ready to contribute significantly to rebuilding Darfur. Massive efforts will be required to facilitate the return of millions of internal refugees and refugees in neighbouring countries, whose homes have in many cases been burned and destroyed. Local infrastructure, such as schools, health clinics, wells and irrigation works will have to be rebuilt.

For the refugees to return, they not only need something to return to, they also need assurance that their village will not be attacked again. This cannot occur without a dramatic improvement in security. We stand ready to contribute both to the realisation of a rapid peace dividend and long term rebuilding of Darfur. The prospect of international aid to the rebuilding efforts should also be seen as part of the efforts to find a political solution. It must be shown that peace is profitable both for humanity and the economy.

***

Sweden stands up for the rights of all Sudanese by clarifying the link between security and development. I am therefore deeply concerned that the Government of Sudan is not living up to its obligations under human rights law and international humanitarian law. There are clear rules regarding the conduct of hostilities. Rules that are constantly broken in Darfur. Civilians, mostly women and children, continue to pay a heavy price. All parties to this conflict must respect international law, including international humanitarian law and humanitarian principles. Sudan must cooperate fully with the International Criminal Court. The Janjaweed militia continues to act with impunity despite the arrest warrants issued by the ICC. It is incumbent on the Government of Sudan to contain this militia and arrange for its disarmament.

Humanitarian access is crucial and in this regard, the Sudanese Government has a responsibility to fulfil its obligations under humanitarian law. To hinder humanitarian access is a betrayal of the Sudanese people and of us all.

If the Sudanese Government is unable - or unwilling - to protect and assist its own citizens, it must provide for the unhindered and safe access of humanitarian organisations to civilians in need. At present humanitarian work in Darfur is seriously hampered by abuse and attacks on humanitarian staff by all armed groups, and by administrative restrictions imposed by the Sudanese authorities. It is not only sad, it is totally unacceptable to see how brave NGOs are forced to leave the country. The commitments made in the joint communiqué with the UN on facilitation of humanitarian activities in Darfur must be implemented by Sudan. I therefore welcome the step taken by the Sudanese Government of removing some of its bureaucratic impediments to humanitarian work. This is a step in the right direction, but it is not enough.

Sweden continues to support the vital efforts of Jan Eliasson and Salim Salim politically and practically. A unified stance of the international community to promote a political settlement of the Darfur conflict is required. In this regard, Security Council members must assume their responsibility.

As part of our support to reach a political settlement and reconciliation in Darfur, Sweden lends financial and diplomatic support to the Darfur-Darfur Dialogue and Consultation. This internal dialogue among the people of Darfur provides an important forum for the grass-roots people of Darfur.

Sweden will also cooperate with and finance the efforts of the Geneva-based Centre for Humanitarian Dialogue to carry out a mediation programme in Darfur. The short-term purpose of the Centre is to improve humanitarian access and security, primarily through dialogue with the rebel groups. It also aims at facilitating negotiations on the full implementation of a sustainable ceasefire between the rebel groups and the government.

With AMIS, the African Union (AU) peace support mission in Darfur, the AU has demonstrated its determination to show leadership to end conflicts in a dangerous and crucial task. Sweden actively contributes with military observers and policemen to the UN peace-keeping mission UNMIS, as well as financially with experts and advisers to the EU support to AMIS.

In addition to this, my Government has just decided to extend and enlarge the support that the Swedish Rescue Services Agency provides to the health care component within the framework of the EU assistance to AMIS. This will include training health workers and supplying medicines and other material to AMIS.

We are also currently pursuing discussions with a view to a possible joint Swedish-Norwegian contribution to an enhanced UN presence in Darfur.

Still, the responsibility remains with the Government of Sudan. It must live up to its commitments in line with the agreements in Addis Ababa and at the AU PSC in November last year, and in getting an AU/UN hybrid force on the ground in Darfur. The Sudanese Government's acceptance of 12 June to get the hybrid force on the ground is an important step. It is imperative that this is rapidly implemented.

***

So far, I have focused on the necessity of enhancing our efforts and contributions to strengthen humanitarian protection in Darfur. Let me now widen the perspective. Many unfortunate factors contribute to the conflict in Darfur. I am convinced that a key element is the marginalisation of the region and its people.

The political and economic power of Sudan has been concentrated in Khartoum. This has contributed to the experience of decades of devastating civil war. Sudan has seen violent conflict in the east and in the south. Millions of people have been uprooted and displaced. The conflict in Darfur continues and is steadily spreading, with devastating effects, to neighbouring countries as well.

In light of this, the Comprehensive Peace Agreement, CPA, from January 2005 presents an historic opportunity to reform and democratise Sudan, to give voice to the region and its people. It is imperative to Darfur, to real development in Sudan as a whole and indeed to the stability of the region at large, that the CPA is implemented. Sweden will enhance its efforts to contribute to this historic task - not only financially, but also diplomatically and politically.
Needless to say, a better future for the people of Sudan is not possible without a sustainable peace. And a sustainable peace in Darfur and in Sudan as a whole can only be achieved through a comprehensive political solution within Sudan.

While preparing long-term efforts in Darfur, Swedish support to the south continues. We have fulfilled and surpassed the commitments made in Oslo. This year, Swedish development assistance to Sudan will amount to approximately SEK 130 million (USD 18.5 million). That brings our total assistance to Sudan this year to some SEK 400 million. On top of this, we are increasing targeted efforts. As an example, let me mention that in order to facilitate the voluntary return of refugees to southern Sudan, Sweden, through the Swedish Rescue Services Agency, will contribute SEK 21 million (USD 3 million) to UNHCR transportation support over a two-year period.

We are determined to achieve results in southern Sudan and are therefore actively involved in the work of the Joint Donor Team, JDT. In relation to this, I have assigned a special envoy the task of further enhancing Swedish support to strengthen the implementation of the CPA.

***

It was a major achievement of the international community to agree on the principle of the responsibility to protect at the UN Summit in September 2005. World leaders have acknowledged that the primary responsibility to protect a population lies with the state itself, and that the international community has the right and the obligation to prevent, react and rebuild when states are unable or unwilling to take this responsibility.

The responsibility to protect gives precedence to human dignity. It puts the rights of the individual at the core and makes human security a priority. It launches a fundamentally new rule for international relations: that the security of every human being is a common responsibility.

As a politician, I also recognise the challenge of putting the responsibility to protect at the top of our political agenda. Not just at seminars like this or debates in the UN, but bilaterally, with countries either involved in conflict or with powers to influence developments on the ground.

***

Dear friends,

The scars from the Rwandan genocide are a constant reminder of the shortcomings of the international community. Darfur has rightly become the focus of many discussions on the responsibility to protect. But it cannot be our only focus. We need to look beyond Darfur, we need to identify and prevent the Darfurs of tomorrow. If we take our responsibility to protect seriously, let us not forget the scale of suffering in some of Sudan's neighbouring countries.

In Sudan this spring, I met women and children who should have been protected a long time ago. We must not let our failures to act in time in the past prevent us from acting now and in the future. On the contrary.
Protecting civilians is a question of solidarity and credibility. But most of all, it is a common responsibility to do our utmost.

Thank you.