INTSEMI Group 5: Report

1. Questioning comprehensive sanctions:
the birth of a norm
DARREN HAWKINS and JOSHUA LLOYD

2. Introduction
Humanitarian or ‘smart’ sanctions are increasingly entering the Theorizing
International Relations lexicon for the past years. In fact, it has been Norm
incorporated into the declarations of important intergovernmental
organizations, including the United Nations Security Council.
Emergence
The
Humanitarian
Argument: comprehensive economic sanctions, and the subsequent
emergence of a norm favoring humanitarian sanctions are connected. Sanctions
Network and
Recent and proposed (as of April 2002) changes to comprehensive Emerging
sanctions in Iraq and Cuba buttress the argument presented in the
paper and suggest that the norm is beginning to influence behavior Norm
even in difficult cases. Iraq
Cuba
Conclusion

3. Introduction
Potential criticisms of the argument Theorizing
Norm
Despite progress, powerful states have still not abandoned Emergence
comprehensive sanctions in all cases and have, so far, failed to
approve new general rules governing the use of sanctions. The
Humanitarian
Other forces may be at work that has convinced states that it is in
their best economic interest to discontinue such embargoes. Some
Sanctions
would argue that domestic and international business interests are Network and
really driving the change of state perspective and policy in this area Emerging
Norm
Iraq
Cuba
Conclusion

4. Introduction
There is some evidence that the sanctions are beginning to change Theorizing
in ways consistent with humanitarian principles, thus suggesting Norm
that the norm not only exists but that it is beginning to constrain
state behavior.
Emergence
The
At the same time, the Security Council has failed to produce new Humanitarian
general rules governing the use of sanctions despite two years of
effort and reports of impending success.
Sanctions
Network and
Emerging
Norm
Iraq
Cuba
Conclusion

5. Introduction
1. 2 elements of Norm Emergence: Norm Entrepreneur and Theorizing
Organizational Platform Norm
2. Norm Entrepreneur relies on information and framing to call Emergence
attention to the need for a new norm. The
Humanitarian
Entrepreneur - consist of documented information about the
nature of the problem Sanctions
Network and
Framing - strategic use of language and symbols to gain
attention of others.
Emerging
Norm
3. Organizational Platforms are used as avenues that can promote Iraq
ideas and information of Entrepreneurs.
Cuba
Conclusion

6. Introduction
1. 2 important Factors: Accessibility and the Preexisting normative Theorizing
environment Norm
Emergence
4. Accessible - standard operation procedures allow entrepreneurs to The
distribute information and participate in key decision - making Humanitarian
processes.
Sanctions
-> different from a democratic organization Network and
Emerging
Examples: UN - it is accessible but not democratic, US congress Norm
Iraq
Cuba
Conclusion

7. Introduction
3. Preexisting Norms - entrepreneurs show new ideas that are logically Theorizing
consistent with prevailing norms. Which ideas are added to the Norm
existing set of shared understanding.
Emergence
The
Examples: Anti- Slavery activists - successful for protestant revival Humanitarian
norms of individual worth and personal responsibility for salvation in
Christian churches in Britain and the northeastern US. But was not in Sanctions
local governments in Southern states Network and
Emerging
Norm
Iraq
Cuba
Conclusion

8. Introduction
Network  INGOs and IGOs (Catholic Church to the United Nations
Theorizing
Children’s Fund) Norm
Emergence
•Generally opposed to all comprehensive sanctions, both in the
abstract and in specific instances. The
Humanitarian
Two additional networks:
Sanctions
6.US sanctions on Cuba
7.UN sanctions on Iraq Network and
Emerging
* Focuses almost all of its time and energy on its own particular case,
Norm
paying less attention to broader issues or other cases
Iraq
Cuba
Conclusion

9. Introduction
Comprehensive Sanctions Theorizing
Norm
1. August 1990: Security Council imposed mandatory, comprehensive Emergence
sanctions against Iraq for its invasion of Kuwait
The
•February 1991: WHO and Unicef: public health crisis caused by the Humanitarian
destruction of electrical generators and pumping stations from the
bombing campaign initiated in the invasion Sanctions
Network and
•UN Under-Secretary General Marti Ahtisaari: humanitarian disaster Emerging
and recommended lifting food sanctions and distributing
humanitarian aid Norm
Iraq
•April 3, 1991: Security Council lifted food sanctions and authorized
Cuba
the distribution of humanitarian aid
Conclusion

10. Introduction
2. May 1992: comprehensive sanction on Yugoslavia in connection with Theorizing
the war in Bosnia Norm
Emergence
•Included WHO, Unicef, the World Food Program, CARE, the Open
Society Foundation, the International Committee of the Red Cross The
(ICRC), and emergency aid agencies from Germany, France, the United Humanitarian
States and others
Sanctions
•June 1993: sanctions deepened the suffering they were supposed to Network and
relieve Emerging
• Late 1993: ‘Trying to implement a humanitarian program in a Norm
sanctions environment represents a fundamental contradiction’ Iraq
sanctions had produced much ‘unintended’ human suffering, and
Cuba
that future sanctions should try to minimize such suffering
Conclusion

11. Introduction
Humanitarian Impact of Sanctions Theorizing
•‘Sanctions should not make the ‘disadvantaged even more Norm
disadvantaged’- UN High Commissioner for refugees
Emergence
•Blunt instrument – General Boutros-Ghali The
Humanitarian
•‘sanctions were ineffective yet caused immense human suffering’
Sanctions
Network and
Emerging
Norm
Iraq
Cuba
Conclusion

12. Introduction
Response to Sanctions Theorizing
Norm
•Peace Action: ‘Abolition of Comprehensive Sanctions ‘ in July 1998 Emergence
•Catholic Church and Pope John Paul II: condemned comprehensive The
actions Humanitarian
•(1995) permanent members of the Security Council: future sanctions Sanctions
should ‘minimize unintended adverse side effects of sanctions on the Network and
most vulnerable segments of targeted countries’ Emerging
•post-1994: every case has been limited to sanctions that do not Norm
impose widespread humanitarian problems  ‘smart sanctions’ Iraq
Cuba
Conclusion

13. Introduction
Emergence of new norm Theorizing
Norm
•April 2000: Working Group on General Issues on Sanctions
States have found it easier to oppose comprehensive sanctions than Emergence
to design a new alternative The
•Powerful states are not willing to completely abandon the policy tool Humanitarian
of comprehensive sanctions Sanctions
Network and
Purpose: make sure that sanctions do not harm civilian populations
Emerging
Norm
Iraq
Cuba
Conclusion

14. Introduction
Why did humanitarian groups gain relatively rapid acceptance for this Theorizing
norm? Norm
 individual states to the United Nations made the key difference
Emergence
The
Humanitarian
End of Cold War Sanctions
•UN: primary supporter of sanctions Network and
•Security Council: tied to other parts of the UN system (through
Emerging
information sharing and common charter
•Humanitarian IGOs (Unicef and WHO) Norm
•UN Charter: based on relief of human suffering across the globe Iraq
Cuba
Conclusion

15. Introduction
UN sanctions against Iraq Theorizing
Norm
Background:
Emergence
•Sanction: sanctions imposed in 1990 The
Humanitarian
•Largest network of activists against the sanction
Sanctions
•More than 150 different English-speaking groups (then) Network and
•Purpose: to alleviate or remove the sanctions against Iraq.
Emerging
Norm
Iraq
Cuba
Conclusion

16. Introduction
Entities: Theorizing
•Denis Halliday
Norm
Emergence
The
Humanitarian
Sanctions
Network and
Emerging
Norm
Iraq
Cuba
Conclusion

17. Introduction
Entities: Theorizing
•Denis Halliday
Norm
“incompatible with the spirit of the UN Charter,
the Convention on the Rights of the Child, [and]
Emergence
the Convention on Human Rights...The United The
Nations is running a programme that is in fact Humanitarian
killing and maiming children...I mean that this is
just a disaster; A disaster for the Iraqis and a Sanctions
disaster for the UN.” Network and
Emerging
-> became a symbol for activists
Norm
-> see him as someone who has seen the Iraq
problem firsthand from the inside, and stood up
against what he thought was wrong Cuba
Conclusion

18. Introduction
Entities: Theorizing
•Han Von Sponeck
Norm
-> subsequent UN Humanitarian Mission
Coordinator Emergence
The
-> also resigned from his post
Humanitarian
Sanctions
Network and
“The sanctions are something that has failed...we must not do Emerging
this again.” Norm
Iraq
Cuba
Conclusion

19. Introduction
Entities: Theorizing
•Felicity Arbuthnot
Norm
-> United Kingdom
Emergence
-> employee of Amnesty International The
Humanitarian
-> become a vocal opponent of the sanction by
helping people to organize and mobilize Sanctions
support for the groups Network and
Emerging
Norm
Iraq
Cuba
Conclusion

20. Introduction
Entities: Theorizing
•Ramsey Clark
Norm
-> former US Attorney General
Emergence
-> International Action Center The
Humanitarian
->Most prominent issue: elimination of
comprehensive sanctions Sanctions
Network and
-> source of information and a framework
organization to mobilize activism
Emerging
Norm
Iraq
Cuba
Conclusion

21. Introduction
Organization/Institution: Theorizing
Norm
Iraq Action Coalition
•one of the best sources of information and analysis on nearly every Emergence
aspect of the sanctions The
•provides links to 45 different groups that are working towards the Humanitarian
same purpose Sanctions
Network and
Emerging
Norm
Iraq
Cuba
Conclusion

22. Introduction
Activities of Organization in order to Publicize their Concern Theorizing
•organize trips to targeted countries and undertake campaigns to Norm
educate the publics of different nations on the actions of the Security
Council
Emergence
The
•hold conferences for elites and activists so that they can better
Humanitarian
coordinate their efforts
Sanctions
•use opportunities given them to influence the UN Network and
Emerging
Norm
Iraq
Cuba
Conclusion

23. Introduction
Changes that were imposed in order to minimize damage done: Theorizing
•Security Council: In August 1991, Oil-for-Food deal (Resolution 706)
Norm
•In May 1991, UN Inter-Agency Humanitarian Program Emergence
The
•In early 1999, US agreed with France to allow Iraq to sell unlimited
amounts of oil in order Humanitarian
Sanctions
•In March 1999, Great Britain proposed an initiative to further boost Network and
the Oil-for-Food program.
Emerging
>
•In November 2001, Security Council adopted a US and British Norm
proposal to lift the broad ban on the export of goods to Iraq and to
replace it with a more narrowly drawn list of goods.
Iraq
Cuba
Conclusion

24. Introduction
Why the Change of Mind? Theorizing
-> France, Russia and China
Norm
* invoked humanitarian suffering in their opposition to
comprehensive sanctions on Iraq Emergence
The
* BUT, also have economic and political motives to end those
sanctions Humanitarian
Sanctions
*same with Great Britain and US Network and
*US view/option:
->smart sanctions offered an appealing Emerging
compromise between Russian desires for an end to sanctions Norm
->impulses for strong, unyielding sanctions Iraq
Cuba
Conclusion

25. Introduction
In November 2001, Russia finally agreed to implement the new rules in Theorizing
mid-2002 Norm
Humanitarian network undoubtedly prepared the ground by making
Emergence
smart sanctions politically desirable and publicly legitimate, but states The
needed additional reasons to finally adopt them in the difficult case of
Humanitarian
Iraq.
Sanctions
Network and
Emerging
Norm
Iraq
Cuba
Conclusion

26. Introduction
I. Anti-Sanctions Network Theorizing
A. Principal Motivation Norm
a. The extremism and combative attitudes of the ultra-
conservative Cuban movements that have repeatedly Emergence
punished Cuba for nearly 40 years with the US embargo The
Humanitarian
c. Concerns about its effects on the Cuban population at large
Sanctions
B. Groups That Effort To Lift The Sanctions On Cuba Network and
a. Cuban Committee for Human Rights, the Partido Pro
Derechos Humanos, the Comisión de Derechos Humanos y
Emerging
Reconciliación Nacional, and the Moviemiento Cristiano Norm
Liberación.
Iraq
i. Suffering in Cuba Cuba
ii. Gives the dictator a reason to continue his strict defiance Conclusion

27. Introduction
b. Cuban Committee for Democracy (CCD) Theorizing
i. Made up of academicians, professionals and
businessmen
Norm
Emergence
ii. ‘..goal of promoting a democratic Cuba would be better The
served by constructive engagement rather than by
fruitless isolation that contributes to the misery of the Humanitarian
Cuban people’ (Cuban Committee for Democracy 1999) Sanctions
Network and
c. Cambio Cubano
i. membership is made up mostly of Cuban immigrants in Emerging
Miami, Mexico and Latin America Norm
ii. founded in 1992 by a Cuban exile on the principle that not Iraq
all Cuban Americans endorse the embargo (Cambio Cuba
Cubano 1999)
Conclusion
iii.Cuban Humanitarian Trade Act and the Cuban Women and
Children Humanitarian Relief Act

28. Introduction
C. NGOs That Network to Promote Change in US-Cuba Policy Theorizing
a. The Center for International Policy (CIP)
Norm
i. Cuba Project- work for a peaceful change in the Cuban Emergence
regime through engagement with the U.S. The
ii. Sponsored conferences- mobilizes moderate Cuban
Americans to work for removal of the sanctions Humanitarian
iii. Counter the Helms-Burton legislation Sanctions
Network and
v. Has formed alliances with important business interests
Emerging
vii. Instrumental in the formation of the Association for Norm
Humanitarian Trade with Cuba (AHTC), which is a
conglomeration of agricultural and pharmaceutical Iraq
companies that have an interest in trading with Cuba Cuba
(ibid)
Conclusion

29. Introduction
II. Changes in The Sanctions Theorizing
Norm
A. Bill Clinton
a. March 1998 and January 1999- more direct cash remittances Emergence
to flow to individuals in Cuba and sell some medicine and food The
c. October 2000- the US Congress passed a complicated bill- Humanitarian
allowed the delivery of food and medicine to Cuba Sanctions
Network and
e. Cuba purchased small amounts of food and lumber to aid
recovery from Hurricane Michelle Emerging
-> Represents the first direct US sale to Cuba of food since Norm
1962
Iraq
Cuba
Conclusion

30. Introduction
II. Changes in The Sanctions Theorizing
Norm
B. House of Representatives
a. Summer 2001 Emergence
Provisions that prevent the executive branch from enforcing The
the travel ban to Cuba
Humanitarian
C. ‘the plight of the Cuban people’ (Clinton) Sanctions
a.Lift the food and medicine embargo on Cuba Network and
c.Highlighting the negative humanitarian consequences of the Emerging
sanctions Norm
e.State Department-‘increase support for the Cuban people by Iraq
facilitating the transfer of food and humanitarian assistance’ Cuba
(Rubin 1998)
Conclusion

31. Introduction
III. Business and Agricultural Sectors Theorizing
Norm
USA*Engage- 674 businesses, agriculture groups and trade
associations
Emergence
The
 A very strong interest in opening the gates to Cuba
Humanitarian
Sanctions
IV. Changes in US policy and Discourse Network and
The traditional structural and attitudinal constraints in the United
Emerging
States against Cuba indicate that a new norm has emerged. Norm
Iraq
Cuba
Conclusion

32. Introduction
• United Nations played a big role in the success of the transnational Theorizing
network while humanitarian organization and norms are major Norm
components in the system.
Emergence
• Norms shared by individuals is significant for the activist to The
determine the issues in comprehensive sanctions.
Humanitarian
• Although Humanitarian sanctions have the capability to influence, Sanctions
they can’t entirely convince some powerful actors in changing their Network and
opinion and arguments in other sanctions.
Emerging
• Furthermore, sanctions are said to be effective to bring change in a Norm
non violent way. Iraq
Cuba
Conclusion