Humanitarianism with a Sovereign Face: UNHCR in the Global Undertow

Abstract

This article examines the global forces that are responsible for the transformation of the meaning and practice of UNHCR's humanitarianism, and asks whether a transformation that enables the organization to become more deeply involved in the internal affairs of states is welcome or worrisome. I open by reviewing the changing relationship between multilateralism, sovereignty, and humanitarianism, and link that conceptual discussion to the international refugee regime. I then argue that the combination of state pressures and the normative principle of popular sovereignty enabled a more political and pragmatic UNHCR to widen its activities under the humanitarian banner and to become more deeply involved in the circumstances in the refugee-producing country. This expanding humanitarian umbrella, I suggest, might be a stealth agent for a policy of containment and a threat to refugee rights. This possibility is suggested by recent debates over the category of internally displaced peoples; the decided preference for repatriation; and UNHCR's involvement in reintegration activities. These developments generate the worrisome possibility that a more pragmatic UNHCR is potentially (though unwittingly) implicated in a system of containment. I conclude by reflecting on UNHCR's role in global politics and the dangers of a sovereignty-led humanitarianism.