Massacres, 'mindless violence and carnage' rage in Rwanda.

The Security Council continued to deal with what it called a situation of "mindless violence and carnage" in Rwanda, in the face of continued fighting, widespread massacres of civilians and a deteriorating humanitarian situation.

On 21 April, the Council adjusted the mandate of the UN Assistance Mission for Rwanda (UNAMIR) to act as an intermediary between the parties, assist in the resumption of humanitarian relief operations, and monitor and report on developments. It authorized a force level of approximately 270, down from the original 2,539.

On 17 May, the Council increased UNAMIR's strength to up to 5,500 troops, expanded its mandate to include responsibility for the security and protection of civilians and of humanitarian operations, and imposed an arms embargo on Rwanda. On 8 June, it extended UNAMIR's expanded mandate from 29 July until 9 December 1994.

Since securing and equipping the required troops would take some time, the Council on 22 June, acting under Chapter VII of the UN Charter, authorized Member States to set up a temporary multinational operation to contribute to the security and protection of displaced persons, refugees and civilians at risk.

The Council took that action by adopting resolution 929 (1994) by a vote of 10 to none, with 5 abstentions (Brazil, China, New Zealand, Nigeria and Pakistan). Stressing the strictly humanitarian character of the operation, the Council decided that such a mission, as proposed and led by France, would be limited to two months, unless the Secretary-General determined earlier that the expanded UNAMIR was able to carry out its mandate. This led to the establishment of Operation Turquoise and the Humanitarian Protection Zone in the southeastern part of Rwanda.

The Council asked the Secretary-General to report no later than 9 August on progress made towards UNAMIR's deployment and the resumption of the peace process under the August 1993 Arusha Peace Agreement. The Council also requested Member States, cooperating with the Secretary-General, to coordinate closely with UNAMIR; it further requested the Secretary-General to set up appropriate mechanisms to that end.

Following the vote, France said that its initiative had a solely humanitarian goal. France would not interpose its forces between the warring parties, nor seek to influence the outcome of the conflict, and further, it was not its intention to replace UNAMIR.

In a 19 June letter to the Council (S/1994/728), the Secretary-General had stated that with the Member States' failure to promptly provide the expanded UNAMIR with the necessary resources, the Council might wish to consider France's offer to undertake a French-commanded multinational force, operating under Chapter VII. In a 20 June letter (S/1994/734), France stated that its Government and Senegal were prepared to send a force into Rwanda without delay, "so as to maintain a presence pending the arrival of the expanded UNAMIR". Other Member States that might join the operation were being contacted. The force objectives would be the same as those of UNAMIR, but "excludes any interference in the development of the balance of military forces between the parties involved in the conflict".

Multinational force has precedent

The Secretary-General, in his 19 June letter, stated that the multinational operation had a precedent in the United States-led Unified Task Force in Somalia (UNITAF), deployed in December 1992. If the Council decided to authorize such an operation, Governments should commit themselves to maintaining their troops in Rwanda until UNAMIR could take over from the multinational force, which must create conditions for UNAMIR to carry out its mandate.

The force commanders of the operation and of UNAMIR would closely coordinate their activities. UNAMIR would continue to fulfil its mandated responsibilities in and around the capital city of Kigali and the airport, and provide support for delivery of humanitarian aid. If the security of its personnel was jeopardized, the Secretary-General said, he would immediately reassess the situation and make appropriate recommendations to the Council.

Considering the difficulties faced in securing resources for UNAMIR, the Secretary-General believed it might take three months before the Mission could fully undertake its expanded mandate. As the killing of innocent civilians had continued and the overall situation had deteriorated, additional troops could only be deployed when they were properly equipped.

None of the Governments possessing the necessary capacity had offered to provide fully trained and equipped military units, he noted, and most offers had been conditional in some way. Optimally deployment of the first phase of UNAMIR could take place in the first week of July.

Resolution 912: UNAMIR mandate adjusted

In adopting resolution 912 (1994) on 21 April, the Council, while adjusting UNAMIR's mandate, also demanded an immediate cessation of hostilities between the forces of the Government of Rwanda and the Rwandese Patriotic Front (RPF), and an end to the "mindless violence and carnage" engulfing Rwanda. It regretted the tragic incident in which the Presidents of Rwanda and Burundi lost their lives, and the ensuing violence which had claimed the lives of the Prime Minister, cabinet ministers, government officials and thousands of civilians.

The Council reaffirmed that the Arusha Peace Agreement remained the only viable framework for the resolution of the Rwanda conflict and served as the basis for peace, national unity and reconciliation.

On 20 April, the Secretary-General reported (S/1994/470) that due to recent events in Rwanda, particularly the widespread killings in Kigali, it had become impossible for UNAMIR to continue its current mandated tasks.

Despite direct contacts between t Government forces and the RP on 15 April under UNAMIR auspices, the Secretary-General had concluded that there was no immediate prospect of a cease-fire.

On 14 April, he proposed two broad alternatives for dealing with the situation, both predicated on establishing a cease-fire: to retain UNAMIR at a reduced strength for three to four weeks following a cease-fire; or following a cease-fire, withdraw the bulk of UNAMIR, leaving the Secretary-General's Special Representative and the Force Commander in Kigali to act as intermediaries for political negotiations for an indefinite period.

He also presented three other options, based on the "realities of the current situation": to have a small group headed by the Force Commander remain in Kigali to act as an intermediary and attempt to bring about a cease-fire; an immediate and massive reinforcement of UNAMIR and a mandate change, so that it would be equipped and authorized to coerce the opposing forces into a cease-fire and restore law and order; or complete withdrawal of UNAMIR.

With the departure of the Belgian contingent and non-essential personnel from other contingents, the reduced military strength of UNAMIR on 20 April stood at 1,515, down from 2,165; and its military observers at 190, down from 321.

On 30 April, the Council, after receiving reports of further deterioration in the situation in Rwanda, appealed to all States to refrain from providing arms or any military assistance to the parties to the conflict. The Council also asked the Secretary-General to consult with the Organization of African Unity (OAU) on actions to assist in the restoration of law and order and provide security for displaced persons.

The Secretary-General on 3 May reported that he had personally spoken to Egyptian President Hosni Mubarak, current Chairman of the OAU, and had sent messages to a number of African countries which had contributed troops to UN military operations, requesting them to contribute troops to a regional effort to restore law and order in Rwanda.

Further massacres expected

The Secretary-General informed the Council, in a letter of 29 April (S/1994/518), that Kigali was effectively divided into sectors controlled by the Rwanda Government Forces (RGF) and the RPE respectively with frequent exchanges of artillery and mortar fire. There was "strong evidence" of preparations for further civilian massacres, and there were several large concentrations of civilians who feared for their lives but enjoyed little effective protection. Massacres continued on a large scale in the countryside, especially in the south.

A new complication was that both sides had expressed lack of confidence in UNAMIR's impartiality and that was affecting their cooperation with the UN Special Representative and the Force Commander.

UNAMIR's mandate under resolution 912 did not give it the power to act effectively to halt the continuing massacres. The Secretary-General urged the Council to re-examine Council decisions under resolution 912 and reconsider what action to take to restore law and order and end the massacres.

On 6 May Council President Ibrahim A. Gambari of Nigeria said that in view of the unabated hostilities and killings, "urgent and effective means of action" should be considered. The Secretary-General should help provide for contingency planning for delivery of humanitarian assistance and support to displaced persons.

Resolution 918: Troop levels increase, arms embargo imposed

The Security Council, meeting in the early hours of 17 May, increased the strength of UNAMIR to up to 5,500 troops and expanded its mandate to include responsibility for the security and protection of civilians and humanitarian operations. It also imposed an arms embargo on Rwanda.

It adopted unanimously resolution 918 (1994) as a whole; however, section B of the three-part text was put to a vote separately and adopted by 14 to 1 (Rwanda). Section B called on States to prevent the sale or supply to Rwanda of arms and related materiel of all types, including weapons and ammunition, military vehicles and equipment, paramilitary police equipment, and spare parts.

The expanded mandate called for UNAMIR to protect displaced persons, refugees and civilians at risk, establish and maintain secure humanitarian areas, and support and secure humanitarian relief operations.

The Council demanded that all parties to the conflict immediately end the hostilities and agree to a cease-fire. It strongly urged them to cooperate fully with UNAMIR, particularly in ensuring the unimpeded delivery of humanitarian assistance, and called upon them to treat Kigali airport as a neutral zone under UNAMIR's control.

The Secretary-General, in coordination with the OAU and countries in the region, was to continue efforts to achieve a political settlement in Rwanda within the framework of the Arusha Peace Agreement.

The Secretary-General was asked to report as soon as possible on the investigation of serious violations of international humanitarian law committed in Rwanda during the conflict, and on the humanitarian situation. He was encouraged to accelerate efforts to obtain from Member States the necessary personnel to enable deployment of the expanded UNAMIR.

A desperate crisis

The Secretary-General had reported (S/1994/565) on 13 May that while the solution to the Rwanda crisis must be found through an early cease-fire and the implementation of the Arusha Peace Agreement, the desperate humanitarian situation, in the face of the ongoing killing and terrorizing of innocent civilians, urgently required an increased UN effort.

Security and assistance was needed for humanitarian relief convoys, operations and installations intended for persons in the interior of the country, numbering five times as many as those in the border areas. However, to address the problems only in the border areas would create a magnet for people in need in the interior and further increase the number of displaced persons.

The Secretary-General stated that UNAMIR II must be composed of "a credible, well-armed and highly mobile force" to successfully execute its mandate.

The resumption of the civil conflict following the 6 April tragic events and the ensuing violence and massacres called into question the ability of UNAMIR to carry out its original mandate under Council resolution 872 (1993) of 5 October 1993.

While the chances for a lasting peace were fundamentally in the hands of the political and military leaders of Rwanda, the international community could not ignore the "atrodous effects" of the conflict and "the slaughter and suffering of innocent civilians", the Secretary-General concluded.

Resolution 925: Mandate expanded again

The Security Council on 8 June extended until 9 December 1994 the expanded mandate of UNAMIR, which was to expire on 29 July It also endorsed the immediate deployment of two additional battalions, along with equipping and redeploying a previously committed battalion from Ghana.

By unanimously adopting resolution 925 (1994), the Council endorsed the Secretary-General's proposals to flexibly implement all three phases of the expanded mandate as approved by the Council in resolution 918. The first phase had called for bringing to full strength and deploying a mechanized infantry battalion, while the second and third phases each called for the deployment of two additional battalions.

The Council also approved the continuation of urgent preparations for deployment of the two battalions envisaged for phase 3. Member States were asked to respond promptly to the Secretary-General's request for resources, including logistical support capability.

The Council reaffirmed that UNAMIR would continue to act as intermediary between the parties in seeking a cease-fire. It would also contribute to the security of displaced persons, refugees and civilians at risk. It would also establish, where feasible, secure humanitarian areas and provide security and support for humanitarian relief operations. The Council recognized that UNAMIR might be required to take action in self-defence against persons or groups who threatened protected sites and populations.

The Council demanded that all parties cease hostilities, agree to a cease-fire, end the systematic killings in areas under their control and adhere to their assurances to cooperate with UNAMIR. It also demanded that the parties cease any incitement to violence or ethnic hatred, especially through the mass media, respect the persons and premises of the UN and other organizations serving in Rwanda, and refrain from any acts of intimidation or violence against peace-keeping or humanitarian personnel.

The Council further demanded that the parties undertake serious efforts to bring about political reconciliation and decided to keep the situation in Rwanda under constant review. The Secretary-General was to report to the Council on UNAMIR's progress as appropriate or no later than 9 August and 9 October. UNAMIR was to cooperate closely with the Special Rapporteur for Rwanda, appointed by the UN Commission on Human Rights.

The Secretary-General, in a further report of 31 May (S/1994/640), had stated his intention to establish a special trust fund to support rehabilitation programmes in Rwanda and appealed for governmental contributions.

The report was based on a special mission to Rwanda from 22 to 27 May, undertaken by Iqbal Riza, Assistant Secretary-General for Peace-keeping Operations, and Maj-Gen. J. Maurice Baril, the Secretary-General's Military Adviser.

Though assurances from both parties of cooperation with the mandate established by resolution 918 were secured, they would remain linked to the level of control that exercised over their troops and armed elements, he reported.

While agreeing to cooperate with UNAMIR, both sides had raised questions regarding the conduct of operations on the ground. The Secretary-General stated that there was no intention to have UNAMIR assume the role of a buffer force unless the two parties so requested and the Council approved.

Genocide continues

Describing the situation in Rwanda as constituting "genocide", the Secretary-General, in his 31 May report, said he considered it unacceptable that, almost two months since the violence exploded, killings still continued. While calling on both parties to immediately cease such activities, he referred to "strong evidence" that the overwhelming responsibility lay with the "interim Government" and the Rwandese Government forces. "It would be senseless to attempt to establish a cease-fire and to allow deliberate killings of civilians" to continue in the Rwandese Government forces zone, he stated. What was needed was secured, organized humanitarian relief operations and security for assemblies of civilians in peril.

"Only when the killings have been halted, when a cease-fire is effective, humanitarian relief being provided and some semblance of security for the population returns can there be hope for the underlying political issues to be addressed through negotiations", the Secretary-General stated. At the same time, "stability will return only when agreement on the resumption of a negotiated political process is reached".

Resolution 928: UNOMUR mandate extended

On 20 June, the Security Council extended the mandate of the UN Observer Mission Uganda-Rwanda (UNOMUR) for a final three-month period until 21 September, and agreed to a phased reduction of the 81 military observers monitoring the border between the two countries.

In unanimously adopting resolution 928 (1994), the Council also stressed the need for the observance and strict monitoring of the general and complete arms embargo against Rwanda.

UNOMUR was set up on 22 June 1993, under resolution 846 (1993), to deploy on the Ugandan side of the border observers who would verify that no military assistance reached Rwanda.

On 16 June, the Secretary-General had reported (S/1994/715) that, following the resumption of the civil war in Rwanda, the Mission had expanded its monitoring activities along the two countries' entire border. UNOMUR had continued to be a factor for stability in the area, and its role had been particularly critical in recent months, as UNAMIR had sought to defuse tensions resulting from the resumption of hostilities.

Other developments

Shahryar M. Khan of Pakistan was appointed as the Secretary-General's Special Representative for Rwanda as of 1 July, succeeding Jacques-Roger Booh-Booh. On 28 June, Mr. Boutros-Ghali demanded a halt to hostile radio broadcasts from the government-controlled zone against UNAMIR Force Commander, Major-General Romeo Dallaire.

Experts from a number of UN agencies have joined in the international effort to bring assistance to thousands of Rwandese refugees. The Office of the UN High Commissioner for Refugees (UNHCR) had been caring for 1.1 million refugees and returnees in the region and was making emergency plans for an additional influx of 200,000 Rwandese refugees.

The World Health Organization delivered emergency health supplies for 200,000 persons for six weeks. The World Food Programme delivered food to some 240,000 people.

The UN Department of Humanitarian Affairs has launched an emergency appeal for $16.5 million to meet the immediate needs of those affected by the violence.

Human Rights Rapporteur to investigate Rwanda

On 26 May, the Commission on Human Rights appointed Rent-Degni Segui of Cote d'Ivoire, Dean of the Law Faculty of the University of Abidjan, as Special Rapporteur to investigate the human rights situation in Rwanda. Mr. Degni Segui was to investigate the situation first-hand for an initial period of one year and compile information on the root causes and responsibilities of the recent atrocities. He was to provide recommendations for bringing violations and abuses to an end.

The Commission's decision was made following a special session convened in Geneva on 2 4 and 2 5 May, at the request of Canada, to consider the "unprecedented human tragedy" in Rwanda. A team of human rights field officers would assist the Special Rapporteur.

The Commission, believing that genocidal acts might have occurred in Rwanda, condemned "in the strongest terms" all breaches of international humanitarian law and all violations and abuses of human rights there. It affirmed that all persons who had committed or authorized violations of human rights or international humanitarian law were individually responsible and accountable for those violations, and that the international community would exert every effort to bring them to justice, while affirming that the primary responsibility for bringing perpetrators to justice rested with the national judicial systems.

UN Human Rights Commissioner Jose Ayala Lasso visited Rwanda from 9 to 13 May and reported that hundreds of thousands of civilians, including large numbers of women and children, had been killed, often after being tortured, and thousands had disappeared. Millions had been forced to leave their places of residence and seek refuge in other areas of Rwanda or abroad. Others were trapped between the lines of fighting or were forcibly detained; many were in hiding, fearing for their lives. Disease and famine threatened those who so far had escaped death.

"The killing of civilians in large numbers for ethnic or political motives is not new in Rwanda", the High Commissioner stated. However, the recent violence exceeded by far even the worst of previous outbursts of hatred and intolerance. The wanton killing of more than 200,000 innocent civilians called for the strongest condemnation by the international community.

Burundi: Dialogue encouraged

Secretary-General Boutros Boutros-Ghali on 7 June encouraged the ongoing dialogue among the various Burundese political parties in order to reinforce the process of national reconciliation. He also expressed appreciation to the civilian and military authorities of Burundi for assisting the UN effort in coping with the tragic crisis in Rwanda.

On 29 July, the Security Council, concerned over the impasse in negotiations on the presidential succession, issued a statement in which it again supported the ongoing political dialogue in Burundi aimed at reaching an early agreement on the Presidential succession and condemned those extremist elements who had continued to reject the negotiations and sought to block progress towards a peaceful settlement.

On 11 April, the Secretary-General had welcomed the report of his Special Representative, Ahmedou Ould Abdallah, that the situation in Burundi had remained calm and peaceful since the tragic death of its President, Cyprien Ntaryamira, on 6 April. The people of Burundi had responded to the tragedy with "exemplary forbearance and restraint". They needed and deserved the international community's support in their praiseworthy efforts to maintain peace and to put in place an interim arrangement which would enjoy their full confidence.

The World Food Programme (WFP) on 2 June launched an airlift operation between Dar es Salaam and Bujumbura to ensure a continuous supply of relief food to the ever-growing refugee and displaced populations in Burundi, Rwanda and eastern Zaire. The WFP planned to fly in 1, 500 metric tons of food commodities for some 1 million people in the region.