SPEECHES
MR. AXWORTHY - ADDRESS TO THE PERMANENT COUNCIL OFTHE ORGANIZATION OF AMERICAN STATES - WASHINGTON, D.C.
2000/6 CHECK AGAINST DELIVERY
NOTES FOR AN ADDRESS BY
THE HONOURABLE LLOYD AXWORTHY
MINISTER OF FOREIGN AFFAIRS
TO THE PERMANENT COUNCIL OF
THE ORGANIZATION OF AMERICAN STATES
WASHINGTON, D.C.
February 11, 2000
(1:15 p.m. EST)
It is an honour to address you today at this session of the OAS [Organization of American States] Permanent
Council.
During a recent visit to the Caribbean and South America, I had the privilege of meeting Gabriel García
Marquez. He remarked to me that when he is travelling in rural Colombia, villagers accost him and tell him that
the magical, fantastic and unpredictable events in his fictional town of Macondo are humdrum compared with
the reality they encounter daily.
It strikes me that this observation holds true for the reality of our experience throughout the Americas. From
Ungava in Canada's Far North to Ushuaia at the southern tip of Argentina, the creativity, diversity and
complexity of our hemisphere is undeniable and marvellous.
There is also much that binds us together -- for example, the immigrant experience. This was brought home to
me last month when I was warmly welcomed by the Welsh community in Argentina, where ancestors of mine
lived before emigrating to Canada.
From these differences and commonalities, we in the Americas have built vibrant societies. Whether as
Indigenous people or as relative newcomers from Europe, Asia and Africa, we have shared the hemisphere --
not always easily, but certainly in a way that distinguishes the Americas from the rest of the world, that gives us
unique perspectives and that makes us well placed to lead in addressing the challenges of the new century.
Throughout the hemisphere there is an increased desire to take advantage of these common ties for mutual
benefit. When I speak with my counterparts, the conversation invariably turns to the notion that we need to
reinforce the ties uniting us, to be more connected with each other, and to break down the old barriers of
national borders, language and culture.
And there is little choice but to do so. Many of the threats we confront -- such as the scourge of illicit drugs, the
abuse of small arms and light weapons -- are interconnected and already transcend frontiers. Many of the
problems we have -- such as the need to ensure the participation of all sectors in society's progress -- are
familiar to everyone. Many of the challenges we face -- such as strengthening governance and human rights --
are ones we all share.
All of these issues have a direct impact on people, in one way or another affecting their well-being or safety. At
the same time, human security is central to the stability of our societies and fundamental to the prosperity of our
hemisphere. Consequently, the focus of our common, hemispheric efforts needs to be on protecting people
from threats. In other words, our focus should be on putting people first.
This means our collective institutions -- with the OAS heading the list -- should adapt to the demands of the
human security agenda. And the Organization is already on the right track: it is proving increasingly responsive
and flexible, particularly under the guidance of Secretary-General Gaviria.
We need to continue building an OAS for the new century, not the last one. With that goal, Canadians look
forward to hosting the General Assembly this June in Windsor, Ontario. We are confident that Windsor will
serve as another step in the process of renewal. As part of that effort, I will invite foreign ministers to participate
in a general dialogue on human security, to take place on the first morning of the General Assembly.
In advance of this discussion and the General Assembly, I would like to outline today the challenges I see in the
three areas of enhancing security, promoting inclusion and strengthening governance. I will also reflect on the
Organization's role in responding to the challenges.
Enhancing Security
Without a doubt, maintaining peace between states remains a key security concern in our hemisphere as
elsewhere. In the Americas, the OAS must retain its traditional role in helping to resolve interstate conflict. Last
year, the Organization helped consolidate a peace agreement between Ecuador and Peru. Through demining
efforts, it remains active in implementing the agreement. Ambassador Luigi Einaudi, the Secretary-General's
special representative, helped lower tensions between Nicaragua and Honduras and continues to work with the
parties toward a permanent solution.
However, it is equally evident that threats to our security are evolving. They are often inter-related and have a
direct impact on individuals. As a result, they demand innovative, people-oriented solutions.
The drug trade, for example, is stimulated by growing consumption and supply throughout the hemisphere. It
feeds corruption and distorts value systems, benefits the money launderers, supports an illegal trade in small
arms, and even sustains guerrilla and paramilitary forces. Over time the dynamics of the drug problem may
have changed but our citizens continue to pay the human, economic and social costs.
Through the development of the Multilateral Evaluation Mechanism (MEM), CICAD [the Inter-American Drug
Abuse Control Commission] has proven that our institutions can respond. The Ministerial drug dialogue
process, initiated by Canada last year, was an effort to complement CICAD by bringing a human security focus
to this major hemispheric threat.
As a follow-up to both the drug dialogue and my January meeting with a number of CARICOM [Caribbean
Community] foreign ministers, I am examining means to strengthen the Internet-based system originally
developed by CICAD with the aim of reinforcing Caribbean efforts to combat the trafficking in, and abuse of,
illicit drugs. Such a system would provide the information needed for prevention, treatment and rehabilitation. It
would also facilitate the exchange of information on experiences and best practices.
The drug problem is most keenly felt by the least fortunate: the street children, the dispossessed who must live
with its impact every day. Their voices need to be heard and their experiences shared. Using high and low tech,
we need to find creative ways to bring the drug dialogue from the chanceries to the streets and to help the
victims of drugs in the process.
Our youth suffer disproportionately from conflict and violence. Some lose their families and end up on the
streets. Others are physically and psychologically abused. Still others lose all landmarks of normalcy: their
schools, their homes, their parks and playgrounds. Whether they are street children, victims of sexual
exploitation or child soldiers, the security of so many of our children and youth is at risk.
The condition of war-affected children is particularly acute. That is why Canada worked hard on the recently
concluded Protocol on recruitment and deployment of child soldiers (and allow me here to welcome Colombia's
decision to retire all of its military personnel under the age of 18). That is also why Canada will host an
international conference later this year to address the problem and find solutions. Children in this hemisphere
continue to suffer as a result of past and current conflict. Some of our countries also have considerable
experience coping with the challenges -- experience that might be used to help children elsewhere.
Canada will therefore propose that a strong resolution be adopted at Windsor calling for the participation of all
countries of the Americas in working on specific measures to protect war-affected children in the hemisphere.
The Americas have led the world in addressing new human security threats. We are dealing with illegal
trafficking in firearms: the Inter-American Convention on the subject was a global first. Countries of the
hemisphere were among the first and most resolute supporters of the Ottawa Process and the Ottawa
Convention banning anti-personnel mines, and we continue to show the way in demining and rehabilitation
efforts.
A hemispheric security review was mandated by our leaders at the Santiago Summit, and it is now under
consideration by the OAS Hemispheric Security Committee. This is further evidence of willingness to adapt our
security structures to the new realities. The review must proceed flexibly, bring civilian and military authorities to
the same table, and focus attention on human security threats as well as traditional security concerns.
Promoting Inclusion
All of our citizens must be able to live in societies that reflect their interests, satisfy their legitimate aspirations
and guarantee real participation in the political, economic and social life of our countries. This is a cornerstone
of human security. Yet this basis patently does not exist in some of our societies and it certainly could be
strengthened in all of them.
Globalization offers many advantages but it can exacerbate the problems: its benefits may bypass large
segments of our populations and its frantic pace may leave already marginal groups even further behind. The
impact is clearly being felt in our own hemisphere in such forms as increasingly uneven distribution of income,
skewed access to the tools of progress, and disenchantment with the market system. I believe we need to find
an opportunity to discuss the impact of the darker side of globalization on our societies.
In the meantime, the OAS -- indeed, the entire family of inter-American institutions -- must endeavour to reflect
the needs of all sectors of our societies.
From Patagonia to Nunavut, Indigenous peoples are often the most marginalized and at-risk groups.
Negotiations are moving forward on the proposed Declaration on the Rights of Indigenous Populations,
including the full and effective involvement of Indigenous peoples.
Strengthening the impact of the adoption of the Declaration would be institutional renewal of the Inter-American
Indian Institute [III]. At the Secretary-General's request and in partnership with Mexico, the Government of
Canada and the Canadian Assembly of First Nations (under the leadership of National Chief Phil Fontaine) are
prepared to consult with both states and Indigenous peoples about revitalizing the Institute. Our hope is to see
a proposal at Windsor for a renewed Institute that could help respond to the real needs of Indigenous peoples.
Promoting gender equality and women's human rights is also essential. Canada strongly supports the efforts by
the Inter-American Commission of Women to place a gender perspective in the mainstream of OAS activities,
and we endorse the hiring of women for OAS executive positions. This April, Washington will be the site for the
first-ever meeting of hemispheric ministers responsible for the status of women. The meeting will endorse the
Inter-American Program on Women's Human Rights and Gender Equality. This is an important step forward.
We will have an opportunity to review progress at Windsor.
We ignore civil society at our peril; Seattle showed us why. The adoption by the OAS of guidelines for civil
society participation makes clear that this Organization has anticipated the need to engage new partners.
Including civil society partners is essential to making our hemispheric institutions more relevant to the needs of
our citizens. Non-governmental actors -- with their viewpoints, their special expertise, their resources -- can
play an important role in realizing common goals and ensuring the future vitality of our Organization.
Canada already consults widely in the development of our own hemispheric policy. We are bringing this spirit of
partnership to Windsor. In collaboration with the OAS Unit for the Promotion of Democracy, Canada's
International Centre for Human Rights and Democratic Development will hold a three-day conference to
coincide with the General Assembly, on the topic of "Hemispheric Integration and Democracy in the Americas."
I will address the conference and I hope other foreign ministers and delegates will join me.
The process of inclusion applies between states as well as within them. In that regard, the interests of small
states cannot be ignored by larger ones. The work of the OAS Trade Unit -- initiated by Canada and others --
has proven useful in aiding smaller states in trade negotiations, particularly in the context of the FTAA [Free
Trade Area of the Americas].
This type of assistance by the OAS should be reinforced. Last year's drug dialogue session focussed attention
on the disproportionate impact of the illicit drug trade on the small island states of the Caribbean, and smaller
countries in Central and South America. The Internet connectivity project I referred to earlier is an example of
concrete assistance that can develop as a result. Efforts to promote the inclusion of all the hemisphere's small
states must go further. They deserve a greater voice in the Organization itself.
Strengthening Governance
If inclusion is a cornerstone of human security, the bricks and mortar are promoting democratic values,
tolerance, respect for human rights, and stable political institutions. In this regard, we have had much to
celebrate in the past decade.
Yet recent events in Ecuador give us pause to reflect. The hemisphere responded rapidly and resolutely. The
OAS sent a strong message that constitutional governance was of the utmost importance, and it played a
leading role in ensuring the continuation of civilian rule.
Nevertheless, Ecuador's situation underlines the fragility of governance there and elsewhere in the hemisphere.
Where support is needed, the OAS should help. That was one of the purposes behind the establishment of the
OAS Unit for the Promotion of Democracy. Indeed, effective hemispheric institutions and initiatives can go a
long way toward building stable, coherent, national institutions -- and vice versa.
This symbiotic relationship applies to the promotion of human rights. However, the current inter-American
human rights system is in difficulty. We all recognize this. Through discussion here and through the Ad Hoc
Working Group (meeting in Costa Rica this week), attempts are underway to reform it. Canada would like to
see a greater financial commitment by the OAS to the Commission. The Commission itself must also adopt
more expeditious procedures.
The best institutions for the protection of human rights still are effective national human rights institutions, such
as human rights commissions and ombudsman offices. The Canadian Human Rights Commission already
supports several ombudsman offices. But there is room for more. The OAS can play a valuable role in
co-ordinating linkages between these institutions throughout the Americas -- for example, through the
establishment of a Co-ordinating Office of National Human Rights Institutions. This is an idea I would like to
pursue further in Windsor.
Our parliamentarians are on the front line of governance. Links between them at the hemispheric level can
consolidate democratic practice at home and expand co-operation in a variety of areas. Those are the
purposes behind Canada's support for a Parliamentary Network of the Americas. I am encouraged that, as a
first step, chairs of our respective parliaments' foreign affairs committees will meet next month.
We can also make common cause to improve the administration of justice. Our citizens deserve a judicial
process that protects, rather than subverts, their rights. Impunity often stems from the inability of national justice
systems to function effectively. The reasons are well recognized: lack of resources, corruption, weak institutions
and poorly trained officials. Multilateral solutions can help address the problems.
Brazil and Canada recently organized a hemispheric conference on police training, as part of a mandate from
the Santiago Summit. This was a modest but worthwhile step. We now hope to build on it, extending the model
to court officers and prison officials. Next month's meeting of the hemisphere's justice ministers is a means of
moving this and other justice initiatives forward.
The recent establishment of the OAS Justice Studies Centre of the Americas further extends the hemisphere's
role. With an effective mandate, the new Centre could serve as a useful tool to ensure that we all have
coherent, functioning and fair justice systems. For example, it might examine how best to promote efforts to
combat corruption and promote probity in the hemisphere.
However, good governance is not only about good governments. With globalization, more attention is being
directed to the impact -- positive and negative -- of corporate behaviour. Corporations can play a constructive
role in the promotion and protection of human rights, democratic development, conflict prevention,
environmental protection and disaster response. On the other hand, some corporations can engage in activities
that can compromise the security of the communities where they work.
It is therefore important to engage the corporate sector itself in order to raise the standards of behaviour in the
hemisphere. To that end, I would like to find a place for global corporate citizenship on the Windsor agenda.
Perhaps the most promising initiative would be the development and implementation of principles of ethical
conduct, including the protection of human rights. Our challenge in the lead-up to Windsor will be to establish a
plan of action so that the proper players -- states, corporations and civil society organizations -- can be brought
together.
Good governance also applies to hemispheric institutions themselves. This means making them coherent,
taking advantage of new technologies and providing them with the resources to work effectively.
The Summit of the Americas process provides the momentum to revitalize the entire family of inter-American
institutions and to ensure that they work together efficiently. I propose to invite the heads of the IADB [Inter-American Development Bank], PAHO [Pan American Health Organization], the World Bank and ECLAC [the
UN Economic Commission for Latin America and the Caribbean] to join our private dialogue with Secretary-General Gaviria and foreign ministers in Windsor prior to the General Assembly. The aim will be to explore
broad themes in this area for the 2001 Québec City Summit.
Information technology has the potential to promote linkages between key partners in solving common
problems. At this moment, such technology is allowing me to be seen and heard throughout the hemisphere,
and indeed around the world, by means of a Webcast via the OAS Web site. We must take better advantage of
it.
The new Inter-American Agency for Co-operation and Development will promote co-operation on technical
assistance and has the potential to establish linkages between development institutions in our hemisphere.
This is a positive step in OAS renewal. Canada would like to play a role on the Management Board, where our
experience on development issues would be useful to the Agency during its first years.
Finally, as neighbours seeking co-operative solutions to common problems, we need to muster the collective
will not simply to strengthen but also to maintain our institutions. The OAS and its specialized bodies continue
to be constrained by a deep financial crisis. Core programs are being left unfunded and new missions
stemming from Summit mandates teeter precipitously on unstable foundations.
It is imperative that all member states in arrears establish payment plans and comply with them. We cannot
demand ever more of the Organization while starving it of the resources it needs to function. I commend
Secretary-General Gaviria for his efforts to cut costs and rationalize operations. We must now ensure that he
has the support, tools and collective goodwill to fashion an institution for the 21st century.
Conclusion
In his story "The Library of Babel," Jorge Luis Borges imagined a library in which every book ever written and
still to be written could be found, all in no apparent order. Book after book was pulled down at random from the
shelves by ever more frantic library users, producing only meaningless gibberish. But just as the library
contained every book, there also existed a catalogue, a single volume that brought meaning to the cacophony.
As the OAS enters the new century, our challenge is to work together and find that catalogue for our efforts --
to discard the meaningless and useless, to identify our common values and bring together our shared
experience for the benefit of all our peoples.
Unlike Borges' unfortunate librarians, we need not depend on chance to discover the key. Our hemispheric
catalogue begins and ends with the safety and well-being of our people. I have outlined three ways that can
help advance this goal: enhancing security, promoting inclusion and strengthening governance. I look forward
to working with you to that end now, at Windsor and beyond.
Thank you.
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