for neighboring states,” while France, Australia, India, and Zimbabwe argued that both the ongoing violence and its impact on civilians threatened peace and stability in the entire region.24 Despite this expressed concern about regional impact, however, Resolution 746 defined the continuation of the internal humanitarian crisis in Somalia as a threat to international peace and security, rather than its cross-border effects. “Deeply disturbed by the magnitude of the human suffering caused by the conflict and concerned that the continuation of the situation in Somalia constitutes a threat to international peace and security,” the resolution proclaimed.25 This same humanitarian language was repeated in Resolution 751, which established UNOSOM on 24 April 1992. The Security Council made no formal references to interstate dimensions of the conflict, transborder refugee flows, or the risk of regional spillover in either Resolution 746 or 751. Instead, nontraditional conceptions of security—that international security is affected by the violation of human rights—shaped initial UNSC reaction to the conflict. Only later did Resolutions 767 and 775, of July and August 1992 respectively, acknowledge that the provision of humanitarian assistance in Somalia was important to council efforts to restore international peace and security in the region.
Security Council engagement in Somalia was also motivated by the unconventional nature of the conflict. Council members argued that the simultaneous tragedy of fighting and famine in the absence of legitimate government authority demanded “new and innovative methods” of response.26 Several members described the combined military and humanitarian tragedy as unconventional. Secretary-General Boutros-Ghali, in both his report to the council and in a statement to the media, argued, “Somalia presented a special challenge, as an extraordinarily complex, tragic situation that had so far eluded conventional solutions.”27 It was the unique, nonstate character of Somalia that made the use of military force possible since the need for consent was eliminated and humanitarian intervention would not challenge state sovereignty.
Forcible Military Humanitarian Intervention and Shifting Causal Stories
The second phase of UN involvement in Somalia marked another historic shift in Security Council action with regard to intrastate conflicts. When the council passed Resolution 794 in December 1992 and Resolution 814 in March 1993 (Table 3.1), it authorized the use of “all necessary means” to create the conditions necessary to ensure the delivery of humanitarian aid and to foster political reconciliation. The authorization of the use of force under Chapter VII marked an important step in the emergence of the practice of humanitarian intervention. For the first time in its history, the UNSC authorized armed intervention for a strictly humanitarian cause.28 Unlike Resolution 688, which authorized UN protection for Iraqi Kurds and Shi’a because of the transborder impact of Iraq’s human-rights-violating behavior, Resolution 794 defined the internal humanitarian crisis itself as a threat to international peace and security.29 This Security Council innovation became possible due to a high degree of unity around a causal story and because the use of coercive force in this case posed little threat to established and highly internalized norms of state sovereignty.
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