CONFÉRENCE DE LA DIASPORA DJIBOUTIENNE. le 2 août Ottawa. The Djibouti Diaspora and. Lessons from African Diaspora Experiences

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1 CONFÉRENCE DE LA DIASPORA DJIBOUTIENNE le 2 août 2014 Ottawa The Djibouti Diaspora and Lessons from African Diaspora Experiences In honour of the late Jean-Paul Noël Abdi Presented by: WARREN L.CREATES, B.A., LL.B. Head, Immigration Law Group (Canadian and American) Certified by the Law Society of Upper Canada as a Specialist in Citizenship and Immigration Law (Immigration & Refugee Protection) Perley-Robertson, Hill & McDougall LLP/s.r.l Albert Street Ottawa, Ontario, Canada K1R 0A (p) / (f) wcreates@perlaw.ca and

2 The Djibouti Diaspora and Lessons from African Diaspora Experiences 1 Bienvenue à tous et à toutes, Je m appelle Warren Creates. Je suis un avocat qui travaille dans le domaine du droit de l immigration et des réfugiés, et des droits humains, depuis 28 ans. Compte tenu de ma profession, j ai été en mesure de plaider en faveur de nombreux réfugiés et demandeurs d asile de Djibouti, ici au Canada. Mon poste me permet aussi de condamner activement le gouvernement de Djibouti pour ses abus fréquents et de longue date des droits humains. I am honoured to be speaking here today, at the invitation of the organizers of this conference on the role of the Djibouti Diaspora. Three years ago, I spoke at a conference on human rights in Djibouti, held at the Université du Québec en Outaouais in Gatineau. In attendance was the late Jean-Paul Noël Abdi, 2 president of the Ligue Djiboutienne des Droits Humains. 3 It was a great honour to meet him and to speak together at the same conference. As many of you know, Mr. Abdi passed away in Throughout his life, Mr. Abdi fought tirelessly against impunity and corruption in Djibouti. Today, I would like to honour his memory and his many contributions to the human rights movement. 1 This paper has been made possible by the research and contributions of Julie Mouris, Summer Student at Perley- Robertson, Hill & McDougall LLP/s.r.l., Ottawa. 2 Djibouti Jean-Paul Noël Abdi, The Djibouti Human Rights League (2007), Testimonies of Human Rights Defenders, online: Frontline Defenders < See also Djibouti: Call to Drop Charges and Release Jean-Paul Noël Abdi, President of the Djiboutian League of Human Rights (2011), online: Human Rights Watch < 3 Ligue djiboutienne des droits humains (2014), online: < 1

3 Comme plusieurs parmi vous le savent déjà, la Ligue Djiboutienne des Droits Humains travaille fort pour sensibiliser la population de Djibouti et la communauté internationale aux actions du gouvernement qui menacent les droits humains. La Ligue a été fondée en 1999 par M. Abdi. For security reasons, the organization is forced to work semi-clandestinely to accomplish their goals. The work of the organization is carried out by a core team of volunteers and these volunteers deserve praise and congratulations for the difficult but incredibly important work that they do. Nous savons qu il y a des organismes, comme la Ligue, qui font du travail très important à l intérieur des frontières de Djibouti. En même temps, le fait que la société au Djibouti n est pas politiquement libre aujourd hui nous rappelle que la diaspora djiboutienne a un rôle très important à jouer pour la construction de la nation. Je vais commencer avec un aperçu de la situation à Djibouti, et ensuite je vais discuter du rôle de la diaspora en matière d influencer cette situation. Je vais aussi parler du rôle des femmes de la diaspora. I will end with some good, instructive examples of African diasporas influencing their home countries, and will also touch upon Canada s role in helping build Djibouti. The Current Situation in Djibouti According to the annual Freedom House survey of countries political liberties, Djibouti s rating remains at the status of Not Free in It declined from Partly Free to Not Free in 2011, largely due to the controversial constitutional changes that took place in April 2010 allowing the president to run for a third term in office. 4 Freedom in the World 2014 (2014), online: Freedom House < 2

4 Les élections à Djibouti ont connu plusieurs difficultés. Lorsque le président actuel, Ismaël Omar Guelleh, a remporté son deuxième mandat en 2005, le seul autre candidat s'est retiré de l'élection à cause de la répression de l'opposition et le contrôle qu exerce le gouvernement sur les médias. Les principaux partis d opposition ont refusé de participer aux élections législatives en Le gouvernement a systématiquement abusé le processus électoral en manipulant le processus et en arrêtant certains leaders de l'opposition. Le gouvernement de Djibouti exige aux partis politiques de s'enregistrer auprès du gouvernement. En 2008, le président a dissous le parti d'opposition, le Mouvement pour le Renouveau démocratique et le Développement, sous des accusations fallacieuses. 5 The economic situation in Djibouti is undermined by corruption. UNICEF reports that as many as two out of three children in Djibouti are exposed to life-threatening situations because of poverty. A report commissioned by UNICEF in 2009 found that nearly 70% of children are deprived of at least one basic right including the right to water and sanitation, information, nutrition, education and health. Djibouti has a very high unemployment rate, at nearly 60% in urban areas, and over 80% in rural areas. 6 In terms of the Human Development Index 7, which is a measure of three basic dimensions of human development: a long and healthy life, access to knowledge and a decent standard of living, Djibouti is ranked 170 th in the world. 8 5 Notre histoire (2014), online: Mouvement pour le Renouveau démocratique et le Développement < 6 Djibouti (2014), online: CIA World Factbook < 7 Human Development Index (2014) online: United Nations Development Programme < 8 Explanatory note on the 2014 Human Development Report composite indices (2014) online: United Nations Development Programme < 3

5 Freedom of speech is a major issue in Djibouti. Although it is guaranteed in the constitution, the government routinely and systematically restricts its exercise. The domestic media is almost entirely controlled by the government. The principal newspaper, La Nation, and Radio- Television Djibouti, which operates the national radio and television stations, are governmentowned. Strict libel laws prevent journalists from covering sensitive issues which include human rights. This hostile environment means that local human rights groups, like the Ligue, cannot operate freely, nor effectively. Les tribunaux ne sont pas indépendants du gouvernement. Il y a eu des allégations de poursuites politiquement motivées. Les groupes minoritaires, y compris le peuple Afar, souffrent de marginalisation sociale et économique, de discrimination, et en de nombreux cas, de persécution. Le rôle de la diaspora Étant donné cette situation, la diaspora djiboutienne est bien positionnée pour offrir de l aide. Cindy Horst, chercheure en chef de la «International Peace Research Institute» à Oslo, affirme que le gens qui émigrent d une société fermée à une société ouverte peuvent profiter de leurs nouvelles libertés en publiant, en s organisant et en accumulant des ressources financières d une manière qui serait impossible au pays d origine. 9 They can use direct strategies, such as political or economic support, or indirect strategies, such as putting pressure on the international community, including, and perhaps particularly, their own host country, to influence the government in the country of origin Cindy Horst, The transnational political engagements of refugees: Remittance sending practices amongst Somalis in Norway (2008) 8:3 Conflict, Security & Dev t 317 at 320 [Horst]. 10 Ibid. 4

6 L attention portée sur le rôle des diasporas met souvent l accent sur les ressources financières qu elles peuvent envoyer au gens du pays d origine. Pendant les années 2007 à 2010, la diaspora djiboutienne autour du monde a envoyé environ 30 million $ US par année en transfert de fonds aux Djiboutiens. 11 Ceci est une somme signifiante. Néanmoins, le Groupe de la banque africaine de développement avance que la construction d une nation n est pas seulement basée sur les finances, mais aussi sur le dialogue politique et social, ainsi que des campagnes de sensibilisation et de plaidoyer. 12 Diasporas can have an especially important influence in countries that are under authoritarian governance, like Djibouti. 13 Diaspora groups often have greater access to media, like newspapers, television and the Internet, than they did in their countries of origin. Indeed, they often put great efforts into providing alternate sources of information regarding the political situation of their homeland. 14 Horst notes that voting relatives in the country of origin may believe that their relatives in the diaspora are better informed due to this increased access to media. 15 Furthermore, many emigrants from African countries are skilled emigrants for example, in the year 2000, 38% Djibouti emigrants were skilled. 16 The African Development Bank Group states that skilled emigrants can contribute to their countries of origin by being part of virtual networks 11 The Role of the Diaspora in Nation Building Lessons for Fragile and Post-Conflict Countries in Africa (2011) at 32, online: African Development Bank Group < [AfDB]. 12 Ibid at Terrence Lyons, Transnational Politics in Ethiopia: Diasporas and the 2005 Elections (2006) 15:2/3 J of Transnat l Studies 265 at 267 [Lyons]. 14 Horst, supra note 9 at Ibid at AfDB, supra note 11 at 31. 5

7 that residents of the country of origin can rely on for information, expertise and advice. 17 With the exponential growth of electronic media, the fact of being on another continent is less and less of a barrier for the diaspora to contribute to their country of origin. Dans l ensemble, le Groupe de la banque africaine de développement souligne que la diaspora africaine est en mesure de devenir un joueur clé pour la construction d institutions démocratiques en Afrique. 18 Bien sûr, en 2003, l Union Africaine a modifié son Acte constitutif en y ajoutant une disposition qui invite et encourage la participation de la diaspora africaine en tant qu élément intégral du continent, et pour la construction de l Union Africaine. 19 Women in the Diaspora That same year, the African Union also adopted a Protocol on the Rights of Women in Africa, 20 which aims to enhance women s rights across Africa. This was significant, given that across the world, [w]omen continue to have fewer rights, lower education and health status, less income, and less access to resources and decision-making than men. Nevertheless, women's critical roles in food production, income generation, management of natural resources, community organization and domestic responsibilities are essential for sustainable development Ibid at Ibid at Ibid at 15. See African Union, Protocol on the Amendments to the Constitutive Act, 11 July 2003, art 3(q), online: < UNION.pdf>. Note: This Protocol is not yet in force: see African Union, OAU/AU Treaties, Conventions, Protocols & Charters, online: < 20 Protocol to the African Charter of Human and Peoples Rights to the Rights of Women (1 July 2003), African Union, online: < (in force since 25 November 2005). 21 Equality Between Women and Men (2014), online: Foreign Affairs, Trade and Development Canada < [DFATD]. 6

8 Il y a un lien entre ces deux Protocols de l Union Africaine : les femmes de la diaspora (et tout homme qui appuie cette cause) peuvent contribuer à la réalisation des droits de la femme en Afrique, et à Djibouti. Les femmes de la diaspora djiboutienne sont bien positionnées pour contribuer à cette cause : dans leur pays hôte, elles ont accès à plus d éducation et de ressources, donc elles peuvent influencer leurs compatriotes à Djibouti par plusieurs moyens. Promouvoir l égalité entre les sexes n est pas seulement important en soi. La Banque mondiale affirme que l égalité des sexes améliore l efficacité économique. 22 Bref, si les femmes peuvent être éduquées et peuvent travailler au même niveau que les hommes, l économie devient plus productive, et les institutions deviennent plus inclusives et participatives. 23 In Canada, gender equality is a crosscutting theme in many government programs, and the Department of Foreign Affairs is committed to improving gender equality worldwide. 24 I will come back to Canada s role shortly. Examples of Diasporas Influence There are three (3) good, instructive examples of diasporas influencing their home countries that I would like to discuss today. The first is the Can-Go Afar Foundation, which is close to my heart. Can-Go Afar is a Canadian humanitarian organization that I launched with my colleague Ahmed Youssef Mohamed in 2007, to raise funds, deliver worthy projects and advocate for the Afar people. 25 Its goal is to relieve poverty for the Afar people. Can-Go Afar works closely with the Afar community in Canada, with their compatriots in other countries around the world, as well as local NGOs in Ethiopia. 22 World Development Report 2012 Overview: Gender Equality and Development (2011) at 3, online: The World Bank < 23 Ibid. 24 DFATD, supra note About Us (2014), online: Can-Go Afar Foundation < 7

9 It has successfully implemented a pilot project to provide BioSand water filters (a Canadian technology) in the Afar Region; this project has now expanded. The Foundation also funds primary education for orphaned children in a boarding school. It provides funding for 47 high school students, all refugees from Eritrea. Also, our Foundation provides post-secondary education bursaries for Afar students and delivers emergency aid to refugees and internally displaced Afar. Since its launch, Can-Go Afar has partnered with many individual supporters and business leaders in Canada as well as with local implementing partners in the Afar Region, Ethiopia. Pendant ces dernières années, le dévouement d un petit groupe d individus pour aider le peuple Afar a pris de l ampleur, et maintenant nous avons un grand réseau de sympathisants au Canada et autour du monde. We have led 9 successful mission trips of delegates to the Afar Region. Pendant mes années avec Can-Go Afar, j ai aussi remarqué que le travail de la fondation a un impact positif sur la diaspora djiboutienne même. Les membres de la diaspora avec qui nous travaillons apprennent des meilleures pratiques, telles que de la bonne gestion, de la transparence et de la responsabilité. De plus, ils développent un réseau qui les aide dans leurs vies personnelles et professionnelles. En travaillant ensemble, ils augmentent aussi la sensibilisation des gens à la situation à Djibouti. The latent effect of all this is that the diaspora group becomes better integrated, settled, and enjoys a sense of contribution. It actually solidifies the group, preserves culture, and provides meaning and purpose. Pour mon deuxième exemple, j aimerais parler de l influence de la diaspora de l Éthiopie pendant les élections de Avant les élections, des leaders clés de la diaspora de l Éthiopie 8

10 ont décidé d encourager et de soutenir la participation de partis d opposition dans les élections. Ce soutien était important, puisqu en 1995 et en 2000, les partis d opposition avaient boycotté les élections. 26 Mais en 2005, avec l encouragement de la diaspora, les partis d opposition ont décidé de participer aux élections. Donc, avec la participation des partis d opposition, les citoyens de l Éthiopie auraient plus qu un choix de candidat pour qui voter. Pendant la période juste avant l élection, il y a eu plusieurs débats sur la politique publique, et des manifestations non-violentes. 27 Les citoyens éthiopiens et la diaspora étaient très enthousiastes à l égard de l élection. In this enthusiastic spirit, many Ethiopians turned out to vote. 28 Unfortunately, as you probably know, violence erupted after the election. The main political party received 67% of the vote, and some people in the opposition parties and the diaspora claimed there had been massive fraud in the process. 29 But the diaspora did not stop being involved. The diaspora facilitated vigorous debates on Internet sites about whether opposition parties should boycott the legislature. This led the Ethiopian government to block access to many of these sites, which suggests that the government saw the power of these online debates. 30 Ultimately, one of the opposition parties, the Coalition for Unity and Democracy (CUD), decided to boycott the legislature, a decision which was influenced by opinions of those in the diaspora Lyons, supra note 13 at Ibid. 28 Ibid. 29 Ibid at Ibid at Ibid at

11 Again, the diaspora did not end its involvement there. Diaspora groups turned toward different mechanisms, such as organizing and participating in advocacy campaigns in North America and Europe, as well as lobbying the US Congress, the State Department and the World Bank. 32 Dr. Terrence Lyons 33 describes the situation in this way: [b]oth the enthusiasm of the 2005 election and the disillusionment and frustration of its aftermath have inspired the Ethiopian diaspora to become active in Ethiopian politics in creative and more effective ways. 34 I believe that this example shows that although political change may not be a smooth, linear process, the diaspora have many resources and opportunities at their disposal to adapt to different situations, and to continue being influential. Dr. Lyons uses the term political entrepreneurs to designate people who can create new networks and creative transnational practices. 35 I think the Ethiopian experience can teach us many lessons going forward. Mon dernier exemple provient de l Érythrée. L Érythrée a connu l indépendance de l Éthiopie en En 1993, le gouvernement a invité la diaspora érythréenne à participer au référendum sur l indépendance. La diaspora a participé en grands nombres, et après le référendum, plusieurs membres de la diaspora ont été impliqués dans la rédaction et la ratification de la constitution. Selon moi, ceci incarne la participation de la diaspora envisagée par l Union Africaine, que j ai mentionnée plus tôt. Par contre, comme nous le dit la chercheure Cindy Horst, le niveau de pouvoir de groupes de la diaspora dans des pays fragiles dépend beaucoup de la mesure dans laquelle le gouvernement du 32 Ibid. 33 Associate Professor of Conflict Resolution at George Mason University s School for Conflict Analysis & Resolution, Ph.D. (International Relations). See his profile online: < 34 Ibid at Ibid at

12 pays veut leur accorder la parole. 36 À Djibouti, le gouvernement autoritaire ne voulant pas de voix dissidentes, il ne voudrait probablement pas accorder la parole à la diaspora djiboutienne qui demande du changement politique. Nevertheless, some governments in African states have made room for the voices of the diaspora. The Government of Burundi has established a special diaspora department in its Ministry of External Affairs, and the Government of Sierra Leone has also established an office to coordinate diaspora affairs in the Presidency. 37 In turn, the Government of the Democratic Republic of the Congo has established the Maison des Congolais de l étranger et des migrants with the support of Switzerland and the United Kingdom. 38 Although the African Development Bank Group notes that these offices may not have clear frameworks for engagement of the diaspora, I would say this is still a starting point. Tous ces exemples nous offrent des modèles pour l engagement de la diaspora djiboutienne. Bien sûr, il se peut qu un engagement direct avec le gouvernement djiboutien ne soit pas possible en ce moment, étant donné que le gouvernement est autoritaire. Néanmoins, si la diaspora continue à travailler fort pour construire la nation de Djibouti, il est probable qu un jour la diaspora pourra jouer un rôle plus direct à Djibouti. Dans l entretemps, comme l exemple de l Éthiopie nous l a démontré, la diaspora peut s adapter à la situation actuelle en trouvant différents moyens, soit directs ou indirects, pour s impliquer dans le pays ou dans les mots du Dr. Lyons, pour devenir des «entrepreneurs politiques». 36 Horst, supra note 9 at AfDB, supra note 11 at Ibid at

13 Of course, not all diaspora groups will engage in political work. In Canada, to obtain charitable status, an organization must be apolitical. For example, the Djibouti Diaspora Network is an apolitical organization that aims to mobilize the Djiboutian diaspora to contribute socially and economically to Djibouti. Its goals are poverty reduction, building knowledge and building local capacity. 39 Improving the social and economic situation in Djibouti is equally as important as effecting political change, and the two complement each other. Canada s Role Finally, we should also ask what Canada, the host state for many of Djibouti s diaspora, can do to help. At the international level, the Universal Periodic Review completed by the United Nations Human Rights Council is one mechanism through which Canada can put pressure on Djibouti. Dans l examen périodique de 2009, le Canada a félicité Djibouti pour avoir signé la Convention internationale sur l'élimination de toutes les formes de discrimination raciale. 40 Toutefois, le Canada a recommandé que Djibouti ratifie cette Convention. Le Canada s'est déclaré concerné par les rapports indiquant des actes de répression contre les gens dans les syndicats et a recommandé que Djibouti respecte les droits des syndicats, de s'abstenir de l'arrestation et la détention arbitraire, de la violence physique et le harcèlement des représentants syndicaux et d'empêcher l'action syndicale. 39 Notre mission (2014), online: Réseau de la Diaspora de Djibouti < 40 Report of the Working Group on the Universal Periodic Review - Djibouti, 3 March 2009, A/HRC/WG.6/4/L.2; A/HRC/11/16 at para 59, online: United Nations Human Rights Council < 12

14 Le Canada a aussi recommandé que Djibouti modifie ses lois sur la liberté de communication. En particulier, les lois qui stipulent que les participants à la gestion financière d'un organisme de presse doivent être citoyens de Djibouti ; que le directeur et vice-directeur d'un carrefour des médias doivent être citoyens de Djibouti, et qui exigent le directeur d'un carrefour audiovisuel doit être âgé d au moins 40 ans. Le Canada a recommandé en outre que Djibouti élimine l'emprisonnement pour le châtiment des délits de presse et de s'abstenir de l'usage de l'intimidation contre les journalistes en vue de favoriser un climat de tolérance afin que les politiciens de l'opposition peuvent exprimer leurs opinions librement. 41 The Universal Periodic Review of 2013 indicates that Djibouti did ratify the International Convention on the Elimination of All Forms of Racial Discrimination in 2011, and also ratified the two Optional Protocols to that Convention as well as other conventions and optional protocols. 42 Djibouti also stated that it had journalists trade unions and associations mandated to promote freedom of expression at the national, regional and international levels. 43 The Minister of Communications implemented a training and information programme on freedom of expression together with the East Africa Regional Office of the Office of the High Commissioner for Human Rights (OHCHR) and the National Human Rights Commission. 44 Thus, there have been some positive changes. Nevertheless, Canada once again made remarks in this Universal Periodic Review, ask[ing] Djibouti to detail possible reasons for the continued high number of instances of FGM [female genital mutilation], despite its measures to implement the national 41 Ibid at para 68(7). 42 Report of the Working Group on the Universal Periodic Review - Djibouti, 8 July 2013, A/HRC/24/10 at para 5, online: United Nations Human Rights Council < [UPR 2013]. See also Status of the International Convention on the Elimination of All Forms of Racial Discrimination, 660 UNTC 195, online: United Nations Treaty Collection < 43 UPR 2013, supra note 42 at para Ibid at para

15 strategy on this issue, as well as which new measures will be adopted to accelerate the process of eliminating this practice. 45 Canada made several recommendations on this topic, highlighting Canada s continued commitment to improving gender equality in Djibouti. 46 In years to come, Canada will likely continue to probe Djibouti on its progress regarding the protection of human rights. Conclusion The venue of this conference, here in Canada, allows people the opportunity to speak freely about oppressive regimes. The values expressed in the Charter of Rights and Freedoms the freedoms of expression, association, political opinion and equality are all values that create a spirit of openness. Let us be frank and honest here today. This is a venue where our views can be freely expressed thanks to the rights enshrined in our Charter. Let us show the world how a free society looks and how it can operate to the benefit of all. But with rights come obligations. Here in Canada we have the right to freedom of expression let us exercise our corollary obligation to speak and shed light on the failings of the Djibouti government to protect and defend human rights in its country. We cannot turn a blind eye to these abuses. Many refugees from Djibouti have fled to Canada seeking the protection of our government and the safety and freedoms of our country. According to Canada s 2011 National Household Survey data on Immigration Status and Period of Immigration, there were 720 total immigrants and non-permanent residents from Djibouti living in Canada. 47 As a party to the 45 Ibid at para Ibid at paras , , 144.5, National Household Survey: Data Tables (2014), online: Statistics Canada < 14

16 1951 Refugee Convention, 48 Canada has a crucial role to play in protecting Djibouti people. And, in turn, this diaspora has a crucial role to play in effecting change back in Djibouti. More needs to be done to help in the fight against human rights abuses in Djibouti and in the region. More needs to be done to support and incubate a vibrant civil society in Djibouti. More needs to be done to fill the many gaps and deficiencies left vacant by an ineffective and uncaring Djibouti government. I remain devoted to these causes. We must work together. Plurality of views and plurality of nationalities can and should be a strength. Holding this event and others like it is the way to encourage and effect real change. J ai beaucoup d espoir pour l influence que pourra avoir la diaspora djiboutienne dans le proche futur. J espère que nous pourrons tous et toutes travailler ensemble pour réaliser un meilleur avenir pour les peuples de Djibouti. Merci beaucoup. eng.cfm?lang=e&apath=3&detail=0&dim=0&fl=a&free=0&gc=0&gid=0&gk=0&grp=0&pid= &PRID=0&PTYPE=105277&S=0&SHOWALL=0&SUB=0&Temporal=2013&THEME=95&VID=0&VN AMEE=&VNAMEF=>. Note: the National Household Survey is sent to 1 out of 3 households in Canada, and people who receive it have a choice whether or not to respond. The global non-response rate in this case was 26.1%. 48 Status of the Convention on the Status of Refugees, 189 UNTC 137, online: United Nations Treaty Collection < ng=en>. 15