Francis M. Deng is a nonresident senior fellow in the Foreign Policy Studies program at the Brookings Institution and co-director of the Brookings-SAIS Project on Internal Displacement. He has served as the Sudan's minister of state and foreign affairs; as its ambassador to Canada, the United States, and Scandinavia; and as special representative of the United Nations secretary-general for internally displaced persons. Terrence Lyons is an associate professor of conflict resolution at the Institute for Conflict Analysis and Resolution and interim director of the Center for Global Studies at George Mason University.This report is sponsored by the Council's Center for Preventive Action.