Mission statement

UNHCR - The United Nations Refugee Agency

UNHCR is mandated by the United Nations to lead and coordinate international action for the worldwide protection of refugees and the resolution of refugee problems.

UNHCR’s primary purpose is to safeguard the rights and well-being of refugees. In its efforts to achieve this objective, UNHCR strives to ensure that everyone can exercise the right to seek asylum and find safe refuge in another state, and to return home voluntarily. By assisting refugees to return to their own country or to settle permanently in another country, UNHCR also seeks lasting solutions to their plight.

UNHCR’s efforts are mandated by the organization’s Statute, and guided by the 1951 United Nations Convention relating to the Status of Refugees and its 1967 Protocol. International refugee law provides an essential framework of principles for UNHCR’s humanitarian activities.

In support of its core activities on behalf of refugees, UNHCR’s Executive Committee and the UN General Assembly have authorized the organization’s involvement with other groups. These include former refugees who have returned to their homeland; internally displaced people; and people who are stateless or whose nationality is disputed.

UNHCR seeks to reduce situations of forced displacement by encouraging states and other institutions to create conditions which are conducive to the protection of human rights and the peaceful resolution of disputes. In pursuit of the same objective, UNHCR actively seeks to consolidate the reintegration of returning refugees in their country of origin, thereby averting the recurrence of refugee-producing situations.

UNHCR is an impartial organization, offering protection and assistance to refugees and others on the basis of their needs and irrespective of their race, religion, political opinion or gender. In all of its activities, UNHCR pays particular attention to the needs of children and seeks to promote the equal rights of women and girls.

In its efforts to protect refugees and to promote solutions to their problems, UNHCR works in partnership with governments, regional organizations, international and non-governmental organizations. UNHCR is committed to the principle of participation, believing that refugees and others who benefit from the organisation’s activities should be consulted over decisions which affect their lives.

By virtue of its activities on behalf of refugees and displaced people, UNHCR also endeavours to promote the purposes and principles of the United Nations Charter: maintaining international peace and security; developing friendly relations among nations; and encouraging respect for human rights and fundamental freedoms.

3 UNHCR Global Appeal 2006 Editorial team Principal Editor: María Clara Martín Editors: Rohini Deshmukh, Robert Salin Data Co-ordinator: Daniela Ionita Editorial Assistant: Sylvie Genhart-Maillot Contributing Editors: Shoko Shimozawa, Jennifer Byron, Michèle Choffat, Megumi Endo, Sheila Johnson, Taeko Kuwahara Editorial Consultant: John Steinhardt Acknowledgements With special thanks to: Jill Mackechnie, Bryan Deschamp, Paul Stromberg and Ian Myles. The editorial team also wishes to thank all UNHCR field and headquarters staff who contributed to the production of this appeal, as well as the following persons and teams for their invaluable support: Fathia Abdalla, Ursula Aboubacar, James Alemi, Tahir Ali, Karuna Anbarasan, Hiroko Araki, Martha Isabel Alvarado-Watkins, Gabriel Josef Bagui, Emile Belem, Matthew Brook, Eleanor Burns (BSCI), Jean-Paul Cavalieri, Sam Chakwera, Xavier Creach, Josiane Croset, Loan Dam, Hélène Daubelcour, Mohamed Dualeh, Torben Due (WFP), Cathrine Evans, Nadine Ezard, Jean-Marie Fakhouri, Ahmed Baba Fall, Belen García de Vinuesa, Comfort-Rosie Gatungo, Michel Gaudé, Catherine-Lune Grayson-Courtemanche, Ralf H.W. Gruenert, Neyaga Kaba Guichard, Aminata Guye, Arman Harutyunyan, Jens Hesemann, Jon Hoisaeter, Gogo Hukportie, Salvatore Ippolito, Arafat Jamal, Chansa Kapaya, Naomi Kawahara, Anne Marie Kerrigan-Deriche, Mirza Hussain Khan, Ioli Kimyaci, David Lambo, Brian Lander, France Lau, Philippe Lavanchy, Preeta Law, Pierre-Bernard Le Bas, Giovanni Lepri, Mathijs Le Rutte, Marie-Noelle Little, Martin Loftus, Javier Lopez Cifuentes, Davit Makhmuryan, François Marrillet, Pablo Mateu, Jim Mayer, Raouf Mazou, Lee Mc Donald, Mary-Jane Meierdiercks-Popovic, Jozef Merkx, Zaw Miin, Veronica Modey-Ebi, Terry Morel, Milton Moreno, Panos Moumtzis, Paul Ndaitouroum, Valentine Ndibalema, Mohammad Nisar Khan, Filip Papas, Jane Pierce (WFP), Ron Pouwels, Ron Redmond, Charlotte Ridung Rostorf, José Riera, Nicolas Rost, Jean Bosco Rushatsi, Sholeh Safavi-Hemami, Gloria Sagarra, Arun Sala-Ngarm, Anthony Salmon, Craig Sanders, Volker Schimmel, Solange Senaize, Fatima Sherif-Noor, Bellings Sikanda, Paul Spiegel, Karl Steinacker, Hawa Sylla-Kane, Saburo Takizawa, Bamba Tane, Dona Tarpey, Nemia Temporal, Yoichiro Tsuchida, Thomas Vargas, Brian Vaughan, Sabine Wähning, Carolyn Wand, Neimah Warsame, Petrus Wijninga, Girmai Wondimu, the Asia Bureau, CASWANAME Bureau and Europe Bureau teams, both in the Field and at Headquarters.

Photographs: Susan Hopper, Anne Kellner (UNHCR Photolibrary) and UNHCR staff in the Field and Headquarters Front cover/back cover: Afghanistan: An 11-year-old returnee girl at her English class in Kabul. UNHCR/N. Behring Cartography: Yvon Orand, Jordan Anastassov (Source: UNHCR Population and Geographic Data Section, Global Insight Digital Mapping © 1998 Europa Technologies Ltd.) Statistics: Bela Hovy, Christian Oxenboll, Tarek Abou Chabake, Population and Geographic Data Section Production Design and Production: Multimedia Design and Production, International Training Centre of the ILO, Turin - Italy Printing: RA Monitorul Oficial, Bucharest - Romania, www.monitoruloficial.ro

Disclaimer The maps in this document do not imply the expression of any opinion on the part of UNHCR concerning the legal status of any country, territory, city or area, of its authorities, or the delimitation of frontiers or boundaries. All statistics are provisional and subject to change.

UNHCR PO BOX 2500 1211 Geneva 2 Switzerland www.unhcr.org Foreword by the High Commissioner

s the agency mandated to protect and care for refugees and other displaced populations around the Aworld, UNHCR operates in a complex environment that poses growing challenges to the help we provide to millions of people in need. Today, the problems that we and other humanitarian agencies work to address - persecution, flight, life-threatening conditions - are increasingly confused with issues like migration, terrorism and insecurity. The result is a dangerous misperception about what causes people to leave their homes and what enables them to go back. Our mission must be to defend the principle of asylum for those who need it while securing their right and ability to return. A first challenge is posed by the rise of intolerance in modern societies. Rational debate in many countries is under assault from politicians and media outlets who feed intolerance by blaming society’s ills on those from elsewhere. Intolerance for the “other” has become a populist rallying cry and, for many, a refugee has become a migrant or a security threat. Paradoxically, the rise of intolerance and populism is taking place at a time when the number of those seeking asylum is at its lowest level in almost a quarter of a century. Protection activities must incorporate measures against fraud and abuse to safeguard the credibility of the asylum system. At the same time, UNHCR needs to confront the notion that refugees and asylum-seekers are the agents of insecurity and terrorism, rather than their victims. This will involve sustained advocacy and timely protection interventions, both of which I have made priorities for my Office in 2006. Preserving asylum requires that we be able to find those in genuine need of protection when they are concealed by complex migration flows. The challenge of identifying such individuals grows with their numbers and the risks they are willing to take, as we have seen in the Mediterranean and the Gulf of Aden. It is impossible when mixed groups are not allowed physical access to asylum procedures or refugee status determination. UNHCR will work closely with governments over the coming year to support their efforts to improve registration and individual screening. A third challenge is the lack of an effective link between emergency relief and development. This is a long-standing problem but one that seriously handicaps our efforts to implement truly durable solutions for refugees and other people of our concern. As long as peace and economic recovery have not taken root in a post-conflict situation, the sustainability of population returns is in doubt. To address this gap, UNHCR is working with development actors to ensure that people of our concern are included in national development planning exercises. In Afghanistan, Liberia, Sudan and Somalia, for example, durable solutions for refugees and other displaced persons are an integral part of the recovery strategies jointly promoted by the UN Development Group and the World Bank. And we are collaborating with UNDP and other partners to help people of our concern become more productive and self-reliant during their displacement and after their return. In September 2005, the UN family took a significant step towards addressing situations of internal displacement when the Inter-Agency Standing Committee decided in principle on a clear delineation of responsibilities within the collaborative approach. UNHCR was tasked to lead the response in the areas of protection, camp coordination and management, and emergency shelter. Our involvement with internally displaced persons will depend on two conditions, namely that affected populations maintain the right to seek and enjoy asylum, and that funds for the internally displaced are not diverted from our core refugee activities. The new arrangement is to be implemented in 2006 and the Office is fully committed to supporting it. Increased involvement with internal displacement underscores the need for a robust emergency response capacity. We have set an operational goal of being capable, by the end of 2006, of responding quickly and effectively to unexpected situations involving movements of up to 500,000 people.

UNHCR Global Appeal 2006 6 Foreword

Sudan: High Commissioner António Guterres with internally displaced children at Riyad camp in western Darfur. UNHCR / H.Caux

A priority in 2006 will be to maintain the financial stability UNHCR has achieved in recent years. Predictable funding is critical to avoid programming measures late in the year that invariably have a direct and negative impact on the people in our care. This year’s Annual Budget is larger than that of 2005, which reflects mainly the inclusion of our special programmes in Burundi and Chad, but we have been and will continue to be rigorous in prioritizing activities and containing expenditures. I use this opportunity to thank the donors we rely on each year and say how essential it is that they maintain their support. One of my longer-term objectives is to enlarge our funding base with new country donors and by putting more emphasis on private and corporate funding. As I look forward to my first full year as High Commissioner, I am committed to an organization that demonstrates vision and delivers results. We have begun a reform of structures and procedures that will help bring more effective protection and support to the people we care for. The addition of the post of Assistant High Commissioner for Protection, the mainstreaming of Convention Plus and the creation of a resettlement service are important moves in this direction. We have used the Global Strategic Objectives for 2006 to establish measurable targets in operations, protection and management. We cannot tolerate the levels of malnutrition or access to HIV/AIDS educational material that exist in many camp situations, for example, or that an operation does not have procedures in place to respond to sexual and gender-based violence. We have identified these and other specific areas as absolute priorities for 2006 and I have asked managers to focus their attention and resource allocation here. Clear targets mean greater accountability both for us and the donor community. I am committed also to establishing a results-based management system with clear objectives and an organization-wide accountability framework. We have introduced a number of related elements already and will implement more, along with actions to ensure a culture of transparency. Steps have been taken to guarantee the independence of the Inspector General’s Office, which will be further strengthened in 2006. This Global Appeal sets out our priorities for the coming year. It is important to reassert that UNHCR, above all, works to protect the institution of asylum and refugees’ right to a place they can call home. Meeting that challenge will make a lasting difference in the lives of millions of people. I thank you for your continued financial support.

António Guterres

7 UNHCR Global Appeal 2006 The Global Appeal 2006

Introduction order to make clearer the differences between regular headquarters activities and programmes designed to support or to be implemented his Global Appeal is published to alert govern- directly in the field. The 2006 Global Appeal con- mental and private sector donors, Executive T tinues to emphasize work in partnership with Committee members and Standing Committee NGOs, other UN agencies, the Red Cross/Red observers, Governments and their Permanent Crescent Movement, and intergovernmental orga- Missions in Geneva, the UN Secretariat, UN agen- nizations such as the International Organization cies, intergovernmental agencies, NGOs, regional for Migration (IOM), donors and host govern- organizations and other institutions and interested ments, giving due recognition to the important individuals to the plight of millions of refugees and contribution they make towards the realization of other persons of concern falling within UNHCR’s UNHCR’s mandate. The special contribution of mandate. UNHCR’s ninth Global Appeal outlines the World Food Programme (WFP) towards saving the Office’s strategies and programmes for 2006, the lives of millions of refugees and internally and will be launched officially at UNHCR’s annual Pledging Conference in Geneva in late November 2005. At this conference, it is hoped that many donors will inform UNHCR of their funding priorities and make announcements of financial contributions towards the protection and humanitarian needs of the world’s displaced.

As the Office depends almost exclusively on vol- untary contributions to finance and implement its programmes, flexible, early and predictable fund- ing is vital to ensure smooth, uninterrupted operations.

Structure

Like previous editions, the format of the 2006 Global Appeal follows the structure of UNHCR’s annual budget. However, some changes have been made to the presentation of the introduc- tory chapters. In this document, special efforts have been made to highlight UNHCR’s work to protect and provide durable solutions for refugees and other persons of concern in relation to the wide range of challenges which the Office will have to face in 2006. There is greater emphasis on stra- tegic objectives, both at headquarters and regional levels, which reflect the progressive adoption of results-based management through- out the organization. The Headquarters chapter precedes the Global programmes chapter, in

UNHCR Global Appeal 2006 10 displaced people and the cooperation between USD 5 million or more are presented in separate WFP and UNHCR will be an integral feature of the chapters. As in previous years, other operations Global Appeal. are described in their respective regional over- views. More detailed information on specific The Global Appeal 2006 UNHCR’s operations are presented in 19 regional countries can be found on UNHCR’s website at overviews which include 36 operations chapters www.unhcr.org/cops, where country operations relating to 34 countries, according to UNHCR’s plans are posted for the convenience of members regional structure. It must be noted that Chad and of UNHCR’s Executive Committee (ExCom) and all Sudan are, like last year, presented in a situational other interested readers. Detailed information on approach for the refugee and internally displaced UNHCR’s policies, ExCom documents and deci- groups in the subregion. However, in line with sions, news stories and publications can be found UNHCR’s budget structure, each country budget is on UNHCR’s website, www.unhcr.org. calculated within its respective region (Central Africa and the Great Lakes for Chad, East and Horn The annexes include a list of current members of of Africa for Sudan). the Executive Committee. The Glossary has been revised to include terms such as “facilitation” and In order to keep this document to a manageable “promotion” of repatriation, which are frequently length, only those operations with a budget of used in UNHCR operations.

Kyrgyzstan: Uzbek refugees in Barash camp. Shortly afterwards, these refugees were airlifted to Romania, from where they were resettled to other countries. UNHCR / C. Zaccagnini

11 UNHCR Global Appeal 2006 Facts and figures

NHCR was established by United Nations which is applied in Latin America, adapt the 1951 UGeneral Assembly Resolution 319 A (IV) and definition of a refugee to circumstances in those began operations on 1 January 1951. Initially regions. established as a temporary office, with a pro- jected life span of three years, UNHCR’s mandate Under the provisions of its Statute, UNHCR can was then extended every five years to respond to carry out additional activities upon the request of the world’s growing refugee problems until 2003, the General Assembly and the United Nations when the General Assembly adopted a resolution Secretary-General. In 1974, the General Assembly that allowed for the continuation of the Office asked UNHCR to provide legal assistance to state- “until the refugee problem is solved”. UNHCR is less persons and in 1996 mandated the agency to one of the world’s principal humanitarian organi- broaden its role by promoting the avoidance and zations, with 262 offices in 116 countries and a reduction of statelessness on a global scale. More staff of 6,885 persons – 85 per cent of whom work recently, ExCom expressed concern that some in field locations. At the beginning of 2005 there situations of statelessness are of a protracted were 19.1 million refugees and others of concern nature and called on UNHCR to pay specific atten- who fell under the mandate of the Office, which tion to them. In addition, both the General has been awarded the Nobel Peace Prize twice. Assembly and the Secretary-General have fre- quently called upon UNHCR to protect or assist other groups of persons not included in the The Mandate Office’s original mandate, such as war-affected populations or internally displaced persons (IDPs). UNHCR’s mandate is to ensure that international protection is provided to refugees and that durable With regard to the latter, in recent years, the UN solutions are found to ease their plight. Of the and its humanitarian partners in the Inter-Agency various durable solutions it seeks to achieve, the Standing Committee (IASC) have adopted a “col- preferred one is voluntary repatriation, whereby laborative approach” to respond to crises of inter- refugees return to their homes and resume their nal displacement. Given its expertise with mass lives. When repatriation is impossible, UNHCR movements of people in crisis situations, and the tries to help refugees settle locally in the country fact that the internally displaced are often in a of asylum. Resettlement in third countries as a “refugee-like situation”, UNHCR has often provided durable solution is explored for persons who meet protection and assistance, including return and specific criteria when neither of the other solu- reintegration when possible, to certain groups of tions is possible. IDPs. Following a review of the UN humanitarian response in 2005, UNHCR will assume UNHCR’s work is guided by its Statute, contained responsibility for protection (including return), in General Assembly Resolution 428 (v) of Decem- camp coordination and emergency shelter ber 1950. It is also guided by the 1951 Refugee under a UN system-wide response mechanism led Convention and its 1967 Protocol, the United by the Emergency Relief Coordinator. Nations General Assembly and the Economic and Social Council (ECOSOC), and the decisions and conclusions of the Executive Committee of the The High Commissioner High Commissioner’s Programme (ExCom). In addition to the 1951 Refugee Convention and its 1967 Protocol, the 1969 Convention governing the specific The High Commissioner is nominated by the aspects of refugee problems relevant to Africa United Nations Secretary-General and elected by and the 1984 Cartagena Declaration on Refugees, the General Assembly for a term of five years. The

UNHCR Global Appeal 2006 12 current High Commissioner, Mr. António Guterres, inter-sessional Standing Committee meetings on assumed office on 15 June 2005 as the Office’s protection, administration and finance every 10th High Commissioner. Mr. Guterres spent three or four months. Facts and figures more than 20 years in government and public service in Portugal and served as Prime Minister from 1996 to 2002, during which he was instru- Persons of Concern mental in the international efforts to stop atroci- ties in East Timor. As president of the European Union Council in early 2000, he co-chaired the At the beginning of 2005, the total number of first EU-Africa summit and led the Union to the persons of concern to UNHCR was 19.1 million. adoption of the so-called Lisbon Agenda. He also founded the Portuguese Refugee Council in 1991, Refugees: 9.2 million and was a member of the Council of State of Portugal from 1991 to 2002. From 1981 to 1983, The 1951 Convention relating to the Status of Mr. Guterres was a member of the Parliamentary Refugees defines a refugee as a “person who, Assembly of the Council of Europe, as well as owing to a well-founded fear of being persecuted chairman of the Committee on Demography, for reasons of race, religion, nationality, member- Migrations and Refugees. ship of a particular social group or political opin- ion, is outside the country of his nationality and is Since taking up office, the High Commissioner has unable or, owing to such fear, is unwilling to avail identified three main areas as immediate priorities himself of the protection of that country.” At the for the Office: ensuring that protection, as the beginning of 2005, there were 9.2 million people core mandate of the Office, is fully integrated in all recognized as refugees by UNHCR or the operations; developing policy, to ensure better Governments that have signed the various UN or protection and to provide clear responses to regional instruments relating to the status of issues that affect UNHCR’s work, such as terror- refugees. The former are known as “mandate ism and security, and, thirdly, making transpar- refugees”. This category includes persons who ency and accountability the cornerstones of have been granted temporary protection on a UNHCR’s action. To address these issues, the group basis. High Commissioner has launched a number of reforms, with the aim of making UNHCR more effi- cient, more effective and ready to respond to the Asylum-seekers: 840,000 challenges lying ahead. Persons who have left their countries of origin and have applied for recognition as refugees in other The Executive Committee countries, and whose applications are still pend- ing a decision by the appropriate government (ExCom) body or by UNHCR.

UNHCR’s governing body was created in 1958, Returnees: 1.5 million pursuant to a request by the General Assembly. Its main tasks are to approve the High Persons (e.g. refugees) who were of concern to Commissioner’s assistance programmes, advise UNHCR when outside their country of origin and the High Commissioner in the exercise of his/her who remain so for a limited period (usually two functions (mainly on protection issues) and years) after they return home. UNHCR also oversee the Office’s finances and administration. assists in the reintegration of returnee IDPs and ExCom member States – currently 68, as listed in monitors their well-being. The agency’s activities Annex I at the end of this document – meet in in the country of origin are intended to make Geneva in plenary session for one week in October return sustainable and help preclude new of each year. To maintain a dialogue with UNHCR refugee outflows. throughout the year, there are a number of

13 UNHCR Global Appeal 2006 at n figures and Facts

Stateless persons (or those with border. According to international law, they unresolved nationality): 1.5 million remain under the sovereignty of their own State, which is therefore responsible for protecting Persons who are not considered as nationals by them, even if that State’s government is unable or any State under the operation of its law. In carry- unwilling to do so. While the number of IDPs ing out its mandate, UNHCR continues to encour- throughout the world is estimated to be at least age States to accede to the 1954 Convention four or five times as high (around 25 million), relating to the Status of Stateless Persons and the UNHCR is currently assisting some 5.4 million. 1961 Convention on the Reduction of Stateless- ness. By September 2005, 57 States had acceded Others of concern: 590,000 to the former and 29 to the latter instrument. The Office also provides technical support and advice Examples of other persons of concern that to States on issues related to statelessness. UNHCR has been asked to protect include forced migrants and Afghan asylum-seekers in the Internally displaced persons: Russian Federation, local residents-at-risk in 5.4 million Kosovo, Serbia and Montenegro, rejected Eritrean asylum-seekers in Sudan following the application Like refugees, IDPs may have been forced to flee of cessation clauses and Sahrawis in Mauritania. their homes because their lives and/or liberty were at risk; but unlike refugees, they were either unable to or did not wish to cross an international

UNHCR Global Appeal 2006 14 UNHCR’s global strategic objectives

NHCR’s overall mandate is to provide inter- 8. Enhance the quality, effectiveness and effi- Unational protection and humanitarian ciency of UNHCR’s operations, in particular by assistance to refugees and persons of concern institutionalizing results-based management. while working to find durable solutions to their situation. In order to fulfil its mandate the Office 9. Enhance UNHCR’s oversight and account- has established ten Global Strategic Objectives ability framework in order to improve compliance (GSO): with UNHCR’s policies and standards.

1. Advocate for and support governments in the 10. Continue to develop a flexible, gender- creation and maintenance of an international balanced workforce that can meet the challenges protection regime and the provision of protection of the future, including enhanced capacity to and assistance, pursuant to the Agenda for operate in situations of insecurity. Protection (AfP). As part of the effort to institutionalize 2. Promote refugee self-reliance in stabilized results-based management and mobilize action situations as a critical step in the pursuit of durable within the organization around a shared set of solutions. strategic objectives, the High Commissioner has established a series of measurable performance 3. Pursue voluntary repatriation and sustainable targets for 2006, articulated as quantifiable reintegration, resettlement or local integration for results, around a set of revised Strategic Objec- refugees, with a special focus on those in pro- tives for 2006. The revised Strategic Objectives tracted refugee situations, and with particular ref- equally reprise the Agenda for Protection and con- erence, where applicable, to the strategies, tribute to the achievement of the Millennium mechanisms and tools developed in the Framework Development Goals. These targets will be the for Durable Solutions and Convention Plus initiatives. focus of decision making and resource allocation in 2006. 4. Strengthen UNHCR’s preparedness and response capacity to assist States in responding to emergencies.

5. Strengthen UNHCR’s support for collabora- tive efforts to comprehensively address situations of internal displacement.

6. Build effective partnerships through partici- patory planning involving all stakeholders, com- prehensive assessment of needs, and formulation of strategies that utilize the full range of resources available.

7. Advocate for the inclusion of persons of con- cern to UNHCR in the Millennium Development Goals (MDGs), in particular, the initiatives for a global partnership for development (MDG8).

UNHCR Global Appeal 2006 16 2006 Strategic objectives objectives

Advocate for, and support governments in the creation and maintenance of an international protection UNHCR’s global strategic regime (GSO # 1): • Improve policy and operational response to situations of mixed flows of asylum-seekers and migrants. • Increase respect and tolerance for asylum-seekers and refugees. • Preserve asylum space. • Enhance protection capacity in host countries. • Address situations of statelessness more effectively. • Improve the content and usage of ExCom conclusions.

Ensure international standards of protection for girls, boys, women and men of concern to UNHCR are met (overall mandate objective): • Improve physical security and reduce incidents of violence, in particular prevent and respond to sexual and gender-based violence. • Promote gender equality and women’s empowerment. • Increase and improve level and quality of registration of persons of concern. • Prevent malnutrition. • Reduce the prevalence and impact of HIV/AIDS. • Safeguard the right to education. • Ensure social and economic rights are secured and opportunities for self-reliance maximised. • Integrate persons of concern to UNHCR in MDG programmes.

Pursue voluntary repatriation and sustainable reintegration, resettlement or local integration for refugees, with a special focus on those in protracted refugee situations (GSO # 2, GSO # 3, GSO # 7): • Support, facilitate or promote voluntary repatriation movements. • Enhance resettlement as a protection tool and durable solution. • Strengthen local integration as durable solution and promote refugee self-reliance in stabilized situations. • Develop comprehensive strategies for refugees in protracted situations in which multiple durable solutions are required, in particular for Somali and Afghan refugees, and establish relevant partnerships for durable solutions for Africa programme.

Pursue management reform to enhance the quality, effectiveness and efficiency of UNHCR’s operations (GSO # 4, GSO # 5, GSO # 6, GSO # 8, GSO # 9, GSO # 10): • Strengthen UNHCR’s operational protection capacity. • Strengthen UNHCR’s preparedness and response capacity. • Strengthen UNHCR’s support for collaborative efforts to comprehensively address situations of internal displacement and implement the agreed pilot projects. • Strengthen partnership through improved branding, fund raising, communication and relationships with NGOs. • Institutionalise results-based management as a fundamental accountability mechanism. • Enhance the use of standards and indicators for planning and measuring the impact of UNHCR’s operations. • Prepare and initiate implementation of a workforce management strategy aiming to enhance the efficiency of the organization, the fulfilment of staff and gender balance. • Streamline, rationalise reporting and financial and budgetary rules for resource allocation. • Continue roll-out of the Management Systems Renewal Project (MSRP) and achieve efficiency and productivity gains.

17 UNHCR Global Appeal 2006 NC’ lblstrategic global UNHCR’s objectives

• Ensure the provision of sanitary materials to all Measurable Performance women and girls of reproductive age, in all Targets for 2006 assistance programmes (AfP Goal 6, Objective 1). • “Project Profile” has been rolled out to all UNHCR operations registering refugees and Operations (Protection and Assistance) others of concern, and continued registration • Procedures for channeling asylum claims, iden- support is provided by PGDS, DIPS and DIST tifying needs and realizing proper responses (AfP Goal 1, Objective 11). and solutions will be developed by UNHCR in • Tracing mechanisms will have been instituted cooperation with States and other relevant for 100 per cent of unaccompanied and sepa- actors in all regions receiving refugees within rated registered refugee children in mixed flows (AfP, Goal 1, Objective 2 and Goal 2, in collaboration with the responsible agencies. particular Objective 1). • In operations receiving food aid and recording • The quality and consistency of UNHCR’s high malnutrition rates, steps are taken in col- mandate refugee status determination (RSD) laboration with WFP to reduce the acute processes will be strengthened in the 15 coun- malnutrition rate to less than 10 per cent (mea- tries accounting for 90 per cent of UNHCR’s sured by Z score). global RSD operations through in-house • At least 75 per cent of refugees in camps have capacity-building activities including training access to culturally appropriate HIV and AIDS and technical support (AfP Goal 1, Objective 2). information-education-communication (IEC) • 100 per cent of UNHCR operations will have materials. integrated, from the outset, self-reliance and • At least 75 per cent refugees have access to empowerment strategies for refugees in their antiretroviral therapy (ART) when ART is avail- assistance programmes (AfP Goal 5, Objective 7). able to surrounding local host populations. • Comprehensive durable solutions strategies, in • School enrolment of refugee children in camps which the strategic use of resettlement and will be increased by 10 per cent at primary level local integration have their proper place, will be with gender parity (AfP Goal 6, Objective 2). jointly developed by UNHCR and relevant actors in 100 per cent of operations with pro- Management tracted refugee situations (AfP Goal 5, in particular Objective 1). • Complete the first of two phases of the action • Offices in Myanmar, Romania, DRC and the CIS plan to increase UNHCR’s global emergency countries including Russia will integrate state- response capacity (including non-food relief lessness activities in their country operations items, vehicles, office accommodation, and plans and develop strategies for resolving situ- staffing surge capability) so as to have in place ations of statelessness, and in Bangladesh, a capacity to respond to an emergency of significant progress will be made towards end- 500,000 persons. ing the protracted statelessness situation of • New fund raising strategy agreed and imple- approximately 300,000 persons (Biharis) (AfP mentation started with further delegation to Goal 1 Objective 12). field representatives, including country- • 100 per cent of UNHCR operations will have in specific strategies that take into account bilateral place standard operating procedures to pre- and other initiatives. vent and respond to sexual and gender-based • Results-based Management Framework and violence (AfP Goal 4, Objective 4 and Goal 6, Objec- strategy for implementation developed, agreed tive 1). and implementation underway in the areas of • A total of 94 countries will have participated in strategic and operations planning, and perfor- the roll-out of the age, gender, and diversity mance management. mainstreaming and will reflect the outcomes in • An integrated workforce strategy is developed project submissions and country operations together with policies and procedures which plans (AfP Goal 6). enhance the speed and effectiveness of

UNHCR Global Appeal 2006 18 organizational response and better meet the Absence Management, E-Performance needs of the organization and aspirations of developed by September 2006. objectives staff. – Payroll module developed by October 2006. • Minimum standards guidelines for field living – Change Management Process adopted UNHCR’s global strategic and working conditions are adopted and mech- including a mechanism for measuring anisms are put in place for field offices to impact of MSRP in terms of increased effi- implement them. ciency and productivity developed by • Management Systems Renewal Project: February 2006. – Human Resources Modules, Labour Admin- – Supply Chain field roll-out completed in 90 istration, Career Planning, Health & Safety, sites in five regions.

19 UNHCR Global Appeal 2006 Providing international protection

NHCR’s mandate of ensuring international protracted situations do not suffer in comparison to Uprotection to refugees and to work with larger operations that have greater public States to find solutions to their problems is attention. An element of this problem is the practice executed in an ever-changing and complex of considering core protection functions as environment in which a host of political, security- administrative overhead costs rather than essential related, economic and social factors influence protection service costs that must be adequately and undermine the institution of asylum. As the resourced. The management of protection functions, Secretary-General stressed in his report In Larger particularly where resources are limited, is an Freedom, security, development and human rights important area of concern, as is ensuring that the are inextricably linked and must be addressed expertise of protection staff is sufficient and together. In today’s world of interconnected commensurate with the responsibilities placed threats and challenges, it is vital that UNHCR profile upon them. The risks to staff safety and security itself as the protection agency it is mandated to inherent in “doing” protection have increased, be. Protection must be strengthened as the and this often poses a significant limitation on the cross-cutting culture that impacts on all UNHCR’s ability of the Office to implement its protection activities of both programme delivery and policy mandate. development. Protection cannot be regarded as a separate activity, but rather as the guiding principle After 11 September 2001, States have increas- for all UNHCR staff. ingly focused on security measures and migration control. In this environment, UNHCR’s focus is to New conflicts continue to produce outflows of help States to devise a principled approach to refugees, particularly in Africa, and solutions to managing asylum which respects legitimate many large-scale and long-standing refugee situations national concerns, but allows those who need it have remained elusive. Problems such as illegal access to effective protection and adequate con- migration, smuggling and trafficking of people, as ditions of stay in host countries. well as the security dimensions of refugee situations in some regions have, in addition, increasingly Through the process of the Global Consultations led to a politicization of the institution of asylum. on International Protection launched in 2001, There is a growing perception that burdens are UNHCR has put much effort into reinvigorating disproportionately spread and a sense among the commitment of States to the central tenets of many States that they lack adequate tools, or that the 1951 Refugee Convention, while promoting the existing instruments are insufficient, to manage the development of new protection approaches their burdens. Consequently, more and more to address issues not adequately covered by the States are reluctant to make asylum available or Convention. The ensuing Agenda for Protection to offer it on more generous terms. established a six-goal programme of action, which continues to be the pivotal guidance for concrete UNHCR’s efforts to improve the quality of asylum, action by States, UNHCR and its partners, with to curtail further reductions in entitlements to the aim of giving new impetus to more resolute asylum-seekers and refugees, and to prevent the implementation of the protection framework. The spread of unjustified measures to deter them from Agenda for Protection has proven an important seeking international protection, take place amid strategic initiative that informs and guides the many challenges, some new, and some lingering. delivery of protection at the field level. First and foremost among these is the challenge of ensuring that the resources at the disposal of The Convention Plus initiative, aimed at improving protection are adequate to the task, and that refugee protection and finding solutions through

UNHCR Global Appeal 2006 20

multilateral agreements, has delivered concrete migratory flows. UNHCR is pursuing a variety of results in implementation of the Agenda for Protection initiatives aimed at addressing the interface protection goal to build capacities to receive and protect between asylum and migration so that people in Providing international refugees. The initiative’s projects will be need of protection find it. mainstreamed into UNHCR country programmes. Within the context of Convention Plus, the More resolute responses to the root causes of Strengthening Protection Capacities Project (SPCP) refugee movements are another objective of the was initiated in 2005 to develop a comprehensive Agenda for Protection. Protracted situations of state- methodology to strengthen the capacity of States lessness are recognized as one such cause. to protect refugees. The methodology consists of UNHCR’s action with regard to statelessness in a protection gaps assessment, consultations with 2006 will be twofold: on the one hand, it will national partners, and the development of a increase its research capacity, in partnership with strategic plan with project interventions. UNHCR relevant academic institutions, so as to better will work towards incorporating it into the annual identify and profile stateless populations; on the operations planning processes for all its operations, other hand, it will seek to improve the protection while concrete projects in the pilot countries framework through advocacy, direct legal and Kenya, the United Republic of Tanzania, Burkina material assistance, as well as through the promotion Faso and Benin will be implemented. of a consistent United Nations inter-agency response to protracted statelessness situations. UNHCR’s clearly defined responsibilities for refugees In particular, UNHCR will collaborate with the and other persons of concern do not extend to Office of the United Nations High Commissioner migrants generally. It is, at the same time, a fact for Human Rights (OHCHR), UNICEF and UNIFEM, that refugees often move within broader mixed and will assist concerned States to integrate or

Colombia: Much of the forced displacement occurs in isolated communities. Conscious that presence is the most important element in ensuring the protection of those at risk of displacement, UNHCR staff try to reach communities in remote areas, using a variety of transport means. UNHCR / A. Menendez

21 UNHCR Global Appeal 2006 rvdn international Providing protection

reintegrate marginalized communities by developing which may have implications on resources and programmes favouring education, housing and staffing. UNHCR is exploring with its Inter-Agency income generation, especially in partnership with Standing Committee partners effective and practical UNDP and ILO. ways to deliver on this added responsibility, mindful of the need to ensure that this will in no way As the protection challenges are many and the undermine its ability to protect and assist available resources inadequate, partnerships are refugees. indispensable for UNHCR. Protection partnerships are promoted with a wide variety of actors ranging The achievement of UNHCR’s protection goals from States, other United Nations, intergovernmental requires a concerted effort from the organization and non-governmental organizations, judges, to enhance the protection capacity in field opera- parliamentarians and journalists, to the military, tions. As a starting point, the Office is reforming peacekeeping forces and the corporate sector. its planning and reporting procedures, to ensure For example, in the area of food assistance to that programme activity is not an end in itself, but refugees and returnees, the Office pursued its rather a means to achieve protection objectives; close partnership with WFP, working to tackle the as well as to reduce the sometimes burdensome many protection problems which arise as a result amount of reporting which detracts from the ability of food deficits. UNHCR also works towards of staff to maintain an adequate protection empowering refugee communities to meet their presence where it is most needed. own needs. Supporting linkages among NGOs, academics and other concerned actors in the Enhancing protection capacity requires the place- North and the South is also an important feature ment of the right staff in the right place at the right of partnership arrangements for UNHCR. Efforts time. Protection management goes hand in hand are also being made to enhance UNHCR-NGO with protection delivery. Training and learning collaboration in the resettlement process as a means activities are therefore of the essence to support of further increasing resettlement opportunities for this process. The delivery of protection training to refugees. all staff will be intensified, in addition to the devel- opment of function-specific training for protec- The situation of the world’s roughly 25 million tion staff and protection managers. The Office will internally displaced persons (IDPs) is one area work on clarifying the standards related to the which requires strong cooperation between United number and profile of protection staff needed in Nations agencies. A Humanitarian Response field operations. In addition, protection staff Review commissioned by the Emergency Relief deployment schemes are aimed at a temporary Coordinator in 2005 to assess gaps in the increase in capacity to fill gaps on the ground. response to humanitarian emergencies made a series of recommendations to improve on areas Finally, the creation of the post of Assistant High such as more predictable funding, strengthened Commissioner for Protection will not only support coordination mechanisms, better preparedness UNHCR’s overall effort to strengthen the capacity measures and common services to alleviate the of the organization in protection and durable plight of the internally displaced. With UNHCR’s solutions; it is proposed in the context of struc- long-standing expertise in issues of forced tural changes in the Office aimed at bridging the displacement and in line with its operational gap between protection and operations, and experience in selected IDP situations, UNHCR has between Headquarters and the Field. An Assistant been fully committed to this process and will High Commissioner for Protection will oversee a assume the cluster lead for protection, camp re-alignment of units and services with the primary coordination and management, and emergency objective of creating a more service-oriented shelter (see details under “Working in partnership structure, focused on providing effective support with others)”. to the field, both to UNHCR and its partners, in providing protection to and seeking durable This increased responsibility and accountability solutions for all persons of concern to the Office. for internally displaced people poses a challenge

UNHCR Global Appeal 2006 22 Finding durable solutions

ne of the principal goals of international pro- development of new arrangements and tools. It Otection is the realization of durable solutions recognizes that the key to achieving durable solu- for refugees. Yet, millions of refugees around the tions lies in the cooperation among countries of world are stranded in long-standing situations of origin, host States, UNHCR and its partners as well exile with no foreseeable end to their plight. In the as refugees and their host communities. Initia- absence of durable solutions, refugees face a host tives such as “Convention Plus” and the Frame- of protection concerns, many of which manifest work for Durable Solutions for Refugees and Persons of themselves in camp settings. The search for durable Concern were developed as a result. solutions therefore constitutes an important element of UNHCR’s efforts to provide interna- Countries hosting large refugee populations are tional protection to refugees and other persons of frequently amongst the least developed in the concern. world and refugees fleeing to these countries often find themselves living in remote, neglected In 2002, UNHCR launched a process of Global areas where high levels of poverty prevail. In addi- Consultations on International Protection, which tion, although their lives may not be in immediate gave particular attention to improving the tools of danger, refugees may face limitations on their protection. The intention was to foster a more freedom of movement, employment and, in some reliable and effective international response and cases, education, stifling their capacity to become ensure greater equity in the sharing of respon- productive members of a society and, conse- sibilities and burdens. The resulting Agenda for quently, perpetuating poverty. For the host coun- Protection made the search for comprehensive try, the presence of refugee populations for durable solutions an important element of its protracted periods has a long-term economic and programme of action, and called for the social impact that, if not adequately addressed,

Somalia: Returnees from Ethiopia arrive at Harrirad village, “Somaliland”. Harrirad had been almost entirely destroyed by the war, but now, reconstruction of villages and infrastructure is taking place at a rapid pace. UNHCR / B. Heger

23 UNHCR Global Appeal 2006 idn ual solutions durable Finding

can exacerbate situations of conflict and insecu- For refugees who cannot go home, some refugee- rity. Developing countries, especially the Least hosting countries offer the possibility of local Developed Countries (LDCs) need to be sup- integration. Local integration is a legal process, ported in their efforts to assist and protect refu- whereby refugees are granted a progressively gees, in ways that improve refugee self-reliance wider range of rights or entitlements by the host and that serve to reduce poverty amongst State commensurate with those enjoyed by its cit- refugee-hosting communities. izens. Over time the process should lead to per- manent residence rights and, in some cases, the The causes of protracted refugee situations are acquisition of citizenship in the country of asy- political, and solutions must be sought in this lum. Local integration is also an economic pro- arena. In the meantime, a facilitating element of cess, as refugees become progressively less any durable solution is building the capacity of reliant on State aid and are able to contribute to the refugees to attain self-reliance by enhancing the economic life of the host country, and a social their skills and capacities, and providing them and cultural process of acclimatization in the with the necessary tools (e.g. loans, land, and society that has received them. income-generating projects). Evidence suggests that the most effective means to foster self- In situations where the State opts to provide reliance within refugee populations is to focus on opportunities for gradual integration of refugees, the circumstances they face and remove the UNHCR has developed the Development obstacles to their productivity. Consideration also through Local Integration (DLI) strategy. DLI needs to be given to the human and material aims to solicit additional development assistance assets refugees bring with them and how these to support the local integration of refugees. Cen- can be utilized to support development. tral to the success of this strategy is the attitude of the host government and the local authorities With this in mind, UNHCR developed the Frame- as well as the commitment on the part of the work for Durable Solutions with the aim of providing donor community to provide additional assis- methodological models to facilitate the targeting tance. The Zambia Initiative, launched in 2001, is of development assistance more effectively to one example of a successful effort to enhance the underpin and sustain solutions for refugees. The self-reliance of refugees and provide support to Development Assistance for Refugees (DAR) the communities that host them. An evaluation of initiative seeks to address protracted refugee situ- the Zambia Initiative programme will be con- ations in an integrated manner by improving bur- ducted in late 2005 and early 2006 to document den sharing for countries hosting large numbers good practices and lessons learned. In addition, of refugees, promoting self-reliance for refugees the Initiative will be extended to other parts of pending durable solutions, and improving the Zambia in 2006. quality of life for host communities. In Uganda, the Government and UNHCR launched the An important landmark was reached in October Development Assistance to Refugee Hosting Areas 2005 at the Fifty-sixth Session of UNHCR’s Executive programme to improve food security, access to Committee with the adoption of the Executive social services and income-generating opportu- Committee Conclusion on Local Integration, con- nities for refugees and host communities. firming the support of States for local integration Through this project, both refugees and local as a durable solution and recognizing the impor- communities have been active participants in the tance of international cooperation to build the planning and implementation of their own devel- capacity of developing countries and assist them opment agenda. The DAR programme in Uganda in integrating refugees. The Conclusion also builds on the earlier gains made through the stresses the importance of including refugee Self-Reliance Strategy programme, which hosting areas in national development plans and achieved significant improvements in food pro- strategies for sustainable funding. duction, access to social services, provision of training and increased consultations between Voluntary repatriation, which entails the return refugees and host communities. of refugees in safety and dignity to their country of

UNHCR Global Appeal 2006 24 origin, is by far the preferred durable solution available to field resettlement operations. In order today. However, in post-conflict situations, the to promote resettlement both as a protection tool reintegration of returnees poses considerable and as a durable solution, UNHCR has established challenges. The transition from short-term regional resettlement hubs in Africa in past years. Finding durable solutions humanitarian assistance in support of reintegra- In 2006, the capacity of the regional resettlement tion to longer-term reconstruction is rarely a hubs will be expanded and similar hubs will be smooth process. In the politically fragile environ- established in other regions of the world. ment that frequently characterizes post-conflict situations, returnees are often left in deprived Another initiative aimed at developing new ways conditions for extended periods without means or of planning and bringing about durable solutions opportunities to better their situation. As a result, for refugees is Convention Plus. Launched in 2003 roughly half of all post-conflict situations slide and steered by the Convention Plus Unit, the ini- back into violence within five years. tiative has contributed to the methodology underlying the development of comprehensive In response, UNHCR developed the Repatriation, approaches. In January 2006, the work of the Unit Reintegration, Rehabilitation and Reconstruction will be mainstreamed within Headquarters organi- (4Rs) approach as a means to bring together zational units and the Field as originally foreseen. humanitarian and development actors and funds. One example of how Convention Plus is being The aim is to ensure that greater resources are mainstreamed is the yearly review of protracted allocated to create an environment conducive to refugee situations that will commence in 2006, sustainable repatriation. This initiative has been with a view to identifying opportunities for resolv- piloted in Afghanistan, Eritrea, Sierra Leone and ing long-running crises. Based on the outcomes of Sri Lanka, where UNHCR established linkages with this review, collaborative and comprehensive governments, development actors such as UNDP, strategies can be developed, including efforts to the World Bank, UNICEF and WFP, the donor bridge the gap between relief and development in community and bilateral aid agencies. Subsequently, cooperation with the refugee-hosting countries, UNHCR utilized the principles behind the “4Rs” international development agencies and relevant approach to establish or reorient reintegration donors. programmes in Angola, the Democratic Republic of the Congo, Liberia, Somalia and Sudan. In 2005 Current examples of such planning include the in Angola, for example, the Government, consultations on the Comprehensive Plan of supported by UNHCR, launched the Sustainable Action for Somalia and the Comprehensive Solu- Reintegration Initiative, which targets key tions for Afghans. The Comprehensive Plan of districts in areas receiving the largest numbers Action for Somalia, initiated in August 2004, will of returnees. Detailed assessments highlighting benefit returnees, refugees, internally displaced gaps in social services, transport infrastructure persons (IDPs) and other groups with specific and economic opportunities as well as identifying needs in communities where returnees and IDPs key development priorities, were prepared in col- live. UNHCR is also involved in discussions with laboration with provincial and local authorities, UNDP on a new collaborative framework for durable traditional leaders, UN agencies, NGOs, returnee solutions in Africa. representatives and other key actors. Project planning for 2006 is now under way. Another example is the Mexico Plan of Action, adopted in November 2004. It proposes concrete Finally, resettlement can be used as an effective actions to achieve comprehensive solutions to tool to achieve equitable burden and responsibil- forced displacement. These include working to ity sharing. In 2006, UNHCR will focus on further achieve self-sufficiency and local integration in developing the strategic use of resettlement, link- the cities (the “Cities of Solidarity” programme), ing it to the identification of other durable solu- stimulating social and economic development in tions, particularly when seeking comprehensive border areas to benefit refugees and the local solutions for refugees in protracted situations. population (the “Borders of Solidarity” programme), Also during 2006, more staff will be made and establishing a programme of resettlement in

25 UNHCR Global Appeal 2006 idn ual solutions durable Finding

Latin America as a way to ease pressure on those UNHCR hopes that by drawing on the capacity of countries receiving large numbers of refugees (the refugees to sustain themselves, creating partner- “Resettlement in solidarity” programme). The Plan ships that foster the provision of development also includes a comprehensive programme to assistance to the countries that host them, and assess the needs of refugees and of local host promoting burden-sharing between States, the communities, especially in border areas of institution of asylum will be strengthened and neighbouring countries, allowing for complemen- improved and possibilities for more durable tary humanitarian and development-oriented solutions will be created. activities.

UNHCR Global Appeal 2006 26 Finding durable solutions

27 UNHCR Global Appeal 2006 Funding the needs of the world’s refugees

Planning and budgeting these are usually much greater than the resources available. A careful review and prioritization exer- cise is then carried out to match the assessed ased on the High Commissioner’s Global Stra- needs with resources. Btegic Objectives for the organization, Regional Bureau Directors established related regional goals UNHCR is fully aware that it can only address part in order to help guide country offices with 2006 oftheoverallneeds,andthatitmustcountonthe programming and budgeting. Country offices, in contributionsmadebyothers-centralandlocal turn, undertook comprehensive needs assess- governments, NGOs, UN agencies, intergovern- ments for each operation, in close cooperation mental organizations and host communities – if it with their partners – governments, NGOs, other UN wants to ensure that refugees and others of con- agencies, and beneficiaries – so as to estimate the cern are protected and assisted. It is therefore cru- overall assistance and protection needs of refugees, cial for UNHCR to ensure that the most urgent and returnees, internally displaced people and others essential needs are addressed, and that the contri- of concern. Since 2004, UNHCR has been con- butions made by others are well coordinated with- ducting this exercise in an increasingly systematic out duplication of efforts in order to maximize the manner, identifying gaps in the assistance and available resources. Figure 1 illustrates UNHCR’s protection regime by measuring actual needs requirements in relation to the global needs of ref- against internationally accepted standards. While ugeesandothersofconcern,aswellastheportion the methodology requires further refining, particularly of those overall needs being addressed by others. to adapt it to non-camp situations, the resulting It also indicates the remaining, unmet needs for picture still highlights the challenge UNHCR and 2006, which – to the extent they could be quanti- others face in addressing the gaps identified, as fied – amount to some USD 723 million.

Figure 1 - 2006 Overall needs assessment Annual Programme Budget (including Global programmes, excluding Headquarters)

USD billion USD 2.5 a) Overall assessed needs: 2,350,596,402

b) Expected unmet needs (a - c): 723,235,054 2.0

c) UNHCR + partner contributions 1.5 of USD 761,531,748: 1,627,361,348

1.0 e) Field submissions: 875,195,800

f) Approved 2006 budget: 865,829,746

0.5

0

UNHCR Global Appeal 2006 28 world’s refugees Funding the needs of the

UNHCR’s Executive Committee meeting in October 2005 in Geneva, where budget and funding are two of the issues discussed. UNHCR / S. Hopper

Based on the needs assessment processes under- requires that UN agencies and other members of taken at the field level, the submissions from the Inter-Agency Standing Committee (IASC) work UNHCR’s country offices and Headquarters for together in the framework of a Consolidated their 2006 programmes totalled some USD 1.16 Appeals Process (CAP). The CAP, led by the UN billion (of which USD 875.2 million pertained to Humanitarian Coordinator, results in the estab- the field and global programmes). Following a lishment of a common humanitarian action plan prioritization exercise and informal consultations for a given country or region. It provides both a with donors, UNHCR’s Annual Programme Budget common assessment of needs as well as a strat- for 2006 was approved by the Executive Commit- egy for humanitarian response and identifies the tee of the High Commissioner’s Programme at roles and responsibilities of each participating USD 1.14 billion (of which USD 865.8 million per- agency. The process also usually leads to the issu- tains to the field and global programmes). The ing of a Consolidated Appeal (CA) which presents 2006 budget is some USD 156 million higher than the projects and programmes carried out by dif- in 2005, with the increase mainly for programmes ferent organizations to address the most urgent in Africa. This is mostly due to the integration into needs. UNHCR, as a full member of IASC and the the Annual Programme Budget of activities relating relevant UN Country Teams (UNCTs), is an active to the return and reintegration of Burundian refugees participant in the CAP, and will present its require- and the Chad operation, which had been budgeted ments in 14 of the 15 Consolidated Appeals previously as supplementary programmes (see planned for 2006, where it has both a mandate next page). Programmes in other areas of the world and programmes. have not registered major upward changes, and it is noteworthy that there will be no increase in the UNHCR’s Annual Programme Budget includes an number of headquarters staff for 2006. amount for the Operational Reserve which, as in the past two years, has been split into two cate- In complex emergencies, meeting the needs of gories. Category I, amounting to USD 75.8 million those who suffer often goes beyond the compe- in 2006, corresponds to additional requirements tency of UNHCR or any other single agency and that may arise due to emergencies or other

29 UNHCR Global Appeal 2006 udn h ed fthe of needs the Funding ol’ refugees world’s

2006 Annual Programme Budget requirements by subregion and activities (as a percentage of the total)

%

18

16

14

12

10

8

6

4

2

0

South Asia

West Africa

North Africa

Middle East

Central Asia

Headquarters

Eastern Europe

Southern Africa

Western Europe

Central America

South-West Asia

Global Programmes

South-Eastern Europe

East and Horn of Africa

Northern South America

Southern South America

East Asia and the Pacific

Junior Professional Officers

Operational Reserve Category I

Operational Reserve Category II

North America and the Caribbean

Central Africa and the Great Lakes

Central Europe and the Baltic States

unforeseen developments. Category II, amount- after the approval of the annual programme): the ing to USD 50 million, is being used, on a trial Democratic Republic of the Congo, West Darfur, basis, exclusively to accept additional contribu- South Sudan, and Iraq. At the time of writing this tions for expanding or for undertaking new activi- Global Appeal, the requirements for supplemen- ties which fall within UNHCR’s mandate but which tary programmes for Iraq, West Darfur and South are not included in country budgets. While Sudan had not yet been determined and will be UNHCR does not actively raise funds for Category communicated later on through supplementary II of the Operational Reserve, the Office hopes appeals. Other supplementary appeals may be that Category II will allow it to strike a balance issued in the months to come, while appeals for between overall needs, resource limitations and funds for programmes relating to internally dis- specific donor interests to address unmet placed people will be made through Inter-agency needs through additional contributions. Initially Consolidated Appeals. established as a pilot project until 2005, the use of Category II of the Operational Reserve has been extended for another year so as to allow The fund raising process UNHCR to gather more data before a final decision is made on whether to retain this facility. Once the Annual Programme Budget is approved In addition to the Annual Programme Budget, the by ExCom, UNHCR is able to start raising funds for 2006 Global Appeal includes the 2006 compo- its programmes in the following year. UNHCR is nent of several supplementary programmes (sup- virtually completely dependent on voluntary con- plementary programmes are those established tributions from governments, intergovernmental

UNHCR Global Appeal 2006 30 and non-governmental organizations and private Private sector donors accounted for USD 18.8 mil- donors, with only 2.9 per cent of its total require- lion, about two per cent of the contributions ments allocated from the United Nations Regular received, in 2004. In 2006, UNHCR will strive to world’s refugees Budget. Despite this dependence on voluntary increase the funds raised from non-governmental Funding the needs of the contributions, UNHCR’s donor base is quite nar- sources, including individual donors and some row, with three governmental donors providing international corporations, to further diversify the almost 50 per cent of UNHCR’s contributions and Office’s donor base. Activities will focus on ten providing close to 80 per cent in 2004. selected countries to ensure the most efficient use of UNHCR’s limited investment resources. Pri- UNHCR will make every effort to maintain the loy- marily, the Office will concentrate its efforts on alty and support of its regular donors. At the same fundraising drives to promote monthly giving as time, the Office will continue its efforts to widen the key long-term sustainable source of income, its donor base and establish or renew contacts developing marketing materials, such as press with a larger number of governmental donors and releases and TV spots, for national associations encourage them to provide a minimum level of and country offices to use for their fund raising financial support. In addition, UNHCR has been appeals for emergencies. In the corporate arena, seeking support from “non-traditional” sources of UNHCR will further develop existing and new funding within governments and multilateral orga- international partnerships aiming at increasing its nizations, exploring budget lines usually linked financial resources, as well as gaining access to with development activities, migration, or justice essential human and technical expertise. Finally, and home affairs, as well as from municipalities or the Office will consolidate the work being under- decentralized government authorities. taken with major foundations.

2004 total contributions to UNHCR - Top donors1

Mio. USD

325

300

275

250

225

200

175

150

125

100

75

50

25

0

2

Italy

Japan

Spain

Ireland

France

Finland

Norway

Canada

Sweden

Belgium

Australia

Germany

Denmark

Switzerland

Netherlands

Luxembourg

United Kingdom

UNDG Iraq Trust Fund

European Commission

United States of America

1 Includes only contributions above USD 4 million. 2 Includes central Government and several autonomous communities.

Private donors in the Netherlands

31 UNHCR Global Appeal 2006 udn h ed fthe of needs the Funding ol’ refugees world’s

Obtaining the funds required to implement the and medium terms and that the response to new planned activities is a long and challenging pro- crises does not adversely affect assistance pro- cess. Fund raising for UNHCR takes place vided to meet the ongoing needs in other throughout the whole financial year and, while the situations. Office has been fortunate to be able to rely on its donors for the greater part of its requirements, At its first meeting in June 2003 in Stockholm, the there is no absolute guarantee that programmes GHD endorsed principles and good practices of will be fully funded. Obtaining early assurance of humanitarian donorship. It also established an the volume of available funds for its programmes informal implementation group to coordinate is crucial for planned activities to be sustained follow-up, of which UNHCR is an active participant. and for them not to be curtailed later on in the Since then, one of the issues GHD has been con- year because there are not enough funds to com- centrating on, and for which UNHCR had been plete them. advocating for several years, is the need to har- monize and reduce reporting requirements, Predictability and timeliness of funding results in thereby reducing costs and efforts for humanitar- greater credibility and greater confidence, not ian organizations. The annual reports of several only for the Office but also for operational part- agencies have been studied in order to determine ners who implement parts of UNHCR’s whether they could be accepted as sole reporting programmes: they know they will be able to by donor governments, including UNHCR’s Global deliver on their promises, thus guaranteeing the Report, which is already accepted by eight major desired impact. governmental donors as the only report they require from the Office. Within the context of the Early pledges allow for the smooth running of GHD principles, UNHCR, together with donors, activities, especially in emergency operations. hopes in 2006 to look at the issue of management They avoid implementation delays and enable the requirements, with a view to reviewing and Office to allocate funds adequately from the streamlining their requests for organizational beginning, maximizing the use of resources. strategy papers, logical frameworks and submis- sion formats. Finally, contributions with minimum restrictions on their use allow UNHCR to direct the funds UNHCR hopes that with this initiative, combined where they are needed most, particularly ensuring with the Office’s efforts at improving its own effi- that smaller, older and less visible programmes ciency and accountability to donors, taxpayers and activities receive as much attention as recent, and beneficiaries, the gap between needs, more visible and larger crises. programme implementation and resources will increasingly be reduced for the benefit of refugees Donors are well aware of the challenges faced by and other displaced people throughout the world. humanitarian organizations depending on volun- tary funds to carry out their programmes. Mirror- ing initiatives led by many humanitarian organizations to establish good humanitarian practices and standards, such as the Code of Conduct for Disaster Relief and the Sphere Pro- ject, in June 2003 a group of donor governments launched the Good Humanitarian Donorship (GHD) initiative to improve their response to humanitarian crises. Through this initiative, donors have been looking in particular at ways to increase the coordination of their response; to ensure it is equitable for different crises in various parts of the world; that it is delivered as efficiently as possible; that it is effective in both the short

UNHCR Global Appeal 2006 32 Total financial requirements (USD) Operations / Activities Annual Programme Supplementary 2 Total world’s refugees Budget Programme Budget Central Africa and the Funding the needs of the 190,158,104 62,780,980 252,939,084 Great Lakes East and Horn Africa 99,206,821 890,890 100,097,711 West Africa 103,900,704 0 103,900,704 Southern Africa 56,157,104 5,952,865 62,109,969 North Africa 7,485,097 0 7,485,097 The Middle East 21,519,221 0 21,519,221 South-West Asia 101,306,261 0 101,306,261 Central Asia 6,743,543 0 6,743,543 South Asia 22,642,389 0 22,642,389 East Asia and the Pacific 31,205,144 0 31,205,144 Eastern Europe 29,943,578 0 29,943,578 South-Eastern Europe 45,141,536 0 45,141,536 Central Europe and the 15,729,025 0 15,729,025 Baltic States Western Europe 19,343,787 0 19,343,787 North America and the 8,508,827 0 8,508,827 Caribbean Central America 2,765,088 0 2,765,088 Northern South America 17,892,192 0 17,892,192 Southern South America 4,110,221 0 4,110,221 Headquarters1 145,143,981 1,072,396 146,216,377 Global programmes 82,071,104 0 82,071,104 Total programmed 1,010,973,726 70,697,131 1,081,670,858 activities Operational Reserve 75,823,273 0 75,823,273 Category I Operational Reserve 50,000,000 0 50,000,000 Category II Junior Professional 8,500,000 0 8,500,000 Officers GRAND TOTAL 1,145,296,999 70,697,131 1,215,994,130

1 Includes an allocation of USD 32,873,515 from the UN Regular Budget. 2 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. The Supplementary Programme Budget does not include a 7% support cost (USD 4,873,731) that is recovered from each contribution received to meet indirect costs in UNHCR Field and Headquarters.

33 UNHCR Global Appeal 2006 Working in partnership with others

hile UNHCR’s work is guided by various provides a framework for common humanitarian WGeneral Assembly Resolutions, no single action in complex emergencies. document captures the extent to which UNHCR cooperates with other actors in fulfilling its func- Many examples of partnership initiatives are tions. With a mandate to protect across the world, described elsewhere in this Global Appeal; this 19.1 million refugees and other persons of con- chapter will simply highlight key examples that cern, asylum-seekers and internally displaced show UNHCR’s commitment to building people, the United Nations High Commissioner partnerships. for Refugees needs to work with a wide variety of donors and partners to adequately fulfil its role. These range from governments to non- United Nations system governmental organizations; UN sister agencies; international and intergovernmental organizations; initiatives international financial institutions; the Red Cross/Red Crescent Movement; the private sec- Through its office in New York, UNHCR has estab- tor; civil society and refugees and their host lished close cooperation and coordination on communities. issues of strategic importance to UNHCR with the larger UN system based in New York: the UN The concept of inter-agency cooperation and Secretariat and other agencies, programmes and partnership has evolved over time, from cooper- funds, as well as the General Assembly, the Security ating with NGOs and some government agencies Council, the Economic and Social Council and as implementing partners, to a collaborative other entities accredited to the United Nations. In mode of work which recognizes the enormous 2006, the New York Office will ensure that the contributions other agencies and organizations, issue of forced displacement remains at the fore- as well as host and donor governments, make to front of the UN agenda. the refugee cause, complementing and improving on UNHCR’s efforts to provide international pro- During 2006, the New York office will follow the tection, assistance and durable solutions to those implementation of the Outcome Document agreed who need them most. Partnerships allow UNHCR to at the World Summit in September 2005. One to ensure that refugees have their needs outcome of particular interest to UNHCR is the addressed; that violence against them is con- establishment of a Peace-Building Commission tained; and that initial rehabilitation translates and a Peace-Building Support Office, both due to into longer-term development. UNHCR places a be operational in early 2006. The Office will follow high premium on working collaboratively with these developments closely to ensure that durable partners and in recent years has made significant solutions for displaced populations, and particu- changes in its programme planning process so larly efforts to sustain refugee returns, are sup- that assessments of the overall needs of refugees ported and integrated into the Commission’s work are conducted with all key partners through par- as it relates to relief, rehabilitation and recovery in ticipatory planning exercises. Likewise, the Office countries emerging from conflict. works closely with UN Country Teams and other members of the Inter-Agency Standing Commit- A related issue is the ongoing partnership tee (IASC, which includes UN agencies and, as between UNHCR and the Departments of Political “standing invitees,” IOM, the Red Cross move- Affairs and Peacekeeping Operations. Coopera- ment and representatives of NGO consortia) in tion with both departments is critical to the build- the Consolidated Appeals Process, which ing of confidence and stabilization and will help

UNHCR Global Appeal 2006 34 create better conditions for the safe return of dis- prevention. Within ECHA, the Office will be placed populations in integrated peacekeeping engaged in the implementation group on the with others missions. Strong liaison and effective coordina- protection of civilians in armed conflict. Working in partnership tion with the new United Nations Department of Safety and Security (UNDSS) has been established As a member of the United Nations Development in order to ensure the safest and most efficient Group (UNDG), UNHCR will continue to partici- field operations. pate in its proceedings to ensure that the needs of refugees, internally displaced people UNHCR will continue to participate in the pro- and returnees are included in development ceedings and activities of the Executive Commit- programmes and planning. tees on Peace and Security (ECPS) and on Humanitarian Affairs (ECHA). Under the auspices On migration-related issues, UNHCR has noted of ECPS, UNHCR will support ongoing efforts with interest the recent report of the Global related to the rule of law in post-conflict situ- Commission on International Migration and will ations and participate in the team for conflict actively participate in the preparatory discussions

Benin: Registration of newly arrived Togolese refugees by UNHCR and the Benin Red Cross. UNHCR / J. Björgvinsson

35 UNHCR Global Appeal 2006 okn npartnership in Working ihothers with

for the debate on migration and development (IMO) on issues which are relevant to its mandate scheduled for 2006 at the UN General Assembly. responsibilities, such as stowaways. The Office also remains an active participant in the Geneva Migration Group (GMG), which pro- The strong collaboration between UNHCR and vides a platform for the executive heads of UN WFP is highlighted in a separate box in this bodies concerned with migration issues, UNHCR; chapter. the Office of the High Commissioner for Human Rights (OHCHR); the International Labour Organization (ILO); the United Nations Office on The “collaborative Drugs and Crime (ODC); and the United Nations Conference on Trade and Development (UNCTAD) approach” to situations of as well as the International Organization for internal displacement Migration (IOM), to meet on a regular basis and exchange information on migration-related developments as they impact on the specific Although no single agency has a comprehensive mandate of each of the participating mandate for protection and assistance to inter- organizations. nally displaced persons (IDPs), for a large part of its history UNHCR became involved in the With regard to HIV/AIDS, UNHCR has participated in response to internal displacement in an ad hoc the development of the UNAIDS Unified Budget manner, focusing especially on those situations Workplan for 2006/2007, which includes, for the first where IDPs were mixed with or in close proximity time, conflict, refugees and the internally displaced to refugees or returnees and shared much the in various global initiatives to be carried out in the same needs. While primary responsibility for next two years. addressing situations rests with the concerned States, it is recognized that in many cases, States Bilateral initiatives with other UN agencies include are unable or unwilling to do so. In the 1990s, a stronger collaboration with the Food and consensus emerged within the IASC that a “col- Agriculture Organization (FAO). Following a joint laborative approach” to responding to internal Letter of Understanding signed in February 2005, displacement situations was the most appropri- country specific agreements in Burundi, Chad and ate response mechanism. Despite agreements on Liberia aim to enhance the productive capacity of putting the “collaborative approach” into prac- persons of concern to UNHCR in the area of tice, the results failed to match expectations, and agriculture and other rural livelihood sectors. A several efforts were made to improve it. joint statement by the High Commissioner and the Director-General of ILO in November 2004 Following what was perceived to be a slow and reflects the practical dimensions of the opera- inadequate humanitarian response to the crisis in tional partnership and seeks to encourage Darfur, the Emergency Relief Coordinator com- proactive collaboration on the ground. The main missioned an independent review of the humani- goal of the joint statement is to achieve durable tarian response to assess what the main problems solutions for displaced populations by promoting and gaps were in the system’s ability to respond sustainable livelihoods and self-reliance through to emergencies. Recommendations from the the implementation of employment-oriented review report cover areas such as more predict- strategies. Also, as part of UNHCR’s Afghanistan able funding, strengthened coordination mecha- Plus Initiative, ILO is currently conducting Afghan nisms, better preparedness measures and labour market studies in Afghanistan, the Islamic improved common services. The humanitarian Republic of Iran and Pakistan, and will second a response review also addressed the “gaps” issue technical expert to the Afghan Ministry of Labour by proposing that, in each functional sector, or and Social Protection to assist the Government in “cluster”, where the combined response of the strengthening its labour migration management humanitarian agencies could not meet the needs, capacity. UNHCR will also continue to cooperate such as water and sanitation and the protection with the International Maritime Organization of IDPs, a “lead agency” be designated to

UNHCR Global Appeal 2006 36 coordinate the efforts of all organizations active UNHCR also works closely with numerous NGOs in the sector, to assess needs and improve global and NGO umbrella groups on advocacy and policy with others response capacity. The “cluster lead” would be formulation. NGOs play a pivotal role in UNHCR’s Working in partnership accountable at the country level to the Humani- Annual Tripartite Consultations on Resettlement tarian Coordinator for ensuring the system’s over- which each year bring together States, NGOs and all delivery within its sector. At a meeting of IASC UNHCR to review ongoing programmes and poli- principals in September 2005, UNHCR was desig- cies. NGOs have also participated actively in the nated as “cluster lead” in protection, camp coor- discussions of the Core Groups of the High dination and emergency shelter. Commissioner’s Forum on the three strands of Convention Plus: the strategic use of resettlement; UNHCR is fully committed to collaborating with all irregular secondary movement of refugees and members of the IASC to address situations of asylum-seekers; and targeting development assis- internal displacement, at the request of the Emer- tance to achieve durable solutions. gency Relief Coordinator, when States are unable or unwilling to do so. However, the Office’s Every year for the past 20 years, UNHCR has been involvement with internally displaced people will holding annual consultations with NGOs the week be dependent upon two conditions: that the right preceding ExCom. This event has evolved signifi- of the affected populations to seek and enjoy asy- cantly, from a one-day meeting where NGOs lum is preserved, and that any funds required for strategized over their interventions for ExCom, to this endeavour are considered additional and are a three-day event which provides an important not diverted from refugee work. forum for NGOs to raise issues, network, and exchange views with UNHCR. Following an ExCom decision in 2004, NGOs have a greater role in the Working with NGOs consultative process in which member States pre- pare ExCom conclusions and decisions by provid- ing comments to drafts through the Rapporteur. Non-governmental organizations (NGOs) are the single largest group of UNHCR’s partners, through At UNHCR’s governance meetings, NGOs bring which one quarter of the organization’s budget is their field experience and special expertise, nota- channelled. The over 600 NGO partners around bly through the joint NGO statements delivered at the world bring valuable expertise to refugee situ- the Executive Committee and its Standing Com- ations, and UNHCR will continue its policy to mittees throughout the year. In 2006, UNHCR will forge effective partnerships with NGOs in order to work closely with the ExCom Secretariat to achieve the Office’s core priorities of advocacy, enlarge the criteria established for NGO participa- providing protection and assistance, and finding tion in UNHCR’s governance meetings to include durable solutions. Strengthened collaboration implementing and operational NGO partners. remains one of the best means to ensure that the basic needs of refugees are met. In a move to As protection partners, NGOs are involved in examine the implications of shifting from a numerous activities ranging from the provision of resource-based to a more needs-oriented and legal advice and participation with UNHCR in the results-based planning and programming exer- refugee status determination process to field pro- cise, the Office has been engaged in consultations tection monitoring and support. UNHCR’s with NGOs with the aim of establishing strategic standby arrangements with NGOs, some existing operational partnerships, as NGOs increasingly for up to ten years, enhance the Office’s capacity bring their own resources and expertise to refugee to respond to emergencies through deployment assistance, protection, and resettlement opera- of qualified staff in the areas of refugee protec- tions. This should help to improve coordination, tion, resettlement, community services, field avoid duplication of efforts and better target security, child protection, engineering, telecom- humanitarian assistance and protection. munications and other vital sectors.

37 UNHCR Global Appeal 2006 okn npartnership in Working ihothers with

Working with the World Food Programme

In the past year UNHCR and the World Food Programme (WFP) have intensified their collaboration, from high-level meetings to regional and country-level initiatives.

Both organizations work on a clear division of labour and responsibilities, which is set out in a Memo- randum of Understanding. When the refugee population in a developing country exceeds 5,000 people, WFP assumes responsibility for the provision of basic food rations – cereals, vegetable oil, pulses, sugar, salt, high-energy biscuits and nutritionally-fortified blended foods. UNHCR or the host government provide food assistance to smaller refugee groups, and for the provision of complemen- tary foods – including fresh food and therapeutic milk when necessary. WFP stores and transports food to distribution points, where partners manage final distribution to refugees and others of concern.

The objective of the intensified cooperation between WFP and UNHCR is to guarantee complete food rations for refugees, without delay or disruption, for more than two million refugees, seven mil- lion internally displaced people and one million returnees in 32 countries. The heads of the two agencies have repeatedly highlighted the importance of maintaining food assistance for refugees, internally displaced people and returnees. “Refugees in camps and remote settlements are extremely vulnerable to hunger and malnutrition, as they rely upon the generosity of their hosts and the international community for the most basic food and other items”, according to James Morris, WFP’s Executive Director, in a joint UNHCR/WFP press release in September. This was echoed by the High Commissioner who commented: “When food becomes scarce, refugees often turn to desper- ate measures to feed themselves and their families. We are particularly worried about the health of the refugee population, domestic violence and refugees resorting to illegal employment or even to prostitution, just to put enough food on the table”.

Thus, in several countries, WFP and UNHCR have launched joint advocacy actions to avert major disruptions in the supply of food. For example, in the United Republic of Tanzania, UNHCR, UNICEF and WFP produce a monthly report giving donors and other organizations an up-to-date picture of the refugees’ situation, political environment and potential problems in the supply of food and other items. Joint UNHCR/WFP press releases and media briefings served to draw attention to further ration cuts, which were avoided when donors came forward with significant cash donations soon after.

However, such efforts have not always been successful. Despite increased advocacy, consultations with donor governments, speeches, press releases and editorials, several operations were still forced to cut rations or suspend distribution of basic food items. During 2005, a shortage of dona- tions forced ration cuts not only in Tanzania, but also in Chad, Sierra Leone, Kenya and other places. Insufficient food was available to refugees returning to Rwanda and Angola, making it difficult for people who had been in exile for long periods to survive until they could reap their first harvest back home.

WFP shares UNHCR’s commitment to finding durable solutions for the world’s displaced. Its assis- tance is not only for refugees and internally displaced people living in camps and settlements but for the communities that host them. Repatriation food packages are available for refugees who go home as well as for the communities they return to, which are often suffering from precarious food security themselves. Special attention is also given to supporting schools, adult training programmes and income-generating activities with food, in the hope that refugees and returnees

UNHCR Global Appeal 2006 38 can lessen their reliance on international assistance. School feeding in areas surrounding refugee with others camps and receiving returnees has fostered integration and helped reduce tensions between Working in partnership refugees and host communities.

The two organizations work together to assess food needs and have designed distribution networks that address the concerns of refugee women and groups with special needs. Successful close col- laboration between WFP and UNHCR in repatriation operations is exemplified in the organized return of some 38,000 refugees from camps in Tanzania to Burundi in the first eight months of 2005. The repatriation was carried out in close coordination with the Governments of the United Republic of Tanzania and of Burundi. Registration and administrative arrangements for the transfer were handled by UNHCR, while WFP provided a repatriation package of three months’ rations at the return points. UNHCR and WFP are currently preparing for the repatriation of refugees to the Democratic Republic of the Congo from their camps in Tanzania. Some 35,000 out of 142,000 Congolese refugees are expected to repatriate in 2006 to areas in South Kivu where the security situation has improved.

Until durable solutions for refugees can be found, WFP and UNHCR will continue to collaborate to minimize the impact that forced displacement has on the nutrition, education and health of some of the world’s most vulnerable people.

Namibia: WFP and UNHCR staff supervising food distribution at a refugee camp. WFP / M. Spina

39 UNHCR Global Appeal 2006 okn npartnership in Working ihothers with

Collaboration with NGOs is also seen throughout addition, by helping the Office, corporations can UNHCR’s extensive field operations, as reflected actively engage their employees, customers and in the relevant operations chapters. other stakeholders to support UNHCR’s operations around the world. Corporate partnerships In a major new initiative to rally corporate support and boost private sector involvement in refugee work, in January 2005, the Office and its main cor- Over the past years, UNHCR has paid increasing porate partners set up UNHCR’s Council of Busi- attention to the role the private sector can play in ness Leaders, made up of top executives from five helping to address the plight of refugees and to major corporations that have been working with support returnee families, thus contributing to the UNHCR for several years to improve opportunities development of more stable societies. Many com- for refugees: Merck and Co, Inc., Microsoft, panies have supported UNHCR’s programmes Nestlé, Nike and PricewaterhouseCoopers. The throughout the world. Corporate supporters have Council of Business Leaders will advise UNHCR on provided much-needed funding for a specific situ- its strategy to engage with the corporate sector; ation or for a region or particular interest accord- conduct outreach and build networks to assist ing to their business priorities. Increasingly, UNHCR in maximizing sources of financial and UNHCR has sought to develop this support and other support; champion UNHCR within corpora- engage companies on a more sustainable basis, tions and in the business community and raise on the fundamental belief that the actions of cor- public awareness of UNHCR and the refugee porations, as prime movers of capital, goods and cause, particularly among sectors and individuals services, have a significant impact on the lives of not traditionally acquainted with UNHCR’s work. refugees and the societies around them. Corpora- tions are helping UNHCR with financial support More details on UNHCR’s work with its partners through employee-driven programmes (dona- can be found throughout the Global Appeal, in tions, employee giving, salary round-up, matching particular in the Coordination section of the oper- gifts), logistical support and companies’ expertise ations chapters. in key areas to enhance UNHCR’s operations. In

UNHCR Global Appeal 2006 40 Headquarters

n 2006, UNHCR will be making several changes responsibility to contribute to the overall policy Ito its headquarters structure. These changes are development of the organization, with a particular intended to bring the protection and operations focus on promoting standards and ensuring con- support functions closer together, provide faster sistency in the delivery of protection through and more efficient service to field operations and global programmes. The new structure, further- contribute to the improvement of the overall more, realigns the range of field services provided quality, effectiveness and efficiency of its operations. at Headquarters and brings together the support The changes reflect the High Commissioner’s functions for all durable solutions. This new orga- determination that protection should be nizational structure is expected to provide: strengthened as the “cross cutting culture” impacting on all of UNHCR’s programme delivery • a stronger and more coherent policy-making and policy development. They also aim to framework within the organization; strengthen and render more independent the • a more streamlined and cohesive set-up of oversight and accountability framework. protection-oriented field support services at Headquarters; and The most significant of these changes is the • a clearer and more effective Headquarters- creation of the position of Assistant High Field interface, as well as closer functional links Commissioner (Protection), charged with the horizontally at Headquarters.

UNHCR Headquarters in Geneva, Switzerland. UNHCR / S. Hopper

41 UNHCR Global Appeal 2006 Headquarters

In an effort to improve transparency and Headquarters); investigations of possible misconduct efficiency in management, the upgrading of the by UNHCR personnel; and inquiries into violent Organizational Development and Management attacks on UNHCR personnel and operations as Section (ODMS) to an independent service signals well as into other incidents causing major losses the commitment of the Office to institutionalizing or damage to the Office’s integrity, credibility or results-based management throughout the assets. organization. A strengthened policy unit will guide the Office through the new challenges it will In 2006, IGO staff will be increased, in order to face in trying to preserve asylum and protect carry out an expanded programme of inspections, displaced people in the years to come. Finally, doubling their number. IGO will also develop and the strengthening of an independent Inspector implement procedures for more rigorous and General’s Office will go a long way towards build- detailed follow-up on inspection findings and rec- ing an adequate oversight and accountability ommendations. A roster of non-IGO staff who can framework, in order to make transparency and join inspection teams will be established and accountability the cornerstone of operations training provided to those selected. In addition, management. the Investigation Learning Programme, aimed at establishing and replenishing a roster of staff that The new headquarters structure was approved by can undertake or assist with investigations, will be the Executive Committee (ExCom) in early Octo- continued in 2006. The programme and the ber 2005 and will take effect on 1 January 2006. At inspection training workshops will serve to dis- the time of writing, the final details on the new seminate information on the role and functions of structure were still being worked out. The follow- IGO to staff throughout the organization, as ing is a preliminary outline of the main functions called for by ExCom. IGO will be operating on the to be carried out by the different organizational basis of new administrative instructions that units. enhance its operational independence and include provisions for wider dissemination of inspection reports, including to ExCom. Executive Direction and The Policy Development and Evaluation Unit Management will, under the direct supervision of the High Commissioner, provide coherent guidance on The Executive Office formulates policy, ensures issues of primary importance, such as the impact effective management and oversees UNHCR’s of UNHCR’s actions on the asylum and migration operations worldwide. It informs operational units nexus and the Office’s involvement with internally of executive decisions and political develop- displaced people. ments. The Executive Office will comprise the High Commissioner, the Deputy High Commissioner, the UNHCR’s Office in New York coordinates with two Assistant High Commissioners and the Chef de the parts of the UN system based in New York, Cabinet with their staff. with the aim of ensuring that the issue of popula- tion displacement remains at the forefront of the The Inspector General’s Office, the Policy Devel- UN agenda. The budget related to the office opment and Evaluation Unit and UNHCR’s office is presented in the North America and the in New York report directly to the High Caribbean chapter. Commissioner.

The Inspector General’s Office (IGO) plays a The Deputy High central role in enabling the High Commissioner to Commissioner fulfil his internal oversight responsibilities and ensure accountability. IGO carries out three core oversight functions: inspections of the quality of The Deputy High Commissioner oversees all func- management of UNHCR operations (including tions related to management and administration

UNHCR Global Appeal 2006 42 of the Office. The Division of Financial and Supply objectives include improving resources

Management, the Division of Human Resources management systems such as the preparation for Headquarters Management, the Division of External Relations, a biennial programme cycle, results-based bud- the Division of Information Services and Telecom- geting, the development of analytical and projec- munications, the Organizational Development tion capabilities, and implementation of a new and Management Service, as well as the Legal financial accountability framework in order to Affairs Section and the Mediator, are under the enhance the Office’s capacity in management for purview of the Deputy High Commissioner. results.

The Organizational Development and The Financial Resources Service (FRS) com- Management Service (ODMS) provides analy- prises the Budget, Finance and Treasury Sections. sis and advice on management policies, proce- The Service’s main responsibilities include global dures and guidelines and assesses best practice financial planning, monitoring, control and solutions in response to specific management reporting on the use of resources. This includes concerns. ODMS will serve as secretary to the the central management of resource allocation, Results-Based Management Board. The Board, the provision of budgetary and statutory financial created in mid-2005 and chaired by the Deputy information for internal and external bodies, as High Commissioner, was established with the aim well as the provision of analysis and advice on of overseeing and guiding the implementation of budgetary and financial issues. results-based management throughout the organization. ODMS will also be responsible for In 2006, the Service will prepare UNHCR for the the design, development and implementation of transition from an annual to a biennial an operations management support software, will programme and budget cycle and will work on the coordinate organizational development projects development of results-based budgeting prin- at Headquarters and will undertake management ciples. FRS will also oversee all financial aspects and policy studies. of the implementation and optimization of the Management Systems Renewal Project (MSRP). A key initiative is the streamlining of planning, bud- Division of Financial and geting and reporting processes in conjunction with MSRP implementation. This will further Supply Management enhance the financial analysis, forecasting, and (DFSM) reporting capabilities of FRS as a central provider of value-added guidance and support towards informed management decision making at Head- The Division of Financial and Supply Management quarters and Field level. comprises the Office of the Director and Controller, the Financial Resources Service, the Supply Man- The Supply Management Service (SMS) seeks agement Service, and the Audit Service. DFSM is to provide timely and cost-effective procurement also responsible for managing costs related to the and delivery of goods and services for UNHCR services of the International Computing Centre operations including emergencies. A key objective (ICC), outsourced services provided by the United for SMS in 2006 is to make considerable savings Nations Office in Geneva (UNOG) and running through better sourcing and strategic prioritiza- costs for UNHCR headquarters buildings. The tion using powerful, real-time information now Director of the Division also serves as the Office’s available under PeopleSoft (part of MSRP). Controller and, as such, is responsible for main- taining and improving the internal management In 2006, SMS is launching an important reform control systems. initiative implementing process improvements to find efficiencies and enhance response capacity. The Division is responsible for ensuring that A new Fleet Management System will be intro- UNHCR makes optimal use of the available duced to improve UNHCR’s logistics ability. A resources at its disposal. In 2006, DFSM’s main recently commenced partnership with the

43 UNHCR Global Appeal 2006 Headquarters

logistics company Exel is one example of where postings, staff development, staff welfare, the synergies with the private sector will give UNHCR Medical Service and the payroll. greater strategic reach and presence in the humanitarian sphere. In 2006, the commitment to ethics, gender and diversity remains a priority area for DHRM. The The UNHCR Audit Service of the United Nations Division will ensure that a revised plan of action Office of Internal Oversight Services (OIOS) for achieving gender equality in human resources assumes the internal audit function for UNHCR. is issued and implemented. UNHCR supports the The Service consists of auditors based in Geneva commitment to zero tolerance for harassment in and Nairobi (covering operations in Africa). Resi- the workplace, which in 2005 resulted in the cre- dent auditors are posted as required in major ation of a policy on harassment, sexual harass- emergency operations, such as the Sudan ment and abuse of authority. To raise awareness Situation. among staff and to reinforce the commitment, a mandatory UN inter-agency computer-based The UNHCR Audit Service provides the High training course is expected to be available to all Commissioner with independent, objective assurance staff during 2006. on the Office’s use of resources, the reliability and integrity of financial and operational information, In 2006, DHRM will assess the impact of already compliance with regulations, rules and policies, implemented human resources policies in order the achievement of programme objectives and to ensure that the requirements of the Office are other issues which may have implications on the met. It will also continue to monitor the imple- management of UNHCR resources. It provides mentation of policies for consultants and individ- information on problems and risks identified and ual contractors. makes recommendations on how to address them. Whenever feasible, the UNHCR Audit Service identifies quantifiable savings and recoveries. Division of External

In 2006, the UNHCR Audit Service will continue its Relations (DER) comprehensive reviews of UNHCR country opera- tions focusing on higher risk activities such as The Division of External Relations is responsible emergency operations where UNHCR’s visibility for mobilizing public, political and financial sup- and vulnerability is high. At Headquarters, in addi- port for UNHCR by ensuring that the Office com- tion to the continued review of various aspects of municates a coherent, consistent and convincing the Management Systems Renewal Project (MSRP- message to external audiences. The Division’s key see Global programmes), in-depth reviews of functions include promoting UNHCR’s brand and functional areas, programmes and systems will be image among the general public; formulating conducted to assess operational effectiveness communications strategies; fund raising; media and adequacy of policies and procedures. relations and public information; relations with members of the Executive Committee, the UN system and governmental and non-governmental Division of Human partners; and preserving the institutional memory of the Office. Resources Management (DHRM) The Division comprises the Office of the Director, the Donor Relations and Resource Mobilization Service, the Media Relations and Public Informa- The Division of Human Resources Management tion Service, the Private Sector and Public Affairs is responsible for the development and imple- Service, the Secretariat and Inter-Organization mentation of the Office’s human resources pol- Service, the NGO Liaison Unit and the Records icy, personnel administration, performance and Archives Section. DER also produces The State management, post classification, recruitment and of the World’s Refugees publication. A Special Advisor

UNHCR Global Appeal 2006 44 on development aid funding assists the Director’s aimed at combating intolerance and preserving

Office with advocacy for durable solutions and the the institution of asylum. Headquarters inclusion of refugee needs in development plans. The Private Sector and Public Affairs Service In 2006, DER will continue to enhance innovative (PSPA) strives to diversify the Office’s donor base partnerships with governmental, intergovernmen- among corporations, foundations, municipalities tal and non-governmental organizations, as well and individuals. PSPA also plays a key role in rais- as UN agencies and private sector entities, in ing public awareness on refugee issues and order to support the assistance and protection of increasing the visibility of UNHCR. Its main awareness- refugees. It will also lead fund raising activities tar- raising activities are the World Refugee Day, the geting development assistance funds, to advo- Goodwill Ambassador Programme, the Nansen cate for the inclusion of refugee needs in Refugee Award, and the Youth Outreach development policies of donor countries, as well Programme. Some of these activities are as those of the World Bank and UN development described in the Global programmes chapter. agencies. The Secretariat and Inter-Organization The Donor Relations and Resource Mobilization Service (SIOS) supports the work of UNHCR’s Service (DRRMS) is responsible for relations Executive Committee (ExCom) and acts as with governmental and intergovernmental donors Headquarters’ focal point for the Office’s rela- on all aspects of funding. The Service provides tions with other UN bodies as well as intergovern- donors with information on UNHCR’s administra- mental and international organizations. In 2006, tion of funds, policies and programmes, funding SIOS will continue its efforts to support the orga- needs and other factors that might affect a nization’s initiatives to forge strategic partner- donor’s funding decision, and also assists others ships with other United Nations system entities, at Headquarters and in the Field to generate the as well as with other international organizations in information needed for this purpose. DRRMS pursuit of durable solutions for refugees, returnees seeks to provide donors with a clear understand- and internally displaced people, by building on ing of UNHCR’s objectives and resource require- existing mechanisms and exploring new areas of ments, as well as its use and administration of inter-agency cooperation. These include ongoing funds. To this end, the Service publishes the efforts within the Inter-Agency Standing Com- Global Appeal, ad hoc Supplementary Appeals, the mittee (IASC) to strengthen the humanitarian Mid-Year Financial Report and the Global Report. response system, with a special emphasis on improving the inter-agency operational response The Media Relations and Public Information to the protection and assistance in situations of Service (MRPIS) aims at providing a steady flow internal displacement. of relevant, accurate and timely information to international media and external audiences in The NGO Liaison Unit promotes and coordi- order to support the Office’s mandate. The provi- nates effective partnerships between UNHCR and sion of information to refugees, host communities NGOs in order to provide international protection and other persons of concern is also of primary and durable solutions for refugees and others of importance. MRPIS serves as the main editing concern. The Unit promotes constructive dia- desk in UNHCR’s global information network, dis- logue with NGOs and supports the strategic seminating news, print and electronic publica- involvement of NGOs in operational activities. It is tions, videos, photos and other materials instrumental in the formation of strategic partner- provided by field officers. With an average of 1.5 ships with NGOs, an issue that will gain further million monthly hits the UNHCR public website, importance in the context of the humanitarian available in English and French, remains one of response to internal displacement. The Unit also the cornerstones for the Office’s public informa- provides technical support and financial assis- tion strategy. In 2006, MRPIS will help coordinate tance to global NGO initiatives, such as the Global a public campaign in industrialized countries IDP Project, and promotes the participation of NGOs in governance meetings.

45 UNHCR Global Appeal 2006 Headquarters

The Records and Archives Section is responsi- ble for the management, preservation and use of Assistant High UNHCR’s current and historical records, as well as Commissioner for library and visitors services, and for the repro- duction of UNHCR documents. (Operations)

The Assistant High Commissioner (Operations) Division of Information will oversee the functioning of the five Regional Systems and Bureaux responsible for field operations in Africa; Asia and the Pacific; Central Asia, South-West Telecommunications Asia, North Africa and the Middle East (DIST) (CASWANAME); Europe; and the Americas; as well as the Special Unit for the Chad/Sudan Situation; and the Division of Operational Services. DIST comprises two services:

• The Business Solutions Service is responsi- Division of Operational ble for the development of information systems and support at Headquarters and in Services (DOS) the Field, including the Management Systems Renewal Project (MSRP, see Global programmes) The Division of Operational Services will comprise and the Project Profile/proGres refugee registra- the Programme Coordination and Technical Sup- tion system. port Service and the Emergency and Security • The Infrastructure and Telecommunications Service. Service is responsible for Headquarters and Field computing infrastructure, network devel- A key aspect of the work of DOS is the pursuit of opment and support, field user support, and the following organizational objectives: the expansion of global satellite communications. • Provide support for the management of programmes, in particular programme design DIST’s work is guided by a comprehensive infor- and technical integrity, so that they are more mation and communications technology strategic results-based and reflect accepted standards plan for the period 2005 - 2007. The plan identi- of protection and assistance; fies strategic initiatives in software development • Ensure the collection, analysis and dissemina- and infrastructure and defines a new organiza- tion of data, including geodata to support tional structure that reinforces accountability and UNHCR operations and support ongoing regis- streamlines information and communications tration of refugees, using registration tools technology service delivery, to be implemented in developed under Project Profile (see Global 2006. programmes chapter); • Develop UNHCR’s emergency response capac- DIST's key strategic objectives for 2006 are to ity and enhance staff security and improve the continue deployment of MSRP in the Field; pro- safety and security of refugees and returnees. vide ongoing support to the proGres refugee regis- tration system; and improve UNHCR’s knowledge The Programme Coordination and Technical management capacity at Headquarters and in the Support Service (PCTSS), includes the follow- Field. Strategic support initiatives include the ing sections or units: development of a field-based global information and communications technology support struc- • Programme Coordination and Operational ture and full DIST participation in organization Support Section (PCOS). The activities of planning exercises at strategic, operational and PCOS, which involve direct support to the field, emergency response levels. are described under Global programmes.

UNHCR Global Appeal 2006 46 • Population and Geographic Data Section Division of International

• Project Profile Unit Headquarters • Technical Support Section. Protection Services (DIPS)

An important aspect of PCTSS is the comprehen- Under the responsibility of the Assistant High sive support it provides, through PCOS, to Commissioner (Protection), the Division of International UNHCR’s operations with a view to institutionaliz- Protection Services will consist of the Protection ing results-based management. In 2006, it will Policy and Advice Service, the Protection Capacity continue developing methodologies and manage- Service and the realigned Comprehensive ment systems based on assessment of needs Solutions entities, including a strengthened against established standards and indicators to Resettlement Service. improve the delivery of protection and assistance and provide related training at all levels in the The Protection Policy and Advice Service will organization. consist of a Protection Policy and Operational Advice Section, a Refugee Status Determination The Emergency and Security Service (ESS), and Protection Information Section and a State- now an integral part of the Division of Operational lessness Unit. The Service will be responsible for Services, includes: monitoring, interpreting and developing legal doctrine and protection standards relating to per- • Emergency Preparedness and Response sons of concern to the Office. It will develop pro- Section tection guidelines and provide policy and • Field Safety Section operational advice on international protection • Policy Development and Training Section issues. It will also make available comprehensive and objective information on refugees, asylum ESS will, in close cooperation with the regional and human rights issues to UNHCR staff, govern- bureaux, coordinate UNHCR’s preparedness for ments, inter-governmental and non-governmen- and response to emergencies, as well as the safety tal organizations, law practitioners, scholars and and security of staff and refugees. One of others. It will also aim to enhance the capacity of UNHCR’s global objectives and operational priori- UNHCR staff and governments in refugee status ties is the improvement of its emergency pre- determination and to ensure the quality, integrity paredness and response capacity. In 2006, ESS and fairness of the process. The Service will con- will be strengthened, with the aim of building up tinue to conduct and coordinate country of origin capacities so that by 2007 the Office will be able research and carry out related promotional and to assume a quick and effective response to unex- training activities. pected refugee crises involving the displacement of up to 500,000 people. The objectives and activ- The Protection Capacity Service will comprise ities of the Field Safety Section are described in the Staffing Support and Protection Oversight the Global programmes chapter. Section, the Protection Training Section and the Community Development, Education, Gender Assistant High Equality and Children Section. It will be responsi- ble for providing protection support to UNHCR Commissioner (Protection) field operations, and for promoting a consistent global approach to the implementation of the Office’s protection mandate and policies. The The new Assistant High Commissioner (Protection) Service will also be responsible for planning and will oversee the Division of International Protec- implementing a comprehensive global training tion Services. programme in order to improve protection exper- tise throughout the organization and the promo- tion and dissemination of principles of refugee law and international protection to all staff and

47 UNHCR Global Appeal 2006 Headquarters

other actors involved in protection activities. development actors. SPCP will be responsible for Finally, it will be concerned with the formulation devising tools and approaches to strengthening of policies and guidelines to mainstream age, national capacity to receive and protect refugees, gender and diversity into all UNHCR programmes. enhancing their means of self-reliance and expand- ing opportunities for durable solutions The entities grouped under Comprehensive Solutions will consist of a Resettlement Service, a *** Reintegration and Local Settlement Section Since the new structure was only approved by the (RLSS) and the Strengthening Protection Capacity Executive Committee in the first week of October, Project (SPCP). These will contribute to the details on the composition of the different organi- mainstreaming of the Convention Plus initiative zational units were still being worked out at the through promoting comprehensive approaches to time of going to print. The requirements for Head- durable solutions, and develop policy and stan- quarters presented here reflect the organizational dards in this regard. The Resettlement Service will structure in place in October 2005 and are those promote methodologies for the strategic use of presented to – and approved by – ExCom at that resettlement within comprehensive approaches time. While the location and allocations for cer- to durable solutions. The main responsibility of tain organizational units are due to change within RLSS is the operationalization of the 2003 this budget, the only additional resource require- Framework for Durable Solutions by providing support ment for the new structure would, at most, to field operations through the promotion of amount to the cost of the upgrade of one post to self-reliance of refugees/returnees and sustainable the Assistant High Commissioner level. Any other livelihoods, peace building, operational informa- related organizational changes will be covered by tion management, and building partnerships with offsets drawn from existing resources.

HEADQUARTERS BUDGET (USD) DIVISIONS / DEPARTMENTS Annual Programme Supplemenatry 1 2 TOTAL Budget Programme Budget EXECUTIVE DIRECTION AND MANAGEMENT Executive Office 8,798,554 0 8,798,554 DIVISION OF INFORMATION SYSTEMS AND TECHNOLOGY Office of the Director 722,441 0 722,441 Information Technology and 11,454,851 0 11,454,851 Telecommunication Service Sub-total Division of Information 12,177,292 0 12,177,292 Systems and Technology DEPARTMENT OF INTERNATIONAL PROTECTION Office of the Director 1,719,798 0 1,719,798 Specialised Sections 7,961,720 0 7,961,720 Sub-total Department of International 9,681,518 0 9,681,518 Protection DEPARTMENT OF OPERATIONS Evaluation and Policy Analysis Unit 592,654 0 592,654 Division of Operational Support – Office of the Director 2,024,346 0 2,024,346 – Specialised Sections 8,500,342 0 8,500,342 – Programme Coordination and 2,477,225 0 2,477,225 Operations Support Section Sub-total Division of Operational Support 13,001,913 0 13,001,913 Regional Bureaux – Office of the Director - Africa 4,012,177 0 4,012,177

UNHCR Global Appeal 2006 48 HEADQUARTERS BUDGET (USD)

DIVISIONS / DEPARTMENTS Annual Programme Supplemenatry Headquarters 1 2 TOTAL Budget Programme Budget – Sudan / Chad Situation Unit 709,591 0 709,591 Headquarters – Desk for West Africa 1,749,854 0 1,749,854 – Desk for East and Horn of Africa 1,323,148 0 1,323,148 – Desk for Great Lakes 1,457,189 1,072,396 2,529,585 – Desk for Southern Africa 994,396 0 994,396 – Bureau for Central Asia, South West Asia, North of Africa and the Middle 4,851,878 0 4,851,878 East – Bureau for Asia and the Pacific 2,861,833 0 2,861,833 – Bureau for Europe 5,012,002 0 5,012,002 – Bureau for the Americas 2,150,942 0 2,150,942 Sub-total Regional Bureaux 25,123,010 1,072,396 26,195,406 Sub-total Department of Operations 38,717,577 1,072,396 39,789,973 DIVISION OF EXTERNAL RELATIONS Office of the Director 1,395,219 0 1,395,219 Donor Relations and Resource 3,402,193 0 3,402,193 Mobilisation Service Media Relations and Public Information 4,266,744 0 4,266,744 Service Private Sector and Public Affairs Service 2,481,052 0 2,481,052 Secretariat and Inter-Organisation Service 1,882,305 0 1,882,305 NGO Liaison Unit 592,327 0 592,327 Records and Archives Section 2,264,254 0 2,264,254 Electronic Document Management 587,841 0 587,841 Sub-total Division of External Relations 16,871,935 0 16,871,935 DIVISION OF HUMAN RESOURCE MANAGEMENT Office of the Director 2,365,129 0 2,365,129 Specialised Sections 16,610,360 0 16,610,360 Joint Medical Service 2,201,595 0 2,201,595 Sub-total Division of Human Resource 21,177,084 0 21,177,084 Management DIVISION OF FINANCIAL AND SUPPLY MANAGEMENT Office of the Controller and Director 3,661,257 0 3,661,257 Financial Resources Service 7,853,127 0 7,853,127 Supply Management Service 6,312,550 0 6,312,550 Audit 3,013,660 0 3,013,660 ICC Services 1,969,769 0 1,969,769 UNOG Services 3,500,000 0 3,500,000 Headquarters Running Costs 10,999,264 0 10,999,264 Sub-total Division of Financial and 37,309,627 0 37,309,627 Supply Management STAFF COUNCIL 410,394 0 410,394 GRAND TOTAL 145,143,981 1,072,396 146,216,377

1 The annual programme budget includes an allocation from the UN Regular Budget amounting to USD 32,873,515. 2 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees.

49 UNHCR Global Appeal 2006 Global programmes

n addition to its country or region-specific oper- In 2004 and 2005, UNHCR undertook several par- Iations, UNHCR undertakes a broad range of ticipatory assessments with displaced people programmes and activities of a global or regional throughout the world. These assessments high- nature, called Global programmes. They are lighted gaps in assistance for specific groups and designed to support field operations and are the need for a stronger rights and community- mostly implemented in the Field, but budgeted for based approach to engage communities in seek- and managed at Headquarters in Geneva. These ing appropriate solutions. In particular, refugees Global programmes can be divided into three cat- lack access to resources for income generation. egories: programmes supporting the implementa- Insufficient assistance leaves them vulnerable to tion of policy priorities, programme support discrimination and exploitation, and girls and activities and other activities. women in particular are exposed to sexual and gender-based violence and exploitation. In some cases, the protection of those most at risk is fur- Policy priorities ther weakened through forced under-age

In 2006, UNHCR will continue to support its field operations in many of the priority areas, both operationally and in terms of policy development, through its Global programmes. These will cover activities such as mainstreaming of gender equality; protection and care of refugee children; HIV/AIDS and reproductive health; field capacity in community development and situation analysis; prevention of and response to sexual and gender-based vio- lence, and refugee registration.

Toachieveeffectiveprotection,UNHCRis very conscious of the need to involve refugees and others of concern to the Office in protec- tion risk analysis and problem resolution. Joint analysis is helping to address discrimina- tion and unequal power relations predicated on age, gender and diversity of background, with the aim of promoting gender equality and the equitable enjoyment of rights by all refugees and others of concern. This work began in the 1990s, when UNHCR established policies on refugee women, refugee children, older persons, education and community development. These policies are based on international human rights instruments and focus on the specific needs of each group. They aim to ensure better protection by empowering refugees and others to realize Democratic Republic of the Congo: Women are often heads of their households. Here, returnee Elodi Male walks with her children back to her their rights through direct participation in home in the village of Zambi, after being dropped off by the repatriation decision making and community life. boat. UNHCR / J. Ose

UNHCR Global Appeal 2006 50 marriage, trafficking, mounting school drop-out A three-year strategic plan for 2006-2008 will pro- rates, forced recruitment and child labour. vide the framework for UNHCR’s two-pronged

Greater attention must be devoted to the needs approach to implementing policy priorities: Global programmes of older refugees, who often find themselves com- mainstreaming and empowerment through tar- peting for scarce resources, while sometimes car- geted action. The approach will increase coordi- ing for young orphaned grandchildren at the same nation with partners, expand the institutional time. capacity to totally integrate age, gender and diver- sity concerns and entail targeted action to Women, girls and boys (whether refugees, return- empower all refugees, particularly those with spe- ees or IDPs) are frequently obliged to undertake cial needs. several activities outside their home, such as col- lecting firewood and water. This can involve walk- In 2006, the following action will be undertaken to ing long distances often exposing them to the mainstream age, gender and diversity: possibility of attack, in particular sexual and gender-based violence. The conflict in West • UNHCR will adopt a multifunctional (commu- Darfur in Sudan has highlighted the desperate sit- nity services, programme and protection) team uation of such groups while for women and girls in approach, together with its partners and sup- some areas the long-standing problem – exposure ported by complementary teamwork at to rape while gathering firewood – remains unre- Headquarters. The teams will promote solved. If displaced women, girls and boys and mainstreaming by undertaking participatory older people are to be adequately protected, assessments and will incorporate the findings UNHCR must ensure that gaps in assistance are into the programming cycle. Building on the covered, not only in terms of food, water, educa- work undertaken in late 2005, the number of tion and health, but also in relation to the specific countries conducting participatory assessment needs of the different groups, such as sanitary to analyze protection risks and gaps as a basis materials for women and girls and skills training for planning programmes is expected to reach for young people. 90 by the end of 2006. • The next component of the mainstreaming In 2006, UNHCR will improve the implementation strategy will involve the establishment of an of its policy priorities for refugee women, online community of practice to help field and refugee children and older refugees through headquarters staff to develop their capacities a community development approach by through participation in a knowledge manage- launching its “age, gender and diversity ment system. mainstreaming” strategy throughout the organization. • Building on the work of the Action for the The strategy is based on international agreements Rights of Children (ARC), People-Oriented and standards such as the Convention on the Planning and the training experiences of other Elimination of all Forms of Discrimination against agencies and partners, a streamlined training Women, the Beijing Platform for Action, various programme on gender equality, children’s resolutions of the UN Economic and Social Council rights and community-based approach will be (ECOSOC) and Security Council Resolution 1325 developed. on women, peace and security, the Convention on • Benchmarks to provide an accountability the Rights of the Child and other international framework for managers at all levels will be human rights instruments (Global Strategic Objective tested in ten pilot countries and completed by 1). Mainstreaming age, gender and diversity December 2006. means that the full participation of all regardless • Specialist regional and headquarters staff will of age, gender or background becomes integral to undertake technical missions to all emergency the design, implementation, monitoring and operations and to any field operations where evaluation of UNHCR’s policies and operations, participatory assessments reveal gaps. These with the long-term goals of gender equality and missions will be followed by specialist deploy- the equitable enjoyment of rights (Agenda for ments if needed. Ongoing standby agreements Protection Goal 6.1-2). with different international non-governmental

51 UNHCR Global Appeal 2006 lblprogrammes Global

partners allow for deployments of profession- In addition to the mainstreaming strategy, UNHCR als with experience in child protection, gender, will provide targeted support to operations education and community services. through four technical units with specialists in • UNHCR will continue to participate in community development, education, gender inter-agency activities and will strengthen its equality and refugee women, and refugee children partnership with UNICEF, WFP, UNIFEM, as well as through six regional experts covering UNESCO, ILO and other agencies. This these areas in Europe, Africa and the Middle East. expanded cooperation will promote the real- While supporting mainstreaming, the specialized ization of the rights of refugees, particularly in units will also focus on targeted action to the areas of education, women’s empower- empower refugees and develop the capacity of ment and child participation. Based on the UNHCR and partner staff, as well as refugees, in experience of Liberia and Colombia with these areas. UNIFEM in 2004 and 2005, national memo- randa of understanding will be developed in Following a review of the community services countries where particular gaps are identified functions, the essential role of community ser- through participatory assessment. vices officers will be increasingly to mobilize the community to ensure that refugees remain at the centre of decision making. UNHCR has produced a community development manual and accompa- nying training materials, as well as strict selection criteria for community services officers. In 2006, the Office will promote the community-based approach through:

• Training of UNHCR and partner staff on the practical application of a community-based approach (Agenda for Protection, Goal 3). • Creation of a community services network to upgrade the skills of staff. This will provide community services staff based in remote loca- tions with an opportunity to keep abreast of the latest developments in community-based work and to exchange information on lessons learnt and good practices. • Developing and testing of indicators to moni- tor the impact and application of the community-based approach in UNHCR operations. • The peace education programme, which will continue to be an important instrument for building refugee capacity to resolve problems. Materials jointly produced by UNESCO and UNHCR will be disseminated and refugee com- munities in selected countries will receive training and ongoing support for peace education. • The identification of specialized agencies to improve UNHCR’s response capacity in com- munity-based psychosocial programmes in Chad: Specific attention must be given to displaced emergencies and post-emergency situations. children to ensure their protection. UNHCR / H. Caux In view of UNHCR’s limited staffing capacity,

UNHCR Global Appeal 2006 52 specialist partners will be employed where the delivery of

services and monitoring is a seri- Global programmes ous challenge, as with some areas of work with older persons and persons with disabilities.

Gender equality and refugee women: While gender equality mainstreaming is an essential strat- egy to promote equal rights and opportunities for refugee and dis- placed women and girls, UNHCR rec- ognizes that it must be accompanied by sustained targeted action to empower and protect them in the face of wide-ranging constraints. Prevention of and response to sexual and gender-based violence (SGBV) forms a crucial component of this work. In 2006, work on gender equality will focus on building UNHCR’s capacity to support women’s equal participation in leadership structures, community development and economic empowerment (Agenda for Protection Ghana: Togolese refugees. The contribution of older refugees in caring for Goals 3 and 6). UNHCR’s main activi- younger relatives is often under-recognized. UNHCR is setting up projects to ties will include: assist them in caring for their families. UNHCR / L. Taylor

• Finalization and dissemination of a gender prevention and response to sexual and gender- equality policy for operations. based violence for national and partner staff, • Organizing two regional training sessions in and introducing linkages with prevention of collaboration with national and international HIV/AIDS. non-governmental partners to further develop • Undertaking technical missions using partici- the capacity of UNHCR and partner staff on patory assessment, in coordination with gender equality and women’s empowerment. experts on shelter, food/nutrition and health, • Based on gaps identified through participatory to identify the causes of sexual and gender- assessments, and in coordination with ILO, based violence and community-based solutions. developing and implementing economic • Establishing standardized systems of reporting empowerment activities in two country opera- and monitoring of SGBV prevention and tions. (Agenda for Protection Goal 5). response activities, using Project Profile soft- • Targeting selected country operations involved ware, and promoting the establishment of in return processes to promote the implemen- standard operating procedures in country tation of the UN Security Council Resolution operations. 1325 on Women, Peace and Security. • Developing joint projects with national NGO • Building partnerships with local women’s orga- networks to support projects on working with nizations to support women’s leadership in refugee men and boys on gender equality and peace-building initiatives among displaced prevention of SGBV. communities. • Conducting two regional ‘training of trainers’ In 2005, UNHCR contributed to the UN Study on and country level training sessions on Violence against Children. Related participatory

53 UNHCR Global Appeal 2006 lblprogrammes Global

research undertaken in Angola, South Africa and Refugee education: Since 2003, UNHCR has Zambia with refugee and returnee children gathered data highlighting serious gaps in the revealed disturbing challenges that displaced girls quality of services delivered and the overall reten- and boys are confronted with and the difficult tion rates in school. UNHCR will raise awareness choices they are forced to make on a daily basis to among donors and educators as well as pupils on survive. The research highlights the need for the need to create a safe school environment greater participation of children, including adoles- where children from diverse backgrounds and girls cents, in the identification of protection risks and in particular can feel respected and are given suffi- the design of solutions. cient opportunities to develop their full potential. In 2005, UNHCR began to refocus attention on UNHCR will promote the realization of the rights the right of refugees to education as a means to of children within the framework of the five global support their capacity to build durable solutions priority issues identified by the Office as a follow and enhance their own protection. In the year to up to the UN Study on the Impact of Armed Conflict on come, UNHCR will prioritize the following actions Children (the Machel study): separation; sexual to support education: exploitation, abuse and violence; military recruit- ment; education; and the specific concerns of • Focusing on the implementation of the UN Mil- adolescents. The Office will also promote the spe- lennium Development Goals and Education for cific concerns of adolescents. The following main All (EFA) and working to close the existing gap activities will be undertaken: in primary education through the dissemina- tion of UNHCR’s education guidelines, regional • A report on the global priority issues at field consultation meetings and capacity building level to enable identification of gaps and good training. practices and the design of follow up actions • In coordination with UNHCR’s Regional with UNHCR’s Regional Bureaux. Bureaux, continuing the country-by-country • Dissemination of UNHCR’s study Refugee and desk review of education services based on Returnee Children in Southern Africa: Perceptions and standards and indicators. Technical missions Experiences of Violence. Support will be provided to will be undertaken to those countries with sig- undertake similar research in two other regions. nificant gaps and bridging funds will be • Technical missions to three major operations allocated for specific activities aimed at to build staff capacity to work with girls and increasing enrolment and retention, as well as boys and facilitate their participation in deci- addressing gaps in gender parity. sion making. • Increasing sustainable education services for • Strengthening skills development through refugees, displaced persons and returnees by vocational training projects to increase involving the host governments and the refugee employment opportunities (Agenda for Protection communities. UNHCR will support the establish- Goal 5) with the participation of refugee, dis- ment of education committees, led by local placed and returnee adolescents/youth in two education authorities, with the participation of operations. people of concern, partners and sister agencies, • Widening partnerships with agencies with to standardize education curricula, teacher expertise in addressing the specific needs of training, incentives, certification, safe school adolescents. environments and monitoring of services. • Geneva-based and region-based collaboration • Completing a standard refugee teachers train- with the management group for Action for the ing manual integrating issues such as gender Rights of Children will continue through follow equality and prevention of sexual and gender- up on the relevant recommendations of the based violence, ethics in the classroom, 2005 independent evaluation of ARC. prevention of HIV/AIDS and human rights. The • Promotion of the implementation of UNHCR’s manual will be pilot-tested in selected locations Guidelines on Best Interests Determination for in collaboration with partners, host governments Children. and UN agencies.

UNHCR Global Appeal 2006 54 Global programmes

Myanmar: Education is one of the most powerful tools to achieve the Millenium Development Goal of empowerming women. Here, Rohingya returnees receive basic Myanmar language training at Buthidaung Township. UNHCR / C. Schwetz

• Building mechanisms to support operational • Implementing the recommendations from the partners to increase skills training and oppor- 2005 joint Norwegian Refugee Council/UNHCR tunities for young people to access secondary evaluation of education expert deployments school and distance learning. and explore collaboration with the UN Volun- • Supporting some 1,000 refugee students to teers to augment human resource capacity in attend tertiary education and 130 refugee girls education. in three countries to complete secondary • Strengthening private and public fund raising education. efforts with the UN and international non-

55 UNHCR Global Appeal 2006 lblprogrammes Global

governmental partners to improve the delivery response to mitigate the effects on the environ- of services in education (Agenda for Protection ment of the presence of large numbers of people Goal 3). To this end, UNHCR will undertake dis- competing for scarce environmental resources. cussions with UNICEF, UNESCO and ILO and In this way, as an environmentally-responsible UN key international non-governmental partners organization, UNHCR will contribute to the preven- who have amassed considerable expertise in tion of environmental degration and at the same the area of education and participate in rele- time ensure the continued willingness of host vant bodies such as the Inter-Agency Network governments to allow refugees onto their territory. for Education in Emergencies. UNHCR’s environmental strategies to pursue the In 2006, UNHCR will continue to implement its above objectives in 2006 are to: policy on the environment in refugee and returnee operations. Capitalizing on the progress • Ensure that operational planning instruments made on environmental management, UNHCR reflect environmental concerns and measures will further pursue its environment-related objec- to protect the environment; tives, including the integration of environmental • Disseminate environmental assessment, mon- considerations in all its operations and the adop- itoring and evaluation tools in refugee tion and promotion of best environmental man- operations and develop action plans for coun- agement practices in all phases of refugee-related try programmes; activities. As environmental degradation has the • Support field offices by providing technical most visible and potentially long-lasting physical advice and guidance on environmental man- impact on refugee-related operations, UNHCR will agement issues; ensure a timely, appropriate and well-coordinated

Chad: From the outset of a refugee influx, UNHCR tries to minimize the potentially damaging impact of large gatherings of people on already fragile environments. UNHCR / H. Caux

UNHCR Global Appeal 2006 56 • Provide technical support and demonstration health information system will be set up to projects dealing with natural resource manage- strengthen UNHCR’s programme monitoring

ment to promote UNHCR’s policies and capacity, to provide reliable data for the UNHCR Global programmes guidelines in a broad range of sectors in field Standards and Indicators project, and to report operations; progress towards the UN Millennium Develop- • Disseminate the revised UNHCR environmental ment Goals. UNHCR has spearheaded an innova- guidelines and handbooks on forestry, live- tive project on Inter-agency Health Evaluations in stock and sustainable agriculture in refugee Humanitarian Crises. In 2006, UNHCR will con- and returnee situations; tinue to participate in these sector-wide • Facilitate rehabilitation initiatives and develop evaluations. exit strategies in refugee and returnee areas, in collaboration with relevant governments, UN UNHCR continues to implement its agencies, and NGOs in selected countries; HIV/AIDS and Refugees Strategic • Provide training appropriate to the needs of Plan for 2005-2007. With its particular specific users at regional and national levels; focus as an agency within UNAIDS for • Promote proven practices but also test new conflict-affected populations and the technology in field operations as and when release of the Antiretroviral therapy (ART) policy appropriate; for refugees and returnees, together with the • Implement comprehensive environmental UNHCR and UNAIDS best practice document education and awareness-raising programmes; entitled Strategies to support the HIV-related needs of • Establish partnerships and coordinate with refugees and host populations, UNHCR will pursue other competent partners on various environ- efforts to fight the spread of HIV and AIDS among mental initiatives. conflict-affected and displaced populations.

In 2006, health-related projects will aim to UNHCR is the tenth co-sponsor of UNAIDS. For strengthen UNHCR’s planning, coordination, the first time, refugees and internally displaced monitoring and evaluation to ensure that mini- people have been included in the UNAIDS Unified mum UNHCR and international standards are Budget Work Plan (UBW) for 2006-07. Refugees met. The programme planning and coordination and internally displaced people are also now will address three UN Millennium Development included in the global initiatives such as the Goals: combat HIV/AIDS, malaria and other dis- Global Task Team on Improving AIDS Coordina- eases; improve maternal health; and reduce child tion among Multilateral Institutions and Interna- mortality. tional Donors, the UNAIDS Policy Position Paper on Intensifying HIV Prevention, and the Global Ini- Functioning health systems are essential for the tiative on Prevention Education. UNHCR will con- successful implementation of HIV and SGBV tinue to advocate for HIV policies and programmes and other policy priorities for interventions to ensure that conflict-affected UNHCR. Programmes to address mother and child populations benefit during implementation in health and reproductive health, are also crucial 2006. for the protection of refugee women and children. Ground-breaking research that revealed that HIV Malaria remains the most devastating single cause is often less prevalent among refugees than in sur- of illness and death in many refugee settings. rounding populations will continue in 2006. The UNHCR will continue to update its programmes as finding deflates the argument, underlying wide- per its multi-year strategic plan to keep abreast of spread prejudice, that refugees aggravate the new developments in malaria control. AIDS epidemic in their host countries. As provid- ing international protection to refugees is inextri- The training and capacity building of health work- cably linked to providing care and treatment to ers for safe motherhood and integrated manage- persons living with HIV/AIDS, HIV/AIDS training ment of childhood illness will continue to be modules will be integrated into the existing mod- realized in targeted countries. A standardized ules for protection, resettlement, programme and

57 UNHCR Global Appeal 2006 lblprogrammes Global

field officers. Work with resettlement countries At the country level, the UN Theme Groups on HIV will continue to ensure that voluntary testing and have started to include refugees into host coun- counselling conducted in the context of resettle- tries’ strategic plans on HIV and relevant propos- ment are compliant with international standards als to major donors. Some host countries (Liberia, and practices. HIV/AIDS prevention will also be Sierra Leone) have for the first time included integrated into all voluntary repatriation refugees in their national strategic plans and programmes, beginning in the country of asylum sustained efforts will be made to achieve the same and continuing through return, rehabilitation and in other host countries. reintegration programmes in the country of origin. UNHCR will continue to develop prevention strat- In 2006, UNHCR will promote regional and egies, particularly programmes targeting refugee subregional HIV integrated initiatives following a women and youth. Communication materials 2005 Memorandum of Understanding signed aimed at catalyzing behavioural change, such as between The Great Lakes Initiative on AIDS and videos on refugees living with HIV and AIDS and a UNHCR (a six-country cross-border HIV initiative cartoon booklet will be produced in consultation funded by the World Bank). Other subregional HIV with refugee communities in appropriate lan- initiatives, such as the Oubangui-Chiari and the guages and disseminated. Partnerships will be Mano River Union AIDS initiatives, will need finan- strengthened at the country level with UNFPA and cial and technical support. UNHCR will expand its UNICEF for condom promotion, post-exposure voluntary HIV counselling and testing programmes prophylaxis and education programmes. As the in Asia and Eastern Europe, and especially in organization begins to take on a greater role in remote and isolated refugee locations. protection, shelter, and camp management and

Myanmar: One of UNHCR’s partners is making a demonstration on HIV transmission methods to trainee community education volunteers, many of whom are returnees. UNHCR / C. Schwetz

UNHCR Global Appeal 2006 58 coordination for IDPs in 2006, HIV interventions • Strengthen nutrition information through care- for internally displaced people will also become ful surveys and reporting, while evaluating the prominent. effectiveness of the current nutrition Global programmes programmes to prevent and treat malnutrition. UNHCR will continue to work with the UNAIDS Secretariat and the co-sponsors. Joint work plans include ART guidelines for conflict-affected popu- Other activities lations (undertaken with WHO), HIV and nutri- tion/food strategy implementation (with WFP and UNICEF), care for survivors of rape including Promotion of refugee law and advocacy: post-exposure prophylaxis (with UNFPA), the UNHCR will continue to support regional and Great Lakes Initiative on AIDS (with the World subregional refugee law activities led by universities Bank), the Global Initiative on Prevention Educa- and other institutions such as those in San Remo, tion (with UNESCO), and HIV in the workplace Strasbourg, Calcutta and Bangalore. In 2005, (with ILO). UNHCR piloted two refugee law courses: a general course for francophone countries in Africa in In 2006, the Office will continue training of staff cooperation with the UNESCO Chair on Human under the UNHCR Cares programme to examine Rights in Benin and an advanced course on refugee their own attitudes towards HIV/AIDS, and to be protection and human rights with the support of aware of benefits of health insurance plans the International Institute of Humanitarian Law in including ART access. HIV/AIDS competency San Remo. These two courses will be refined in 2006. training for UNHCR staff in operations such as Sudan, as well as workshops aimed at developing In 2006, UNHCR will map the promotion activities HIV/AIDS workplace policies for UNHCR’s imple- undertaken at the field level by UNHCR and aca- menting partners, will also be carried out . demic institutions and identify gaps, so as to improve the global strategy on the promotion of The right to adequate nutrition is intimately refugee law and protection advocacy and use its related to pregnancy, child growth and the ability resources more effectively. Reference materials to survive HIV/AIDS. Malnutrition is responsible will be made available to all UNHCR offices and directly or indirectly for about 60 per cent of child partners. The Department of International Protec- mortality. tion Services (DIPS) will regularly publish material reflecting protection policy trends for distribution In 2006, the nutrition project aims, through con- among field colleagues and UNHCR partners. tinued collaboration with WFP, to develop holistic DIPS will support the Oxford University Press with and sustainable strategies to treat and prevent their publication of the Journal of Refugee Studies high malnutrition, including micronutrient defi- and the International Journal of Refugee Law. ciencies such as anaemia in young women and children. More specifically, UNHCR will seek to do Resettlement projects: UNHCR will make a spe- the following: cial effort to ensure sufficient human resources are available to effectively address the needs of • Reinforce international nutrition policies in all the global resettlement programme, partly refugee operations, standardize nutrition through seeking to increase resettlement posi- programme activities, including the provision tions in the Field, and by obtaining additional of adequate nutritional support to pregnant funding for resettlement activities. UNHCR will and lactating women, and improve infant feed- consolidate the process of delegating to the Field ing practices. direct submission of cases to resettlement coun- • Improve capacity building at the country level tries. In addition, support to field operations will through training, enhancing regional capacity be offered through the deployment of resettle- in joint assessments and support in the area of ment staff under the UNHCR/International Catho- nutrition and HIV/AIDS prevention. lic Migration Commission (ICMC) deployment

59 UNHCR Global Appeal 2006 lblprogrammes Global

scheme to increase the Office’s capacity to pro- and to improve standards of due process, integrity cess resettlement cases. and oversight.

The work of the regional resettlement hubs in At a policy level, the RSD Unit is finalizing the Africa has proved to be effective. UNHCR will con- review started last year on the appropriateness of tinue to expand the capacity of the hubs and will individual RSD to the protection strategy of consider the establishment of similar structures in selected operations and of possible alternative other regions of the world as part of the expan- measures to provide international protection sion of resettlement activities. when RSD is not the appropriate response.

A special project advances the promotion of The Legal and Policy Research Project exists resettlement, especially to emerging resettlement to commission research papers, guidelines and countries. Under this project, selection missions assessments which will provide a sound research will be organized from those countries. The pro- base on refugee protection. UNHCR draws upon ject will cover family reunion cases. The cost and this research base as a matter of routine as it arrangement of refugees’ journeys will be orga- develops legal positions, formulates UNHCR nized by IOM (not the resettlement countries). guidelines and provides in-house legal and policy support to bureaux and the Field. Finally, field missions between offices will be con- ducted in order to provide flexible, relevant and The main objective of the Provision of Protec- expedited support to specific resettlement pro- tion Information Project is to make available jects. Resettlement workshops will be organized comprehensive and objective information regard- in order to harmonize application of resettlement ing refugee, asylum and human rights issues to criteria and procedures and improve the quality of UNHCR staff, governments, NGOs, international resettlement submissions. organizations, academics, members of the judi- ciary and those responsible for the design and/or Other protection-related projects: With a view execution of RSD procedures. to globally enhancing the quality, consistency and efficiency of refugee status determination The Refworld collection of protection information, (RSD) processes, the RSD Project will continue to reaching some 3,000 subscribers, will be further assist UNHCR field offices by deploying expert expanded and improved in the coming year, aim- consultants to respond to the exceptional needs ing to improve the quality, quantity and accessi- and challenges which arise in RSD. As in the past, bility of information on the UNHCR website and RSD Project deployments will also provide techni- the DVD-version of Refworld, which was first cal assistance to capacity-building activities. In launched in 2005. 2006, the strategic partnership with the Interna- tional Association of Refugee Law Judges (IARLJ) The Surge Protection Capacity Project contin- will be strengthened to stimulate the transfer of ues to be an effective and valued mechanism for RSD expertise to countries with developing asy- response to urgent protection needs in the field. lum systems (especially in Africa, the CIS and The main objective of the project is to develop Latin America). and maintain a flexible and dependable staff deployment mechanism that provides speedy As UNHCR field offices continue to implement the assistance to UNHCR offices in situations requir- Procedural Standards for Refugee Status Determination ing temporary or additional protection capacity. under UNHCR’s mandate, the RSD Project will carry Requests for deployments have increased. out support missions to provide expert advice and assistance to offices in developing and delivering Protection training programmes: In 2006, a focused and informed protection response. The UNHCR will refine and consolidate existing learn- Standards were elaborated to achieve greater ing tools and will also develop new ones that harmonization among UNHCR RSD operations, respond to emerging learning needs at four levels:

UNHCR Global Appeal 2006 60 The computer-based Protection Induction Voluntary repatriation of individual refugees: Programme developed in 2005 will become a While most organized voluntary repatriation oper- mandatory introduction to UNHCR’s mandate for ations will be funded under country or regional Global programmes all staff. UNHCR partners will also benefit from programmes, there are a number of individual this programme, which will be made available in refugees who will need to be assisted separately five languages. In 2006, a new user-friendly (in countries where they have no access to these website will contain, inter alia, training tools for programmes). This project is thus intended to immediate use by colleagues in the Field. facilitate transportation in such cases.

At the intermediate level, the Protection Learning Registration: In 2006, the modernization of Programme (PLP) will remain a core learning UNHCR’s registration and documentation system programme. UNHCR staff as well as partners will will continue to be an organizational priority. benefit from a revised programme in 2006 that Under Project Profile, field training and imple- takes into account a 2004/2005 evaluation of the mentation of new registration standards and tools earlier programme. By the end of 2006 approxi- will be undertaken. The year 2006 will also mark a mately 900 colleagues and partners will have com- transition phase where support to UNHCR pleted, or will be undertaking, the PLP. offices requiring additional assistance in main- Operational and implementing partners will also taining high quality registration procedures and benefit from the Protection Learning Programme. data, and making use of the data for programme This will contribute to developing a common planning will be mainstreamed and handed over vision and protection strategy among UNHCR col- to the Population and Geographic Data Section leagues and partners. (PGDS) within the Division of Operational Support (DOS) and to the Division of Information At the advanced level, UNHCR will continue to Systems and Telecommunications (DIST). offer training programmes on refugee status determination as well as resettlement. Regional Project Profile teams will continue field missions workshops on exclusion and cancellation of to additional sites and regional training workshops refugee status will be conducted, developed at will be undertaken by headquarters and the specific request of field offices and the field-based senior registration officers and DIST. Bureaux, which aim to give staff the expertise to The teams will address the functional aspects of deal with these issues and ensure a consistent registration, i.e. office procedures, the planning of approach in UNHCR’s operations. Furthermore, activities in support of voluntary repatriation and UNHCR will develop new programmes that resettlement, and the technical aspects of using address such issues as internal displacement, new systems and tools. They will assist the grad- repatriation and returnee monitoring to complement ual deployment of version 2 of the proGres registra- the two exisiting Thematic Protection Learning tion database application which will include Programmes for senior staff and partners on broader biometrics functionality and will require the devel- migration movements and armed conflict. opment of additional standard procedures and policies for its use. Particular attention will be paid Finally, with a view to enhancing the capacity of to the selective deployment of the new registra- senior managers to design, implement and man- tion system to be used jointly with partners. These age protection-based operations, UNHCR will capacity-building activities will be undertaken for continue to hold protection management work- those host governments preparing to undertake, shops in 2006 in co-operation with regional or already undertaking registration activities. Bureaux. A total of three regional workshops in three different regions are projected for the year. Registration staff will also focus on improvements In order to meet challenges in the delivery of pro- to the quality and availability of documentation tection in the field, UNHCR is exploring innovative given to refugees and others of concern. The indi- and operational learning methodologies that pro- vidual protection and assistance needs of refugee vide staff and partners with practical support in women and children will be identified through addressing specific protection problems. thorough individual registration activities.

61 UNHCR Global Appeal 2006 lblprogrammes Global

Public information, private sector and public Rehabilitation and Reconstruction (“4Rs”); and affairs projects: Global programmes in this area Development through Local Integration (DLI). The include activities and projects designed to raise aim is to share burdens and responsibilities more public awareness on refugee issues. These activi- equitably, build capacity to receive and protect ties are built on four main pillars: World Refugee refugees, and redouble the search for durable Day; the Goodwill Ambassador Programme; the solutions by providing development assistance to Nansen Refugee Award, given to a person or orga- refugee and returnee hosting areas. nization that has rendered exceptional service to the refugee cause; and Reach Out to the Youth,a Lessons have been gathered from countries programme designed to sensitize young audi- where DAR/DLI and the “4Rs” were successfully ences on refugee issues through cooperation with piloted. A review of the “4Rs” process was con- schools and youth associations and the dissemi- ducted in 2005 with support from the UNDP nation of educational materials. The Young African Bureau for Crisis Prevention and Recovery and the Refugees: Building the Future kit will be offered to UNHCR Core Group for Durable Solutions. Fur- English speaking countries in Europe, North thermore, an evaluation of the Zambia Initiative America and Asia. Other educational materials programme was initiated in late 2005 to docu- and youth publications will be updated, reprinted, ment good practices and lessons learned in and adapted for distribution in an interactive for- DAR/DLI. In 2006, efforts will be made to further mat, on DVD and via the internet. expand good practices in linking humanitarian assistance to longer-term development, mainly As UNHCR has at its disposal relatively limited through dissemination of information on the pro- funds with which to try to accelerate the diversifi- vision of training and through the Knowledge Net- cation of its funding base, it has established work on Durable Solutions (a web-portal on programmes which focus on fund raising in a lim- durable solutions for displacement has been cre- ited number of countries. The work is carried out ated to facilitate information flow). Support will be with and in support of national associations and provided to countries in consolidating outcomes branch offices. Marketing materials, such as press where the DAR/DLI and the “4Rs” programmes releases and TV spots, will be developed for use in have been launched. Tools and operational guide- fund raising appeals for emergencies, and the lines have been developed to operationalize the coordination of activities between the national Framework for Durable Solutions, and to provide associations and Headquarters, in order to further training. improve the monitoring and evaluation of the annual private sector strategic plan and private In addition to Afghanistan, Eritrea, Sierra Leone sector fund raising methodology. and Sri Lanka, where the “4Rs” approach has been piloted, new countries including Angola, Burundi, The activities of UNHCR’s Library and Visitor’s the Democratic Republic of the Congo, Liberia, Centre are an integral component of the Global Rwanda and Sudan will be supported. In these programmes. repatriation operations any vital unforeseen or newly emerging operational needs will be Linking humanitarian assistance to longer-term addressed by the project known as Support to 4Rs development: Efforts to make the Framework for Programmes and Programming Approach. The Durable Solutions operational will continue in 2006 project is intended to ensure the linkages to better equip UNHCR field offices with the between all four processes, with the overarching appropriate tools and skills to ensure smooth aims of poverty reduction and the creation of transition from humanitarian assistance to good local governance. long-term development. The projects linking humanitarian assistance to The Framework for Durable Solutions is a key building longer-term development require strong institu- block in support of the Agenda for Protection and the tional cooperation and commitment. In this Convention Plus initiative and consists of three regard, UNHCR will consolidate partnerships initi- sub-elements: Development Assistance for ated at the headquarters and field levels with Refugees (DAR); Repatriation, Reintegration, development partners including FAO, Deutsche

UNHCR Global Appeal 2006 62 Gesellschaft für Technische Zusammenarbeit (GTZ), of concern in order to support regional emergency ILO, Japan International Cooperation Agency preparedness capacity. The Emergency Prepared-

(JICA), UNDP, and UNICEF. Furthermore, UNHCR ness and Response Section (EPRS) will establish Global programmes will foster new partnerships with development three emergency response team (ERT) rosters, NGOs and bilateral development agencies. and hold training workshops for emergency man- UNHCR’s role in these endeavours is essentially agers for people on the rosters, including 90 catalytic and one of advocacy: developing refugee- UNHCR staff and some 30 staff of partners and hosting areas in countries hosting large popula- other UN agencies. The ERT, combined with the tions of refugees, and seeking increased donor staff available for deployment within ESS, consti- support to empower refugees. tute the primary emergency response mechanism in the organization. To strengthen the quality of leadership in humanitarian operations, support Programme support stronger coordination between agencies, and fos- ter the development of best practice in emer- activities gency leadership and management, two sessions of the new inter-agency Emergency Team Leader The primary objective of programme support Training Programme will be conducted in 2006 activities is the development, delivery and evalu- in close collaboration with the Inter-Agency ation of an organization’s programmes. This will Standing Committee. also include the costs of units or staff that provide support to programmes in the field on a technical, With the introduction of the Action Alert system in thematic, geographic, logistical or administrative 2005, UNHCR strengthened its early analytical basis. The Emergency and Security Service (ESS) capacity, information management and early is one example of a unit that is involved in warning mechanism. In 2006, UNHCR will intro- field-oriented activities and support to them. duce system changes that will provide a more dif- Activities related to the development of information ferentiated analysis. systems in the field are also included in this category. ESS will continue its close collaboration with the eCentre in Japan, which has developed into a sig- Executive Direction and Management nificant training institution in emergency manage- ment and security training in Asia. For 2006, ESS Emergency and security management: Fol- and JICA will support the eCentre to hold four lowing the Tsunami emergency response, an security training workshops, three emergency-related internal review highlighted the need to strengthen workshops and a workshop on management of UNHCR’s emergency response capacity. Given transition between emergency and development. the magnitude of more recent emergencies, the Office will strengthen its emergency preparedness As a humanitarian organization with primary by increasing the number of standby staff and by responsibility for the protection of refugees and strengthening the Central Emergency Stockpile in other persons of concern, UNHCR is committed Copenhagen, Dubai and other locations (contain- to improving safety and security for its staff and to ing blankets, plastic sheeting, jerry cans, cooking mitigating the security risks attendant upon the stoves, kitchen sets, lightweight shelters, vehi- services they render. To achieve the overarching cles, trucks and prefabricated warehouses) to goal of attaining a safe and secure environment meet the initial needs of up to 500,000 people. for its staff, UNHCR conducted a review of its The improved emergency preparedness and security policy in 2004 and began to implement response capacity will also include telecommunica- the resulting work plan in 2005. The work plan tions and IT package solutions for emergency teams covers six thematic areas: 1) organization struc- and is scheduled to be in place by the end of 2006. ture and resources; 2) human resource manage- ment and staff welfare; 3) policy, strategy and UNHCR willconduct six sessions of adapted operational guidance; 4) training and capacity situational emergency training for UNHCR building; 5) strengthening operations; and and its partners in countries and regions 6) external partnership.

63 UNHCR Global Appeal 2006 lblprogrammes Global

In view of the positive progress made in the first Such an approach will involve various stake- year of implementation, ESS and more specifically holders, including national and international the Field Safety Section (FSS) will pursue the over- security forces (police and military). In this con- all goal of mainstreaming security into every facet text, ESS urges States to meet their primary of UNHCR’s work. Security and safety must responsibilities, and if necessary helps them to do become everyone’s business and responsibility, so. UNHCR will continue to explore its coopera- managers and staff alike. To this end, the Emer- tion with the UN Department of Peacekeeping gency and Security Service will continue to pursue Operations (DPKO) especially within integrated the following objectives in 2006: missions. Efforts to strengthen national capacity to manage refugee and returnee-related security • Raise security management to levels similar to issues, as presented in UNHCR’s Agenda for Protec- protection or gender issues within UNHCR, tion (Goals 3 and 4), will also include advocacy and recognizing it as a fundamental element under- specific programme activities in the areas of mine pinning all operations; action, small arms and light weapons, and interac- • Advocate a comprehensive approach which tion with the military (so that military forces main- considers the security implications in all tain respect for humanitarian principles). aspects of UNHCR operations planning, and from the earliest stages; Global programmes carried out by the Division of • Promote continuous re-evaluation and adjust- Information Systems and Telecommunica- ment of operations in the light of changing tions (DIST) relate mainly to the progressively security environments; and launch of the Management Systems Renewal • Encourage managers and staff to balance Project (MSRP) and other activities relating to humanitarian objectives and essential security the information technology support to the Field. in their planning of activities. The successful 2005 MSRP roll-out in Europe shows that this approach can reduce the risk of In support of the objectives above, ESS piloted organizational overstretch inherent in a simulta- the Security Management Learning Programme neous global deployment. With the phased imple- (SMLP) in 2005, a learning programme consisting mentation of staff and site preparation, training, of a distance learning module and workshop, and ongoing support, DIST will continue to main- designed to improve the ability of UNHCR managers tain a stable operational environment for the in high-risk duty stations to handle complex staff Finance and Supply Chain system during field security issues and manage risk. In 2006, ESS intends roll-out. to continue with three further sessions of SMLP. ESS also plans to hold two Advanced Risk Management MSRP roll-out plans for 2006 have been estab- training sessions for Field Safety Advisers. lished with the field offices and headquarters units of the CASWANAME, Americas, Asia and Emergency-related projects: ESS will also con- Africa Bureaux. Implementation in some locations tinue to pursue strong relationships with the in Africa and Asia is expected to be complex due United Nations Department for Safety and to infrastructure issues. MSRP Finance and Supply Security (UNDSS) to ensure that the needs of Chain will be rolled out to the majority of UNHCR humanitarian agencies in general, and UNHCR’s offices by the end of 2006, with the remainder in mandate and operations in particular, are early 2007. addressed in new policies and guidance formu- lated by the Department. Meanwhile efforts at Headquarters will focus on the build phase of the MSRP Human Resources In close collaboration with DIPS, DOS and the component. The HR Management module will be Bureaux, ESS is the focal point and main advisor completed by the second quarter, with implemen- on policy, strategy and any general questions tation at Headquarters to follow immediately relating to the physical protection and security of thereafter. MSRP Global Payroll will begin imple- refugees and others of concern to the Office. The mentation in the fourth quarter of 2006. importance of a comprehensive approach to enhancing refugee security has been recognized.

UNHCR Global Appeal 2006 64 The operation of MSRP in 2006 will be hosted at established standards and indicators to improve the International Computing Centre (ICC) in the delivery of protection and assistance to

Geneva. ICC has provided compelling financial refugees. Global programmes and service-level guarantees to UNHCR which are expected to save the organization some USD 7.5 In 2006, PCOS will undertake the following million over the next five years. activities:

Intranet Services will complete the redesign of • Deliver the Operational Management Learning UNHCR’s internal website (intranet), “UNHCR-Net”. Programme (OMLP) through training sessions A Content Management System will be linked to to upgrade the knowledge and skills of staff UNHCR-Net, allowing intranet publication by offices who manage protection and assistance away from Headquarters. This will lay the foundation activities. for enhancing the organization’s knowledge manage- • Offer Basic Programme Management Training ment capacity at Headquarters and in the Field, (BPMT) to provide staff with basic skills and allowing the organization to capture, retain, organize knowledge in programme management. and rank strategic knowledge assets of its staff. Other • Field testing of the second edition of the Practi- major initiatives will be the integration of the cal Guide for the Systematic Use of Standards and PeopleSoft “Portal” with UNHCR-Net, giving stream- Indicators in UNHCR Operations. lined access to financial and human resources • Conduct surveys on the use of application of systems. the Standards and Indicators as a tool to mea- sure achievement of the UN Millennium Field activities for 2006 will include the first Development Goals. round of upgrades to version 2 of the proGres • Further develop the comprehensive needs Refugee Registration system, providing the assessment mechanism with the help of the option to deploy it to governments and imple- Standards and Indicators Reports as the menting partners. Following the successful first building block towards introducing upgrade of the field computing infrastructure results-based management in programme and the conversion from DAMA to PAMA satel- planning and resource allocation. lite communications in 2005, a global Wide Area • Make “gaps analysis” a prominent feature of Network (WAN) will be launched to enhance sat- results-based management. Mechanisms will ellite connectivity in smaller offices to support be developed to enable evidence - based e-mail, UNHCR-Net, MSRP and proGres.Aseries assessments and the prioritization of of Information and Communications Technol- programmes by analyzing existing gaps in rela- ogy (ICT) workshops will be held in the Field to tion to agreed global standards. ensure that local and regional ICT staff are • Develop tools for data management and analy- updated with the evolving technology and are sis to enable effective prioritization. given a forum to provide feedback to the DIST management. Division of Human Resource Management (DHRM) Division of Operational Support Training of UNHCR Staff: The delivery of core In 2006, UNHCR will strengthen results-based and generic learning programmes aimed at management through improvements to UNHCR’s improving functional skills will continue. In partic- Operations Management System (OMS) (Global ular, the Staff Development Section (SDS) of the Strategic Objective 9.1). The Programme Coordina- Division of Human Resources Management will tion and Operational Support Section (PCOS) will focus on strengthening UNHCR’s management continue providing comprehensive management culture through the Management Learning support to UNHCR operations worldwide. PCOS Programme (MLP), which in 2006 will be expanded will also continue developing management sys- to provide a wider and more flexible range of tems based on assessment of needs against learning opportunities for all levels of managers.

65 UNHCR Global Appeal 2006 lblprogrammes Global

Both current and aspiring managers will benefit The implementation of the various components from either a comprehensive diploma programme of the staff assessment framework will be priori- or a number of just-in-time learning modules. New tized - through progress from the pilot phase to advanced learning packages are being developed the roll-out of the entry test for applicants for jobs on topics such as negotiation skills and account- at UNHCR and the 360-degree feedback system ability. SDS will contribute its expertise on leader- to identify development needs of senior staff. ship development in meeting the needs of women Additionally, a detailed project plan for the man- as managers. Efforts will be made to establish agement assessment centre will be finalized for linkages between learning, performance and use in mobilizing the required resources for its career development. Further to preparatory work implementation. undertaken in 2005, RBM will be applied in selected training activities in 2006. Special staff costs including voluntary separation Training-related projects: UNHCR will con- tinue to work on strengthening its learning culture As part of the organization’s strategic human by increasing staff familiarity with the Learning resources management needs, UNHCR will con- Policy and Guidelines and their application. tinue to offer voluntary separation opportunities Through the use of varied media, it intends to gen- and early retirement to create space for renewal erate greater support for learning and develop- and mobility. The availability of these packages ment among staff and senior management. The will reflect current staffing priorities, as defined professionalization of the staff development func- during consultations between DHRM and the tion will remain a strategic priority, involving Executive Office. enhancement of the capacity of relevant staff and training providers.

UNHCR Global Appeal 2006 66 GLOBAL PROGRAMMES BUDGET (USD) ACTIVITIES Annual programme budget Global programmes POLICY PRIORITIES Refugee Women 396,000 Refugee Children and Adolescents 602,999 The Environment 666,000 Health-Related Projects (HIV/AIDS) 1,170,000 Emergency-Related Projects (1) 5,886,852 Sub-total Policy Priorities 8,721,851 OTHER ACTIVITIES Promotion of Refugee Law and Advocacy 331,200 Resettlement Projects 2,196,000 Protection-Related Projects/Voluntary Repatriation (2) 3,084,601 Research/Evaluation and Documentation 258,750 Registration/Project Profile (3) 1,147,500 Public Information/Media Projects/Private Sector Fund Raising (4) 6,526,520 Training-Related Projects 223,000 Linking Humanitarian Assistance to Longer-term Development 460,665 Miscellaneous (5) 3,316,536 Sub-total Other Activities 17,544,772 PROGRAMME SUPPORT ACTIVITIES Executive Direction and Management – Emergency and Security Service (6) 14,025,473 Department of International Protection – Resettlement Field Support 155,000 Division of Information Systems and Technology – Business Solution Service and Management System Renewal Project (7) 26,597,712 – Information Technology - Field Support (8) 3,176,296 Division of Human Resource Management – Training of UNHCR staff 3,350,000 – Special Staff Costs including Voluntary Separation 8,500,000 Sub-total 55,804,481 GRAND TOTAL 82,071,104

(1) Includes Emergency and security management and support (USD 700,000), Rapid emergency preparedness and response (USD 1,206,150), e-Centre for Asia and Pacific (USD 500,702), Stockpiling, warehousing and deployment of emergency equipment (USD 3,480,000). (2) Includes refugee status determination (USD 562,595), legal and policy research project (USD 315,000), information (USD 169,740), Voluntary repatriation of individual refugees (USD 40,500), and Surge Protection Capacity Project (USD 1,996,766). (3) Includes consultancies for evaluations of UNHCR’s field operations, as well as provision of expertise on policy analysis. (4) Includes Public affairs activities (USD 454,500), Public information activities (USD 758,863), Private sector fund-raising (USD 4,718,257), Visibility and promotional items supply (USD 95,400), Library and visitors centre (USD 207,000) and the State of the World’s Refugees (USD 292,500) (5) Includes non-refugee legal matters (USD 25,000), NGO liaison and support for effective cooperation (USD 189,000), Nansen Refugee Award (USD 54,000), strengthening field capacity in community development (USD 1,778,536), Standards and Indicators Mainstreaming (USD 720,000), Implementation of a UNHCR Assessment Framework (USD 350,000) and Costs of insurance and inspection of goods (USD 200,000). (6) Includes costs for maintaining Minimum Operating Security Standards and funds for unforseen security needs (USD 1,510,000), cost-sharing of DSS’s annual operations in the field and Malicious Acts insurance policy (USD 6,242,300) and other security and related costs. (7) Includes field upgrades, technical infrastructure, finance supply chain, human resources, Business Solutions Service and MSRP Support for the Field and HQ. (8) Includes information technology services for field operations such as telecommunications, user services, application development, etc.

67 UNHCR Global Appeal 2006 Africa Central Africa and the Great Lakes Chad/Sudan situation East and Horn of Africa West Africa Southern Africa

n 2006, the primary objective of UNHCR in IAfrica will continue to be the search for durable solutions, particularly for protracted refugee situ- ations (Global Strategic Objectives 2, 3 and 5). Top priority will be given to achieving the volun- tary repatriation of refugees and the return of internally displaced people to their areas of origin in conditions of safety and dignity, and to sup- porting the sustainable reintegration of returnees. Self-reliance measures, particularly for refugees in protracted situations, will be vigorously pursued as a means to facilitate their local integration, or to promote broader acceptance of their presence amongst host communities. This strategy will also aim at contributing to the sustainability of refu- gees’ eventual return to their home countries. In addition, UNHCR will continue to provide protec- tion and assistance to internally displaced people within the framework of the UN collaborative approach. Central Africa and the Great Lakes

Recent developments

uring 2005, the Central Africa and the Great DLakes subregion experienced further stabiliza- tion and progress towards peace and democracy. No major refugee crisis occurred in the region in 2005 although about 10,000 Central Africans fled into southern Chad following security incidents in villages near the border and despite some influxes from the Democratic Republic of the Congo (DRC) into Rwanda and from Rwanda to Burundi. UNHCR has therefore been able to continue its ongoing activities and initiate new repatriation operations in the region.

A new Government took over from the transitional authorities in Burundi following successful elec- tions in August 2005. The continued presence and support of the United Nations Operation in Burundi (ONUB), followed by the deployment of Burundi over 5,000 troops within the country in early 2005, Central African Republic has resulted in an improved security situation. Peaceful parliamentary and presidential elections Democratic Republic of the Congo also took place in the Central African Republic Gabon (CAR) and presidential elections in the United Republic of Tanzania (Tanzania) and Gabon are Republic of the Congo due to be held before the end of 2005. The Rwanda Republic of the Congo (RoC) has remained gener- ally stable despite recurrent security incidents in United Republic of Tanzania the Pool region. the Great Lakes Central Africa and

In the Democratic Republic of the Congo, joint survivors, defendants and witnesses to present actions by the United Nations Mission in the their cases in an open and participatory environ- Democratic Republic of the Congo (MONUC) and ment). In early April of this year more than 8,000 the DRC national army have led to greater stability Rwandans originating from Butare and Gikongoro overall, despite continuing insecurity in some Provinces fled to the Northern Provinces of areas such as Ituri and parts of the Kivu provinces. Burundi, seeking asylum. However, in June, the The stronger presence of MONUC and the ongo- authorities of Rwanda and Burundi decided to ing disarmament and brassage process (integration forcibly return all the asylum-seekers, branding of former armed groups into the national army) them “illegal migrants”. Some 5,000 asylum-seekers will hopefully contribute toward further improve- were eventually deported back to Rwanda while ment. The DRC transition process advanced fur- others went into hiding. At the time of writing, ther with the adoption of a constitution and the approximately 3,000 newly arrived Rwandan asylum- organization of voter registration in preparation seekers are seeking effective protection and assis- for elections scheduled for 2006. At the time of tance in Burundi. Burundian authorities have writing, more than 15 million voters are reported agreed to individual refugee status determination to have registered, including a number of sponta- procedures. neously returning refugees. Under the ongoing repatriation to Burundi, to date Though the political situation in Rwanda has more than 53,000 Burundians returning mainly from remained stable, there was an influx of Rwandan camps in Tanzania and Rwanda have reintegrated in asylum-seekers in Burundi, following the intro- their areas of origin with the support of UNHCR. duction of the Gacaca (community tribunals which After a mid-year slowdown, returns regained are providing an opportunity for genocide momentum with the August presidential elections.

73 UNHCR Global Appeal 2006 eta fiaand Africa Central h ra Lakes Great the

Republic of the Congo: Refugees returning home to the Democratic Republic of the Congo (DRC) aboard a transfer boat on the Oubangui River. They will stop at a transfer centre in Monzombo, DRC, and from there, many will be taken by truck to their home villages. Others will have to walk. UNHCR / J. Ose

With regard to repatriation to the DRC, a tripartite these countries. The age, gender and diversity agreement signed with Tanzania in late January mainstreaming strategy will also be implemented 2005 was a welcome addition to the two agree- in Tanzania, Rwanda, Burundi and DRC by the end ments already signed in 2004 with CAR and RoC. of the year. The remaining countries in the region Similar agreements are also being prepared, will be targeted in 2006. notably with Sudan. The official launch of facili- tated repatriation from Tanzania to safe areas of return in southern Kivu is scheduled for mid-October Strategic objectives 2005. It is worth noting that since October 2004, more than 20,000 refugees have already returned home to the DRC. Ensuring effective protection through access to asylum procedures and prevention of refoulement During 2005, UNHCR also introduced the new reg- will remain at the core of the protection strategy istration system (PROFILE) in Tanzania, RoC, DRC, in the region. In addition, UNHCR will pursue its Gabon and CAR and conducted verification exer- programmes to address sexual and gender-based cises for the majority of the refugee populations in violence, with a particular focus on reinforcing

UNHCR Global Appeal 2006 74 pursue accession by States in the region to the 1954 Convention Relating to the Status of State- less persons and the 1961 Convention on the Reduction of statelessness.

Similarly, the emphasis on sharing burdens and responsibilities more equitably and redoubling the search for durable solutions will be pursued, notably through the strategic use of resettlement. The group processing of the 1972 Burundian refugees in Tanzania and the Gatumba survivors in Burundi will be undertaken in 2006. the Great Lakes Central Africa and In 2006, UNHCR will continue to work on improv- ing conditions in areas of return in the DRC, and ensure that return is sustainable, notably through reintegration assistance and returnee monitoring. It is the Office’s objective to include in its repatri- ation programme all neighbouring countries of asylum, in the hope that up to 123,300 persons can return in 2006. The Burundi repatriation oper- ation will be mainstreamed into the Annual Programme and most Burundian refugees in camps are expected to repatriate before the end of 2006. While UNHCR will provide limited repatri- ation assistance to the Burundian refugees living in the settlements in Tanzania since 1972, the Office will advocate for further socio-economic integration and the naturalization of those unable or unwilling to repatriate.

With regard to Angolans, the repatriation of the majority of camp-based Angolan refugees will have been achieved in 2005. The focus will then shift to finding a durable solution for those living referral mechanisms and designing preventive outside of established camps in DRC, and for the measures aimed at addressing root causes of the Cabinda refugees in RoC. Following “go and see problem. In refugee settlements, particular atten- visits” organized in 2005, it is expected that some tion will continue to be paid to the issue of pre- Cabindais refugees will eventually opt for repatri- serving the civilian character of asylum and ation. UNHCR will continue to advocate for the combating child recruitment, in close collabora- legal integration of those unwilling to repatriate. tion with Government counterparts and con- cerned agencies. UNHCR will also ensure better Despite the death of Vice President John Garang, registration and documentation of refugees. which raised concerns about the future of the Through contingency planning, the Office will Sudanese peace process, most of the Sudanese ensure effective and predictable responses to refugees currently hosted by the DRC are eager to mass movements. return. UNHCR is gearing up for the organized return which should be commencing at the end of In view of the fact that statelessness or disputed 2005 and will continue through 2006. nationality may be a key factor in the resolution of various conflicts in the Great Lakes, UNHCR will

75 UNHCR Global Appeal 2006 Following the elections in CAR, and provided that the Government is able to restore security in the Operations northern region, UNHCR will establish a presence. It will then implement activities, within a UN col- Operations in Burundi, CAR, DRC, RoC, laborative approach, to prepare the ground for the Rwanda and Tanzania are covered in individual return of CAR refugees from Chad and Cameroon country chapters. and, if conditions are met, will start facilitating returns towards the end of the year. At the time of writing had almost com-

eta fiaand Africa Central Gabon h ra Lakes Great the pleted the verification of the refugee and asylum- In terms of durable solutions for the remaining seeker population, with the registration of some Rwandan refugees found mainly in the DRC and 13,800 refugees and asylum-seekers mostly from RoC, only a limited number of individuals are cur- the RoC. At most only a few hundred failed to rently repatriating, mainly from the DRC. More reach the registration points during the main exer- concerted efforts by UNHCR and other actors are cise. Other main groups of refugees come from needed to overcome fears and renew the momen- Chad and DRC. tum for return. Additional tripartite agreements will be signed and UNHCR will continue to pro- The protection environment is far from ideal, and mote repatriation through “go and see” visits, is marred by frequent reports of harassment, information campaigns and increased returnee detention, and theft of refugees’ belongings by monitoring. Nevertheless, prospects for local security forces. UNHCR has also been concerned integration of some of these refugees will need to that the protection climate might deteriorate in be further explored in 2006. the run-up to the December presidential elections due to fears that foreigners living in Gabon, partic- The search for durable solutions for Congolese ularly Congolese, will be made political scape- refugees in Gabon, including repatriation and goats. UNHCR has conducted sensitization local integration, will continue throughout next campaigns among refugees to discourage them year. from any involvement in the elections and has strengthened its information activities and train- In 2006, UNHCR will continue to implement its ing of authorities and security forces on refugee multi-year HIV and Refugees Strategic Plan. Imple- rights and the difference between a refugee and mentation of subregional AIDS initiatives, such as an immigrant. As the lack of recognizable docu- the Great Lakes Initiative on AIDS (GLIA) and the mentation frequently led in the past to harass- Oubangui-Chiari Initiative, will begin in 2006, after ment by security forces, UNHCR has secured a years of planning and preparation. This will ensure commitment from the Government to issue ID more comprehensive and integrated HIV activities cards to refugees on the basis of the verification for refugees and surrounding host communities. exercise. With support from UNHCR, the Government At country level, UNHCR will continue to advocate will issue these cards, hopefully before the presi- for refugees and other persons of concern to be dential elections. Possession of an ID card will included in the host countries’ National Strategic also entitle refugees to obtain a cartedeséjour Plans and will pursue funding opportunities. (residence card), which will allow them to work. While few refugees will gain access to formal With regard to internally displaced people (IDPs), employment, these documents will facilitate the current population in the subregion is esti- self-employment and socio-economic integra- mated at 3.5 million. IDPs will benefit from tion. To further improve refugee protection, returnee monitoring and community-based UNHCR will in 2006 continue to strengthen the assistance in areas where refugees are returning. Commission nationale pour les réfugiés, provide spe- In the DRC, UNHCR and UNDP jointly chair the cific protection training to authorities and security inter-agency working group on reintegration, forces and organize information/sensitization focusing on strategies to benefit all returnee campaigns among the media, civil society and groups, including IDPs. politicians to combat negative attitudes. UNHCR

UNHCR Global Appeal 2006 76 also intends to strengthen and support the RSD expanded to include lack of durable solutions on process in Gabon. an individual basis. UNHCR’s assistance programme will move away from relief towards In terms of durable solutions, UNHCR will further refugees’ self-reliance and skills development shift its focus from repatriation towards local inte- taking into account market activities and gration as the refugees remaining in Gabon are employment opportunities. UNHCR will call for a not willing to repatriate (only about 300 refugees collaborative approach and enlist the support are expected to have repatriated by the end of and expertise of relevant Government institutions 2005). Resettlement will continue to be used as a and UN development partners. protection tool but the criteria will also be

Budget (USD) the Great Lakes Central Africa and Country Annual Programme Supplementary Total Budget Programme Budget2

Burundi 37,234,162 536,646 37,770,808

Central African Republic 5,428,940 412,004 5,840,944

Democratic Republic of the Congo 18,336,569 54,545,729 72,882,298

Gabon 3,620,963 0 3,620,963

Republic of Chad 74,337,462 0 74,337,462

Republic of the Congo 6,817,537 2,760,132 9,577,669

United Republic of Tanzania 27,998,719 3,517,240 31,515,959

1 Regional activities 9,659,400 0 9,659,400

Sub-total 183,433,752 61,771,751 245,205,503

Rwanda 6,724,352 1,009,229 7,733,581

Total 190,158,104 62,780,980 252,939,084

1 Includes assistance to various refugees in the Central Africa and Great Lakes region, such as resettlement and relief, as well as support costs for UNVs and consultants, light aircraft charters costs and scholarships for refugees students. It also includes activities for the implementation of Project Profile in Africa. 2 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 4,394,669) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

77 UNHCR Global Appeal 2006 Burundi

Main objectives • Facilitate the voluntary and sustainable return of 10,000 DRC refugees in Burundi who wish to repatriate. • Facilitate the repatriation of 150,000 Burundian • Support the newly appointed Government in refugees mainly from the United Republic of strengthening the national structures responsible Tanzania (Tanzania), the Democratic Republic for refugee and returnee matters and in the of the Congo (DRC) and other neighbouring adoption of the draft refugee law. countries. • Contribute to the improvement of living condi- Planning figures tions in areas of return and facilitate the Population Jan. 2006 Dec. 2006 reintegration of Burundian returnees and inter- nally displaced persons (IDPs) into their Returnees 150,000 150,000 communities of origin by providing economic, DRC (refugees) 48,400 37,600 social and psychological support and by pro- IDP returnees 50,000 40,000 moting self-reliance projects. • Continue to provide protection and basic assis- Asylum-seekers 11,900 3,000 (DRC) tance to camp-based DRC refugees until the security situation in the South Kivu area is con- Other refugees 230 80 ducive to their voluntary repatriation. Total 260,530 230,680

Total requirements: USD 37,770,808

UNHCR Global Appeal 2006 78 Working environment Constraints The main constraint remains the fragile security Recent developments situation in many areas. Whether or not security levels will improve depends on the stabilization of The transitional period brought about by the 2000 the political situation following the elections as Arusha Peace Accords came to a conclusion with well as on the outcome of negotiations with the the inauguration in August 2005 of the newly FNL. The proliferation of weapons also needs to elected President Nkurunziza, a member of the be addressed urgently by the new Government. main ex-rebel movement Conseil national pour la défense de la démocratie/Forces pour la défense de la Security measures for the protection of UN staff in démocratie (CNDD/FDD). A new cabinet was volatile areas in Burundi are unavoidable. Never- Burundi recently appointed. theless, they significantly impede the mobility of UNHCR staff and the capacity of the Office to Although still fragile, security in most parts of the facilitate voluntary repatriation in four provinces country has improved considerably, allowing to which most of the “1972 refugees” are likely to UNHCR to facilitate the return of refugees to 13 return (these are Burundians who left their coun- out of 17 provinces. Humanitarian conditions try either in 1972 or before the 1993 events). likewise improved, in part due to the continued presence and support of the United Nations The absence of a consistent policy for the return Operation in Burundi (ONUB). The mission, which of IDPs leaves a significant gap in the provision of started in June 2004, entailed the deployment of assistance to returnees and their communities. 5,350 troops in early 2005, and has been There is currently no agency with an appropriate extended to December 2005. ONUB supports the mandate for this population, and only 10 per cent Government of Burundi in the training of police of IDPs who have returned benefit from UNHCR’s staff, the demobilization process and the reinte- shelter programme. However, following the mis- gration of ex-combatants. By early September sion to Burundi by the OCHA Inter-Agency Inter- 2005, more than 16,500 ex-combatants had been nal Displacement Division in early June 2005, it is demobilized. The only remaining rebel group, the expected that a local Inter-Agency Standing Com- Front national de libération (FNL), still active in mittee (IASC) will be established by the UN Coun- Bujumbura Rural, Bururi, Cibitoke and Bubanza try Team; in this framework, UNHCR could play a Provinces, is currently in discussions with the new leading role in protection, camp coordination and Government. emergency shelter.

The pace of return slowed down considerably The uncertainty of available funds is also a major during the period of political uncertainty from impediment to the successful reintegration of October 2004 to June 2005 when the elections returnees. Funding problems delayed the imple- were postponed and renewed violence was feared. mentation of the shelter programme and of com- During the first eight months of 2005, UNHCR facil- munity stabilization projects, which aim at itated the repatriation of some 38,000 Burundian rehabilitating social infrastructure and developing refugees mainly from Tanzania, bringing the total income-generating activities, and several activities number of returnees to 264,000 since the begin- had to be drastically reduced in scope. ning of the operation in 2002.

UNHCR works in close cooperation with the Strategy national authorities, its partners and UN sister agencies to improve living conditions in the areas Protection and solutions of return and thereby ensure the sustainability of returns. At the time of publication, the most recent statis- tics showed Burundi hosting over 48,000 refugees,

79 UNHCR Global Appeal 2006 mainly from the DRC (of whom 8,000 are receiving assistance in camps, with another camp-based refugees hosted in Gasorwe and 198,000 living in settlements near the border with- Gihinga). Among these refugees are survivors of out assistance. There are also more than 19,000 the Gatumba massacre who still feel threatened, Burundian refugees in DRC, many of whom may and now suffer from serious medical conditions, opt to return in 2006. as well as some urban refugees who could not be locally integrated. Continued monitoring of returnees not only veri- fies that they are living in safety and facilitates UNHCR will review the option of facilitating the their administrative and legal reintegration but Burundi return of Congolese refugees should conditions in also helps to gather accurate information on living DRC improve. Meanwhile, UNHCR is seeking and security conditions in communities of origin. to improve security in cooperation with the In Burundi, this enables UNHCR to make appro- Government of Burundi and ONUB, in particular priate interventions in terms of general advocacy with a view to ensuring the civilian character of and also to intervene in individual cases should camps. The adoption of a national law on asylum there be reports of violations of returnees’ rights. will also enable UNHCR to substantially increase In the country of asylum, this information is dis- its support to the Government of Burundi’s seminated to the refugees still living in exile to national asylum system (establishing a permanent enable them to make an informed decision on structure and appropriate procedures, including return. training). Returnee monitoring is conducted within the In April 2005, an estimated 8,000 Rwandans origi- framework of an agreement with a local human nating from Butare and Gikongoro Prefecture fled rights NGO. More than 90 observers cover all across the border into the northern provinces of provinces of Burundi, with a higher number in Burundi following the setting up of the Gacaca provinces of major return. A letter of understand- (community tribunals which are providing an ing was also signed in 2004 with an international opportunity for genocide survivors, defendants NGO setting up a pilot project, which includes the and witnesses to present their cases in an open monitoring of IDPs in the province of Makamba. and participatory environment). After a series of This project could be further expanded if UNHCR bilateral consultations, authorities in Burundi and is called upon to expand its work on behalf of the Rwanda agreed in June 2005 to forcibly repatriate IDP population in Burundi. these Rwandan refugees. Roughly 5,000 were deported while others went into hiding in the for- UNHCR will continue to facilitate voluntary repa- ests or with Burundian families. The recent regis- triation under conditions of safety and dignity. At tration exercise in the northern provinces of their final destination, locally formed Comités Muyinga, Ngozi and Kirundo revealed the pres- d'accueil will ensure that returnees are welcomed ence of over 2,300 Rwandan asylum-seekers and receive guidance on the recovery of their (refugees who had evaded forced return in June property and reintegration into their communi- 2005 plus new arrivals). Assistance (comprising ties. Particular attention will be paid to organizing food and non-food items) is being provided for reconciliation activities between Hutus and Tutsis them. A joint plan of action by UNHCR and and supporters of different political parties to Burundian authorities involves registering the avoid disputes between returnees and others. concerned population (already completed) and UNHCR will support traditional conflict resolution holding interviews with a view to either advising structures and, together with its partners, seek to them to return to Rwanda, or to proceed to formal familiarize the population with the state legal sys- refugee status determination (RSD). However, this tem and, whenever possible, resolve conflicts plan has not yet been approved by the directly (most are land disputes). Government.

In western Tanzania, as of the end of August 2005, some 225,000 Burundian refugees were

UNHCR Global Appeal 2006 80 Assistance

UNHCR will continue to run reception facilities along the border with Tanzania to accom- modate returnees arriving either in UNHCR-facilitated convoys or spontaneously. From there, the Office will provide onward trans- port to communities of origin. Returnees will receive a package of basic domestic items from Burundi UNHCR and a three-month food ration from WFP. The houses of most returnees are damaged beyond repair and, as returnees are considered to have special needs, they will be covered by a housing scheme whereby they will receive materials which can- not be easily made or found, such as corrugated iron sheets for roofing, nails and locally pro- duced doors and windows. The returnees will then provide the remaining materials and labour.

UNHCR will continue to provide assistance to local communities so as to increase the absorption capacity of return areas and to A returnee mother and her child, just returned from Tanzania, awaiting registration at promote dialogue between the Gisuru reception centre. UNHCR / A. Brekke returnees and the receiving pop- ulation. As agreed with UNICEF and WHO, the Office will focus on basic rehabilita- Rwandan refugees as well as Burundian returnees tion and reconstruction of schools and health from Tanzania. centres in areas of return. Meanwhile, UNICEF will ensure that the infrastructure is functional by pro- UNHCR will ensure that by-laws and administra- viding basic equipment, health kits and support- tive procedures are put in place to deal with the ing human resources. WHO will deploy staff to land issues raised by returnees. It will help the line help coordinate health activities and also provide ministry in charge of refugee matters to draft the health kits. Income-generating activities will be refugee law and strengthen the Eligibility Commit- further developed in return areas in collaboration tee and the Technical Group in charge of protec- with relevant partners. tion issues.

UNHCR will provide basic assistance to DRC refugees in established camps in Gasorwe and Desired impact Gihinga and will support a health clinic and school facilities for refugees in Bujumbura town. Together UNHCR's objective in Burundi is to facilitate the with its partners, the Office is regularly updating return of Burundian refugees, and to monitor and contingency plans for a sudden arrival of DRC and support their reintegration into their communities

81 UNHCR Global Appeal 2006 as stated in the Supplementary Appeal for the Repatriation, Reintegration, Rehabilitation, and Return and Reintegration of Burundian Refugees. Reconstruction). The CIR closed down in August The overall aim is to achieve sustainable return, 2005 and its activities will be taken over by the peaceful coexistence of the different popula- UNHCR, OCHA and UNDP. tions and lasting peace. It is hoped that refugees from DRC as well as other refugees will be able to Offices live in refugee camps in safety and dignity and Bujumbura repatriate when conditions are favourable. The Makamba adoption of asylum legislation should significantly Muyinga Burundi speed up the process of recognizing refugees in Ruyigi Burundi and ensure their access to all basic services.

Partners Organization and Government agencies Commission nationale pour la réinsertion des implementation sinistrés Ministère de l'action sociale et de la promotion de la Management structure femme Ministère de l’intérieur et de la sécurité publique Police de l'air, des frontières et des étrangers Operations in Burundi will be managed through the representative office in Bujumbura, a sub-office in Ruyigi and two field offices in NGOs Muyinga and Makamba which will work closely Action contre la faim with UNHCR offices in Tanzania (Ngara, Kasulu African Centre for the Constructive Resolution of Disputes and Kibondo), DRC and Rwanda. In 2006, there African Community Resource Centre will be 44 international staff, 121 local staff, one African Humanitarian Action secondee, one consultant from the Surge Project Association des femmes juristes and 10 UNVs. Association pour la paix et le développement Austrian Relief Programme Coordination CARITAS Centre pour l'autosuffisance et le développement The joint planning workshop with all actors and intégré beneficiaries held in February 2005 provided a Comunità Impegno Servizio Volontariato forum to review and prioritize the needs and gaps Conseil pour l’éducation et le développement identified during the field visits. Various MOUs International Rescue Committee concluded in 2004 with WHO, UNICEF, FAO, Ligue Iteka UNDP and the World Bank will remain in force, Maison Shalom covering health, education and food supply as Solidarités well as multisectoral activities designed to com- Studio Tubane World Outreach Initiatives plement existing arrangements. The Office will World Vision International participate in activities facilitated by OCHA, in the Consolidated Appeals Process and in the applica- tion of the IASC Needs Assessment Framework Others Matrix. Consistency in policy development was Deutsche Gesellschaft für Technische monitored until August 2005 through the Steering Zusammenarbeit Group of the Cellule inter-agence de réinsertion (CIR), a UN body set up by UNHCR, UNDP and the World Bank to facilitate policy development and coordi- nation in the context of the “4Rs” initiative (

UNHCR Global Appeal 2006 82 Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 8,606,312 250,000 8,856,312 coordination

Community services 408,200 4,092 412,292

Crop production 874,400 0 874,400

Domestic needs 1,981,660 26,596 2,008,256

Education 4,966,470 0 4,966,470 Burundi Food 0 6,206 6,206

Forestry 395,820 60,000 455,820

Health 1,251,680 5,000 1,256,680

Income generation 400,000 0 400,000

Legal assistance 767,280 60,000 827,280

Operational support (to 1,475,970 25,000 1,500,970 agencies)

Sanitation 100,500 0 100,500

Shelter/other 8,875,920 50,000 8,925,920 infrastructure

Transport/logistics 2,114,200 40,000 2,154,200

Water 387,900 9,752 397,652

Total operations 32,606,312 536,646 33,142,958

Programme support 4,627,850 0 4,627,850

Total 37,234,162 536,646 37,770,808

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 37,565) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

83 UNHCR Global Appeal 2006 Central African Republic

Main objectives • Strengthen the protection capacity of the Government of CAR, including institutions responsible for public order and the judiciary • Complete the repatriation of those refugees (in addition to those directly responsible for from Sudan and the Democratic Republic of refugees and returnees). the Congo (DRC) who are willing to return to their country of origin. Planning figures • Provide legal protection and facilitate local Population Jan 2006 Dec 2006 integration for refugees who opt to remain in the Central African Republic (CAR), and pursue Sudan (refugees) 17,500 9,470 resettlement for refugees with specific protec- DRC (refugees) 2,750 1,260 tion needs and those unable to repatriate or Chad (refugees) 410 410 locally integrate. • Advocate for and support activities within the Other (refugees) - 240 collaborative inter-agency framework aimed at Returnees - 12,000 gradually encouraging first spontaneous and Total 20,660 23,380 later facilitated voluntary repatriation of 3,000 CAR refugees in Chad. This will include reinte- gration, rehabilitation and reconstruction Total requirements: USD 5,840,944 assistance in areas of return.

UNHCR Global Appeal 2006 84 Some 1,300 Chadians living in Boubou in the Working environment region of Bossangoa were repatriated to Chad in September and October 2005, after hopes that Recent developments they might integrate locally were dashed by inse- curity and the collapse of the local cotton-based Although the apparently fair and transparent par- economy. liamentary and presidential elections restored constitutional order, a general climate of insecu- Further to the return of some 3,000 Congolese rity persists in the northern part of the country. (DRC) in 2004, UNHCR has registered some 800 Following incidents in the prefectures of Ouham refugees who signed up for voluntary repatriation and Ouham Pende, some 12,000 Central Africans in 2005. Most of these refugees intend to return to fled to Chad in three separate outflows in June, relatively peaceful parts of DRC (although not to July and August 2005. This brought the total num- troubled Equateur Province). UNHCR will under- ber of Central African (CAR) refugees in Chad to take family tracing for those candidates intending Central African Republic 42,000. These population movements prompted to return to Kinshasa or Lubumbashi. the Minister of Social Affairs to ask the United Nations Country Team (UNCT) to help assess and Constraints address the humanitarian situation in the areas of origin of the refugees. An inter-agency mission led Insecurity continues to be a major constraint. by UNHCR visited these areas and confirmed that Another serious constraint is the geographical several villages were almost deserted, with cash isolation of some refugee camps and potential crop production and commercial activity in abey- return areas, further aggravated by the poor state ance. The remaining population was in dire need of road infrastructure. For example the Mboki of assistance. The general climate of insecurity area, where the majority of Sudanese refugees seems to be caused by attacks by coupeurs de routes live, is accessed mainly by air and supplies that (armed bandits) and other armed groups as well as are transported by trucks take up to one month to conflicts arising from the non-respect of grazing arrive. routes by pastoralists, some of whom are apparently armed and cross into CAR from Chad during the dry season. Strategy With a view to halting the population movements and creating conditions conducive to the return Protection and solutions of refugees and internally displaced populations, the UN Country Team (UNCT) has proposed UNHCR takes a flexible and empirical approach responses in the short term (humanitarian assis- to the voluntary repatriation of Sudanese and tance); medium term (security); and long term Congolese (DRC) refugees. The operations are (recovery activities). These recommendations funded under separate supplementary budgets. were reviewed during the trilateral meeting on UNHCR in CAR will ensure that Sudanese refugees security between CAR, Chad and Cameroon, receive adequate information and that they are which was organized by the Bureau de l’Organisation familiar with the security and socio-economic des Nations Unies en Centrafrique (BONUCA) and the conditions in areas of origin and the region as a UN Peace-Building mission in CAR. whole, in order to take an informed decision on whether or not to repatriate. Mine-awareness Despite the uncertainties of the peace process, campaigns will be organized prior to voluntary most Sudanese refugees are determined and repatriation. In addition, refugees will receive all eager to return home. A tripartite agreement facil- necessary documentation in terms of birth, mar- itating their voluntary return will be signed later in riage and death certificates and school diplomas. 2005 and repatriation movements by air are UNHCR will also organize safe transport to reception expected to start before the end of that year. centres in countries of origin. Special measures

85 UNHCR Global Appeal 2006 will be put in place to ensure the welfare of refu- 12,000 who fled in 2005. The CAR Government is gees with special needs such as disabled persons, expected to re-establish security with the support separated children, female single-headed house- of the peace-keeping forces of the Economic and holds and elderly refugees. Monetary Community in Central Africa (CEMAC) and France, while the UNCT is expected to help The office expects to complete the repatriation of improve basic socio-economic conditions. The Congolese refugees wishing to return to the DRC. UNCT will also encourage dialogue between eta fia Republic African Central At the same time, it will implement the second Chadian pastoralists and CAR farmers to ensure phase of the local integration programme for the respect for grazing routes and implement a pro- 800 Congolese (DRC) refugees remaining in ject for the reintegration of former combatants. Molangue site, 150 kilometres south of Bangui, These interventions are expected to further who wish to stay in CAR. encourage spontaneous returns. UNHCR will also establish a field presence in Bossangoa and There are currently an estimated 44,000 CAR Kaga Bandoro. Detailed information about the refugees living in Chad and Cameroon, including situation in areas of origin will be collected and

Chadian refugee child at Boubou site. UNHCR / S. Beye

UNHCR Global Appeal 2006 86 disseminated to CAR refugees in their countries of Desired impact asylum. UNHCR field staff will help to assess the specific response required for their reintegration All Central African returnees will benefit from the and start implementing activities to improve con- rehabilitation and reconstruction of the areas of ditions for their return. The Office will also initiate return by the UNCT and other agencies, in support the process of establishing a legal framework (tri- of the Government’s activities. It is hoped that the partite agreement) for the return of refugees. Con- massive return of refugees will also act as a stabi- ditions permitting, UNHCR envisages facilitating lizing factor in the northern parts of the country. the return of 3,000 refugees in 2006 and expects 9,000 to return spntaneously. Organization and The increased presence of UNHCR staff in Mboki, as well as the opening of offices in Bossangoa, implementation

Bozoum and Kaga Bandoro, will enable UNHCR to Central African Republic undertake sensitization campaigns on issues Management structure relating to SGBV, to monitor the situation on the ground and act accordingly. In 2006, UNHCR will operate with a total of 35 staff members (five international and 28 national Assistance staff), one JPO and one UNV working in Bangui and the three field offices (Bossangoa, Kaga Bandoro and Mboki). During the first phase of the local integration programme for Congolese refugees in Molangue, UNHCR focused on food security and income Coordination generating activities. In the second phase, it will focus on handing over the management of basic UNHCR works closely with the Ministry of the services to the Government of CAR and the Interior, the Ministry of Social Affairs and the returnees and on ensuring its operability, in par- Ministry of Foreign Affairs. The Minister of the ticular the full integration of the health services Interior is the President of the Commission nationale provided by UNHCR into Ministry of Health pour les réfugiés (CNR), which implements UNHCR activities in the Lobaye region. Similarly, since legal protection and assistance programmes in Sudanese refugees are economically self-reliant, Bangui and in the Field. UNHCR regularly receives support (especially in health and education) for support from WFP, UNFPA, UNICEF and WHO. the local integration of refugees who opt to The collaboration with other UN agencies within remain will be devolved to the relevant authorities the UN Development Assistance Framework and after the repatriation operation. the Consolidated Appeal process has further strengthened the response to the needs of refugees In the context of the Central African refugees’ and other persons assisted by UNHCR. repatriation and reintegration, UNHCR activities are expected to focus specifically on shelter and Additional partners will be identified in the course other infrastructures while other agencies will of 2006 when detailed needs assessment is com- support the re-establishment of government ser- plete and responsibility sharing decided. vices. The Office will establish reception centres and provide transport to places of origin. Upon Offices return, it will provide a non-food package while WFP will provide food rations. Bangui Bossangoa Kaga Bandoro Mboki

87 UNHCR Global Appeal 2006 Partners

Government agency Commission nationale pour les réfugiés (CNR)

NGOs CARITAS eta fia Republic African Central Cooperazione Internazionale Médecins Sans Frontières (Spain)

Others FAO OCHA UNAIDS UNDP UNFPA UNICEF WFP WHO

Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 1,510,446 94,364 1,604,810 coordination

Community services 124,000 0 124,000

Crop production 64,000 0 64,000

Domestic needs 94,806 20,000 114,806

Education 240,000 0 240,000

Health 220,000 21,750 241,750

Income generation 350,000 0 350,000

Legal assistance 162,624 15,000 177,624

Operational support (to 229,000 0 229,000 agencies)

Sanitation 10,000 0 10,000

Shelter/other 500,000 5,000 505,000 infrastructure

Transport/logistics 765,000 255,890 1,020,890

Water 101,000 0 101,000

Total operations 4,370,876 412,004 4,782,880

Programme support 1,058,064 0 1,058,064

Total 5,428,940 412,004 5,840,944

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 28,840) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

UNHCR Global Appeal 2006 88 Democratic Republic of the Congo

self-reliance or local integration for those refugees who will not return. • Strengthen the aware- ness of refugees and returnees on sexual and gender-based violence and HIV/AIDS and implement preventive measures. • Support the rehabilita- tion of the environment in refugee camps and other areas formerly occupied by refugees.

Main objectives Planning figures Population Jan 2006 Dec 2006 • Facilitate the repatriation of Congolese refugees Angola 90,000 53,000 to those areas in the Democratic Republic of (refugees) the Congo (DRC) deemed conducive for orga- Returnees 63,500 123,300 nized refugee return; assist spontaneous Rwanda 50,000 40,000 returnees upon arrival and ensure the sustain- (refugees) able reintegration of all returnees (refugees and Other (refugees) 40,000 35,000 internally displaced persons – IDPs) through conflict-sensitive, community-based, initial re- Sudan 13,520 3,520 integration assistance. (refugees) • Build the capacity of national institutions and Asylum-seekers 150 100 civil society organizations working with refugees Total 257,170 254,920 and assist the Government in developing a

national framework for the sustainable reinte- Note: In addition, an estimated 400,000 returnee IDPs in the country are in need gration of returnees. of protection and assistance. • Organize and facilitate the repatriation of Total requirements: USD 72,882,298 Angolan, Burundian, Sudanese and Rwandan refugees and provide assistance conducive to

89 UNHCR Global Appeal 2006 eortcRepublic Democratic fteCongo the of

Brigitt Demba, who returned home in May 2005, washes her baby daughter at their home in Mawuya village. UNHCR / J. Ose

Nationality Law adopted in November 2004 Working environment helped significantly to create an environment conducive to refugee return and reintegration, in Recent developments particular in the eastern part of the country. Unfortunately the amnesty law is still pending, as The process of transition in DRC has reached the debate around this issue has raised complex the final stage, with elections for a permanent and potentially controversial questions. government in sight, albeit postponed from June 2005 to the first half of 2006. This postponement Since 1999, the deployment of the UN Mission in extended the transition process put in place by the Democratic Republic of the Congo (MONUC) the 2002 Sun City Accords, which, together with a has contributed to the maintenance of peace in series of other agreements, brought almost all the country (working in collaboration with the parties to the Congolese war into one Transitional national army). In 2005, the UN Security Council Government. In June 2005, voter registration for authorized the expansion of MONUC by 5,900 to the forthcoming elections began in several prov- more than 16,500 troops, and increased the ceil- inces, including some that are hosting refugees, ing for military police, enabling the deployment such as Bas-Congo, and others to which refugees of additional troops to eastern DRC. MONUC is are returning, such as South Kivu. UNHCR has authorized to use all necessary means to reinforce noted that the electoral process is leading to peace and indeed since the end of March 2005 increased numbers of returnees, as many refugees has made significant headway in securing this wish to participate in the forthcoming elections. troubled region.

With the adoption of key legislation, much prog- Constraints ress has already been made towards instituting the rule of law in the DRC. The draft text of the It is probable that political campaigning in the constitution has been adopted by Parliament and run-up to elections in 2006 will be accompanied a referendum is scheduled for late 2005. The by heightened tensions. Issues such as refugee

UNHCR Global Appeal 2006 90 return to DRC risk being politicized and humani- NGOs. Through this monitoring system, obstacles tarian issues might be drawn into the electoral to return and reintegration will be identified and debate. By mid-October 2005, following voter reg- addressed. UNHCR will contribute to the establish- istration in nine out of eleven DRC provinces, ment of local conflict-resolution mechanisms in more than 15 million people were estimated by return areas. The number of qualified protection the DRC Independent Electoral Commission to staff in return areas will be reinforced to accom- have been registered to vote, out of 26 million pany returnees in the reintegration process. A potential voters. Registration has been slower robust protection presence will be important to than expected, particularly in rural areas. This identify and address problems returnees face might lead to further delays in the electoral upon return, including sexual and gender-based process. violence. of the Congo The security situation in DRC has improved in UNHCR will continue capacity-building measures Democratic Republic many areas, despite persistent pockets of insecu- for national institutions dealing with refugee rity. North and South Kivu provinces continue to issues, such as the inter-ministerial National be affected by the presence of the Front Commission for Refugees (CNR), the Ministry of démocratique pour la libération du Rwanda (FDLR),a the Interior and the Ministry of Human Rights. Key renegade Rwandan militia group, in addition to issues for capacity building include knowledge of elements of Mayi-Mayi militia, who have not yet refugee rights and asylum procedures, adoption fully integrated into the national army. Local popu- of a national reintegration strategy for displaced lations in Equateur province, in particular the populations and the principles of refugee return in Imese/Buburu area, have complained of harassment safety and dignity. UNHCR will support the con- by the military. The Ituri region remains plagued clusion and implementation of tripartite agree- by several local militia groups, although the disar- ments on refugee return between UNHCR, DRC mament programme has made significant and countries hosting Congolese refugees and the progress. countries of origin of those refugees hosted by the DRC respectively. The killing of nine MONUC peacekeepers in the Ituri region in February 2005 constituted the most In close collaboration with the Government, violent incident since the establishment of the UNHCR will initially start providing urban refugees mission in 1999. MONUC reacted by implementing with identity documents, with a view to expanding its mandate to reinforce peace more proactively, the activity for all recognized refugees hosted in launching search and cordon operations against the DRC. A registration exercise is to be con- militia groups, not only in Ituri, but also in the ducted in late 2005 to identify the number of Kivus against the FDLR. Although these operations spontaneously settled Angolan refugees. In 2006, are likely to increase stability in the medium-term, once the results are known, UNHCR will facilitate they could lead to localized insecurity and internal their return to their home country. For the 13,520 displacement in the short-term. Sudanese refugees living in north-eastern DRC, a registration campaign is under way to identify those who wish to return. Strategy UNHCR will also bring to the UN Country Team its expertise in assisting internally displaced popula- Protection and solutions tions and putting in place adequate mechanisms for voluntary return in safety and dignity. In the With regard to the return of Congolese refugees to collaborative response to internal displacement, DRC, the main protection strategy will be to estab- UNHCR will propose activities for 2006 appropri- lish a returnee monitoring system in cooperation ate to the DRC context and overall policy guid- with a range of partners, including Government ance in the areas of protection, camp authorities, the UN High Commissioner for coordination and management, and emergency Human Rights, as well as local and international shelter.

91 UNHCR Global Appeal 2006 Assistance information on their areas of origin through mass information campaigns. The assistance programme for refugees hosted by the DRC will continue to focus on repatriation Key partnerships with agencies of the UN system assistance for Angolans, Burundians, Sudanese will be intensified through the conclusion of and Rwandans and achieving self-reliance in the MOUs and joint programming. Cooperation with local integration process for those who opt to WFP will ensure the provision of food rations to

eortcRepublic Democratic remain. Essential humanitarian assistance will be refugees hosted by the DRC and to Congolese

fteCongo the of provided to Sudanese and Angolan camp-based returnees. UNICEF, FAO and UNDP will be key refugees until durable solutions have been achieved. partners in ensuring the sustainability of The programme will also focus on developing refugee return through the implementation of responsible environmental management practices complementary development oriented projects and rehabilitating refugee-impacted areas. For in refugee return areas. urban-based refugees, UNHCR will collaborate with a network of specialized NGOs to implement Desired impact targeted interventions using micro-credit to encourage self-reliance. Some 123,300 Congolese refugees are expected to return to the DRC either under UNHCR’s volun- Under the facilitated repatriation programme for tary repatriation programme or as spontaneous Congolese refugees in the Central African returnees to areas which have not yet been Republic, the Republic of the Congo, Sudan and deemed conducive to organized return. The Tanzania, UNHCR will intervene in three main desired impact is that return is sustainable and areas. First, cross-border return movements in that there are no secondary displacement move- safety and dignity will be organized, including the ments. It is assumed that some 22,000 Angolan provision of repatriation documentation, medical refugees hosted in the Bandundu and Bas-Congo screening, transport by boat and by truck and provinces, 10,000 Rwandan refugees based in the provision of a return package in transit cen- North and South Kivu, 10,000 Sudanese refugees tres in DRC. Second, a community-based initial from the Oriental province and 5,000 Burundian reintegration programme will ensure that immedi- refugees will return to their home countries. Some ate needs are addressed, such as shelter, access 15,000 Angolan refugees who cannot or do not to health and education services and income gen- want to return will locally integrate in the DRC and eration. UNHCR will adopt a conflict-sensitive become self-sufficient. approach in all interventions, ensuring the inclu- sion of local communities in initial reintegration projects. The objective is to meet the most urgent reintegration needs and to narrow gaps in the Organization and transition from humanitarian to development implementation interventions. Third, the implementation of the returnee monitoring system and community ser- vices projects will contribute to ensuring respect Management structure for returnees’ rights. Special projects will be implemented in eastern DRC on conflict preven- 338 staff members – 58 international, 262 tion, awareness-raising on HIV/AIDS, SGBV and national and 18 UNVs will implement UNHCR’s mines, through village theatre, small community programmes in 2006, a large number of whom grants and the production and broadcast of radio will be involved in the ongoing repatriation and programmes. Spontaneous returnees will be reintegration operation. UNHCR will maintain its eligible for the same assistance as returnees main office in Kinshasa and will be supported by upon arrival in the DRC. In order to enable them to 19 field offices and one field presence. The make an informed decision on their voluntary expansion of the office structure will be con- return, refugees will receive objective and neutral ducted in a flexible manner in response to new

UNHCR Global Appeal 2006 92 needs in refugee return areas. UNHCR will make Offices good its commitment to support the UN country Kinshasa team with assistance to IDPs subject to the avail- Aba ability of additional resources. Aru Baraka Coordination Bukavu Bunia CNR is UNHCR’s key counterpart in the DRC Tran- Dongo sition Government. All issues relating to refugee Dungu return and asylum are addressed in close collabo- Gemena ration with CNR’s central office in Kinshasa and Goma the CNR field offices in the provinces. In addition, Kahemba of the Congo

UNHCR regularly consults with a range of minis- Kalemie Democratic Republic tries, in particular the Ministry of the Interior, and Kimpese senior officials in the Transition Government. Kimvula Libenge UNHCR will participate fully in all national and Lubumbashi local UN Country Team coordination mecha- Mbandaka nisms. In the spirit of the integrated UN mission in Moba the DRC, UNHCR will closely collaborate with the Pweto Humanitarian Coordinator and Deputy Special Uvira Representative of the Secretary-General (DSRSG) of MONUC. Humanitarian coordination takes place in the framework of the Humanitarian Partners Advocacy Group. UNHCR and UNDP are jointly Government agencies chairing the inter-agency working group on reinte- Gouvernorat du Nord-Kivu gration, which is tasked with developing an overall Ministry of the Interior reintegration strategy for all concerned benefi- Ministry of Human Rights ciary groups, including returning refugees and National Commission for Refugees IDPs, and ex-combatants.

NGOs Inter-agency needs assessment missions form the Action humanitaire Afrique basis of planning for humanitarian assistance and Actions et interventions pour le développement et UNHCR has taken the lead in facilitating this pro- l’encadrement social cess in the provinces of Equateur, Bandundu and Agency for Technical Cooperation and Development Bas Congo. All UNHCR budgets form part of the Association pour le développement social et la 2006 Action Plan for the DRC, which will replace sauvegarde de l’environnement the Consolidated Appeal. UNHCR extends its full Atlas Logistique support to implementing the Good Humanitarian Caritas Katanga Donorship Initiative and the multi-donor pool Catholic Relief Services fund for the DRC to be managed by the Humani- Comité de développement intégré tarian Coordinator. Danish Church Aid Encadrement des réfugiés urbains Mine Action Group Oxfam (Quebec) Regroupement des institutions du système de financement décentralisé du Congo Search for Common Ground Solidarité des femmes de Fizi pour le bien-être familial

93 UNHCR Global Appeal 2006 Others Deutsche Gesellschaft für Technische Zusammmenarbeit FAO UNDP UNICEF UNHCHR WFP eortcRepublic Democratic fteCongo the of

Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 6,850,443 22,650,729 29,501,172 coordination

Community services 400,244 1,200,000 1,600,244

Crop production 36,106 600,000 636,106

Domestic needs 319,348 1,000,000 1,319,348

Education 285,630 2,200,000 2,485,630

Food 40,000 65,000 105,000

Forestry 73,526 200,000 273,526

Health 414,000 3,500,000 3,914,000

Income generation 110,000 1,000,000 1,110,000

Legal assistance 551,718 3,000,000 3,551,718

Operational support (to 1,129,744 3,780,000 4,909,744 agencies)

Sanitation 61,520 350,000 411,520

Shelter/other 157,660 7,000,000 7,157,660 infrastructure

Transport/logistics 1,917,753 6,000,000 7,917,753

Water 26,000 2,000,000 2,026,000

Total operations 12,373,692 54,545,729 66,919,421

Programme support 5,962,877 0 5,962,877

Total 18,336,569 54,545,729 72,882,298

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 3,818,201) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

UNHCR Global Appeal 2006 94 Republic of the Congo

Main objectives

• Continue to support the organized volun- tary return of refugees, support their re-integration and provide them with basic health care. • Continue to support the organized volun- tary repatriation of refugees from Angola, Burundi, the Democratic Republic of the Congo (DRC) and Rwanda. • Maximize the protection of refugees living in the Republic of the Congo (RoC), and provide material and social assistance to groups with special needs, while encour- aging them to become self-reliant. • Pursue durable solutions for those refu- gees who will not or cannot repatriate, in particular resettlement and local integra- tion, in partnership with other agencies. Total requirements: USD 9,577,669 • Strengthen the ability of the Comité national d’assistance aux réfugiés (CNAR) to reach fair and efficient decisions on refugee status determi- Working environment nation (RSD) and ensure that asylum-seekers, refugees and returnees benefit from legal assistance. Recent developments

Planning figures The security situation continues to improve, except in the Pool area, where armed rebels retain Population Jan 2006 Dec 2006 control of some territory and frequently loot DRC (refugees) 34,800 4,830 trains and rob civilians and humanitarian workers. Rwanda 4,850 3,850 There has been little improvement in the (refugees) socio-economic situation of the country, with the majority of the population continuing to live in Returnees 4,000 2,000 poverty and facing high unemployment, inade- Asylum-seekers 3,630 3,630 quate health care, substandard education and a Angola 1,630 1,130 dearth of other social services. (refugees)

Other (refugees) 210 210 The repatriation exercise carried out in 2005 had resulted in the return of more than 3,000 refugees Total 49,120 15,650 to DRC at the time of publication. If planned elec- tions are held in the DRC and the security

95 UNHCR Global Appeal 2006 situation stabilizes further, particularly in Poor socio-economic conditions countrywide Equateur, more refugees might choose to severely hamper the local integration of refugees. repatriate. Of an estimated population of three million peo- ple, some 70 per cent are considered to be living Following improvements in oil sector transpar- in poverty. The economy has stagnated for several ency, the IMF released almost USD 90 million of years, unemployment is prevalent, and infant previously withheld funds and RoC was approved mortality remains high. eulco h Congo the of Republic for a Poverty Reduction Growth Facility (PRGF) for the period December 2004 to December 2007. As Women and girls face a high risk of sexual and part of the conditions, further oil sector transpar- gender-based violence (SGBV). There is a very ency, completion of several audits in both oil and high incidence of domestic and sexual violence forestry sectors and continued debt and arrears against women and girls in RoC, due to prevailing repayments will be necessary. social and cultural attitudes.

Constraints Strategy

Despite numerous activities undertaken to pro- mote their voluntary repatriation, very few Protection and solutions Rwandan refugees have decided to return. Many have attained an advanced level of economic The Government of RoC will coordinate, through integration and wish to remain in RoC. Others fear CNAR, the registration of refugees for voluntary reprisals from a limited number of persons within repatriation, and meetings of the various Tripar- the community who oppose return to Rwanda. In tite Commissions on the repatriation of refugees. addition, refugees expressed concerns about UNHCR will continue to support CNAR with tech- recenteventsinRwanda,suchasthereturnof nical advice on refugee status determination and refugees from Uganda and the activities of the refugee law, as well as training sessions for all tribunals (community tribunals which are provid- involved in the decision-making process. Activi- ing an opportunity for genocide survivors, defen- ties will include assisting CNAR in the design and dants and witnesses to present their cases in an implementation of standard case processing open and participatory environment). All these procedures as well as prioritizing among the existing factors have significantly hampered the promo- backlog of asylum cases awaiting decisions. A tion of voluntary repatriation. national NGO will be identified to provide legal ser- vices for asylum-seekers, refugees and returnees, as Some Angolan refugees, mainly from the Province well as to carry out human rights promotion activities. of Cabinda, are not willing to repatriate. They are well integrated socially and economically, and Repatriation activities will be coordinated by the continue to take a “wait and see” approach UNHCR office in Brazzaville in close collaboration regarding the security situation in Cabinda. with field offices in Betou and Impfondo and implementing partners. The UNHCR offices in The voluntary return of RoC refugees living in Brazzaville and Kinshasa will confer regularly, as Gabon can only occur if organized repatriation will the respective field offices located on both movements take place in safety and security. A sides of the Oubangui River, which marks the marked improvement in security and access by national border between RoC and DRC. humanitarian workers would have to precede return to Pool. The Government, with the support UNHCR will call for all United Nations Develop- of development agencies, must build up the social ment Assistance Framework initiatives to include and physical infrastructure in returnee areas, not activities aimed at facilitating the local integra- only in Pool, where there is widespread destitu- tion of the remaining Rwandan, Angolan and tion, but also in the departments of Kouilou, Niari DRC refugees, as well as of RoC returnees from and Lekoumou. Gabon, Benin and DRC.

UNHCR Global Appeal 2006 96 Repub Republic of the Congo

Refugees from the Democratic Republic of the Congo aboard a small canoe on the Oubangui River near a refugee settlement in the village of Malebo. UNHCR / J. Ose

In the second half of 2006, UNHCR will undertake judicial review of complaints filed and provide for a planning exercise to phase out activities in the the medical and psychosocial needs of victims. north-east of the country, working on the The Office will encourage women in refugee and assumption that by the end of 2006 the majority returnee communities to create and enlarge sup- of refugees from DRC will have repatriated. Never- port groups to monitor and respond to SGBV theless, given the likelihood that a certain number cases as appropriate. Public awareness and of DRC refugees will choose local integration and human rights sessions will target law enforce- that fresh refugee movements from some neigh- ment, military and judicial authorities. bouring countries cannot be totally excluded, the field office in Impfondo will remain open in 2007, Refugees from DRC and will also cover the zone extending from Betou to Loukolela. If refugees from DRC repatriate in the numbers expected over the course of 2005, 34,800 will UNHCR will increase the capacity of local authori- remain in sites along the banks of the Oubangui ties and civil groups to prevent and respond to River at the beginning of 2006. The majority are SGBV and to provide support to victims. UNHCR already self-sufficient in terms of food, through will continue to assist victims in pursuing legal fishing, agriculture and small-scale commercial remedies against perpetrators, advocate full activities. But the communities are not able to

97 UNHCR Global Appeal 2006 cope with their needs for health care, education advocate regularization of the status in RoC of and assistance to groups with special needs. those who opt not to repatriate. UNHCR will continue to provide assistance to meet these basic needs, undertake protection Congolese returnees activities, particularly prevention of and response to incidents of SGBV, regularly monitor refugee Of the approximately 15,000 Congolese refugees rights and pursue durable solutions. still in Gabon, Benin and DRC, it is estimated that eulco h Congo the of Republic 2,000 could choose voluntary repatriation in Refugees from Rwanda 2006. The main destinations will be Niari, Lekoumou, Pool and Brazzaville. UNHCR will con- Figures for September 2005 indicate that there tinue to organize voluntary repatriation move- are some 5,200 Rwandan refugees in RoC. UNHCR ments, support their reintegration into the will continue to promote the voluntary repatriation communities of final destination and provide of Rwandan refugees and advocate for the basic health care. Development actors will also be Congolese Government to prevent elements approached to encourage more investment in within the community from intimidating potential Pool. returnees. Mass information activities will con- tinue, including encouraging returnees to visit Assistance RoC to inform refugees on conditions of return. While a significant number of Rwandan refugees UNHCR will continue to assist refugees with primary are now able to satisfy their basic needs, some education and basic health care services, while still live in precarious conditions. UNHCR will work encouraging them to become more self-reliant. to regularize the status of those wishing to remain Particular attention will be given to HIV/AIDS pre- in RoC. vention and awareness, and assistance to victims of SGBV. Activities envisioned include safe and Refugees from Angola efficient blood transfusion facilities in hospitals, educational campaigns on SGBV for local tradi- A census taken from January to July 2005 showed tional leaders, and support to women’s empower- over 2,800 Angolan refugees living in RoC. Follow- ment groups. Activities in 2006 will also include ing organized repatriation, some 2,200 refugees control of deforestation caused by the presence remained at the end of September 2005. A num- of refugees and rehabilitation of the refugee- ber of spontaneously settled Angolan refugees, impacted areas. mostly living in the provinces of Kouilou, Nairi, Lekoumou and Boenza have integrated locally Urban refugees living in the two biggest cities, and have never been registered. The majority, who Brazzaville and Pointe Noire, most of them from are from the province of Cabinda, support them- DRC, will be provided with assistance for local selves through raising livestock and agriculture. In integration and basic health care. 2004, UNHCR phased out its assistance activities to Angolan refugees including those in the sites of Komi and Kondi-Mbaka in Kouilou province as they Desired impact have attained a certain level of self-sufficiency. The Office will continue to monitor them from the pro- Planned activities in 2006 are intended to result in tection perspective. This will include ensuring that durable solutions for the majority of the refugees they have proper documentation, that their rights in the north of the country and permit UNHCR to are respected, and that voluntary repatriation is gradually reduce its presence there. Repatriation organized for those who decide it is safe to return and local integration should also address groups to the Province of Cabinda. Towards the end of of refugees in other parts of the country, leaving the year, an analysis of the intentions of those UNHCR with the task of assisting the reintegration remaining in RoC will be undertaken to determine of Congolese returnees, mainly from Gabon. long-term solutions for them. UNHCR will

UNHCR Global Appeal 2006 98 Organization and structure Offices Brazzaville Betou Management structure Impfondo Loukolela The UNHCR office in Brazzaville will supervise the operations in the country and support the three field offices in Betou, Impfondo and Loukolela. Partners Staff will include 11 internationals (one JPO), 43 nationals and eight UNVs. Government agencies Comité national d’assistance aux réfugiés Ministry of Foreign Affairs, Cooperation and Coordination Francophony Republic of the Congo Ministry of Security and Police UNHCR will coordinate its activities with the Ministry of Social Affairs, Solidarity, Humanitarian Ministry of Foreign Affairs, Cooperation and Action and Family Francophony, the Ministry of Security and Police and the Ministry of Social Affairs, Solidarity, NGOs Humanitarian Action and Family. UNHCR will Agence d’assistance aux rapatriés et réfugiés au collaborate with one international and three Congo national (including one governmental) imple- Commission d’entraide pour les migrants et les menting partners. UNHCR will work in close coor- réfugiés dination with the UN Resident Coordinator and International Rescue Committee other UN agencies for the inclusion of refugees Médecins d’Afrique and returnees in development programmes and will participate in the inter-agency Consolidated Others Appeals Process. FAO ICRC UNAIDS UNDP UNFPA UNICEF WFP WHO

99 UNHCR Global Appeal 2006 Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 2,507,588 1,276,832 3,784,420 coordination

Community services 256,360 102,770 359,130 eulco h Congo the of Republic Crop production 111,975 0 111,975

Domestic needs 83,164 24,262 107,426

Education 363,718 30,000 393,718

Forestry 70,000 150,000 220,000

Health 370,247 60,749 430,996

Income generation 133,456 0 133,456

Legal assistance 221,685 171,065 392,750

Operational support (to 466,489 199,000 665,489 agencies)

Sanitation 10,550 15,000 25,550

Shelter/other 33,175 25,050 58,225 infrastructure

Transport/logistics 518,673 704,000 1,222,673

Water 60,508 1,404 61,912

Total operations 5,207,588 2,760,132 7,967,720

Programme support 1,609,949 0 1,609,949

Total 6,817,537 2,760,132 9,577,669

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 193,209) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

UNHCR Global Appeal 2006 100 Rwanda

Main objectives Planning figures Population Jan 2006 Dec 2006

• Provide comprehensive protection and assis- DRC (refugees) 36,500 26,600 tance, including shelter, nutrition, health care, Returnees 10,000 20,000 water and sanitation, to all camp-based Asylum-seekers 3,250 4,100 refugees. • Continue the repatriation of an estimated Burundi 1,500 840 50,000 Rwandan refugees. (refugees) • Provide reintegration assistance and protec- Other refugees 40 40 tion monitoring to Rwandan returnees. Total 51,290 51,580 • Continue the voluntary repatriation of the remaining Burundian refugees in Kigeme and Total requirements: USD 7,733,581 Nyamure camps. • Promote voluntary repatriation of refugees from the Democratic Republic of the Congo (RDC) mainly from North and South Kivu provinces. • Monitor adherence to the national refugee law and its regulations with respect to refugee status determination (RSD).

101 UNHCR Global Appeal 2006 Rwanda

Arrival of a returnee convoy from the DRC at the transit centre in Byumba, northern Rwanda. UNHCR / B. Heger

The Government of Rwanda has used the tradi- Working environment tional courts called Gacaca to deal with the backlog of cases related to the 1994 genocide. These tradi- Recent developments tional courts are community tribunals which are providing an opportunity for genocide survivors, The political situation in Rwanda is relatively defendants and witnesses to present their cases in stable and not expected to change drastically in an open and participatory environment. The Gacaca 2006. However, there have been some concerns system was introduced in three phases: a pilot about a consolidation of power and restraints on phase, launched in June 2002; an extended pilot civil society and political opposition groups. phase, launched in November 2002; and the implementation phase, which started in February Rwanda, one of the world’s poorest countries, is 2005 and covers the whole of Rwanda. As a conse- landlocked, and is not endowed with significant quence, several thousand people from Butare and natural resources, yet its economy has grown in Gikongoro prefectures fled Rwanda and sought recent years. This should have a positive impact asylum in Burundi and Uganda in April 2005. on UNHCR’s activities, especially repatriation operations, as Rwandan refugees will be further On a regional level, the transition processes in encouraged to return home. However, two-thirds Burundi and DRC are important for Rwanda’s own of the population are estimated to be living below political situation as well as for stability in the the poverty line and half of the population is illit- Great Lakes region as a whole. The existence of erate. Land scarcity could prove one of the big- irregular forces in Eastern DRC, mainly the Forces gest problems for returning Rwandans, especially démocratiques de libération du Rwanda (FDLR) and the since most of them are of rural origin. Forces combattantes Abacunguzi (FOCA), remains a source of contention and has led to continuing threats of intervention by Rwanda. A “Tripartite

UNHCR Global Appeal 2006 102 agreement between Rwanda, DRC and Uganda on the persecution of criminals and negative forces” Strategy was set up to ease these tensions. In March 2005 the FDLR political leadership issued the San Protection and solutions Egidio-sponsored Rome Declaration announcing an end to all military activities and their imminent return to Rwanda. This political decision, how- A verification exercise conducted in all camps at ever, was not adhered to by the military leaders on the end of August yielded an estimate of 44,000 the ground and mass returns did not occur as refugees hosted in Rwanda. In 2006, UNHCR will anticipated. At the same time the Governments of assist three main groups: DRC and Burundian Rwanda and DRC and the UN Mission in the DRC refugees, and returnees to Rwanda. Rwanda (MONUC) are increasing pressure on the group to disarm and return. The pivotal issue remains con- DRC refugees ditionality. The rebels are only willing to come back in return for political guarantees, whereas Some 36,500 camp-based Congolese refugees the Government of Rwanda insists on its tradi- will be living in Rwanda at the end of 2005, shel- tional policy of unconditional return and tered mainly in Kiziba and Gihembe camps. reintegration. Ninety-four per cent of the Congolese are from North Kivu and fled DRC between 1996 and 2004. There is a reasonable chance that 2006 will be a year of renewed peace, security and stability in A new site was opened in Nyabiheke (Byumba the region. Nevertheless, the post-transition province) in early 2005 hosting more than 4,000 phase will continue to be a fragile process and, in DRC refugees transferred from the transit facilities order to mitigate the impact of a possible sudden of Cyangugu and Gisenyi. UNHCR expects about mass influx, UNHCR Rwanda will continue to work 10,000 Congolese refugees to opt for voluntary on contingency plans. repatriation in 2006. Burundian refugees Constraints At the beginning of 2006, it is expected that 1,500 An estimated 50,000 Rwandan refugees still living Burundian refugees will be sheltered in Kigeme abroad hesitate to repatriate due to the lack of camp. Resettlement remains the main durable economic prospects and a lack of public services solution for this group. such as education and health or due to fear of liti- gation upon return. If, however, economic growth Urban refugees rates remain high, some of these concerns could be alleviated. The majority of the 3,500 urban refugees come from DRC and Burundi, but there is also a minority The voluntary repatriation of DRC refugees to of refugees from ten other African countries. The North and South Kivu depends on the stabiliza- majority of urban refugees live in and around tion of the highly volatile security situation in Kigali and for them resettlement is also the main Eastern DRC. A tripartite agreement on voluntary option. repatriation could be signed at the beginning of 2006. Rwandan returnees

Although the National Council for Refugees On 1 January 2005, some 47,800 Rwandan refugees (NCR) became operative in early 2004, the were living in 19 African countries. This group is national asylum system has made slow progress, mainly of Hutu origin, with only a few Tutsis and due to a lack of capacity and expert knowledge. people in mixed marriages. About 20,000 people Refugee status determination by the NCR has belonging to this group are expected to have started and capacity building is ongoing. returned by the end of 2005 and another 20,000 are

103 UNHCR Global Appeal 2006 expected to return in 2006. Five thousand refugees given the delay in repatriation to Rwanda as well are expected to opt for local integration. as to DRC and the increasing numbers of refugees in Rwanda, this can be envisaged no earlier than late 2007, possibly only by 2008. At least two of Assistance the three Congolese camps could be closed by the end of 2007. It is anticipated that Burundian UNHCR will continue to provide comprehen- camps will be consolidated in 2006, with the clo- sive protection and assistance to camp-based sure of Nyamure camp that year and Kigeme camp refugees from DRC and Burundi. Only urban refugees the following year. In the meantime, as outlined Rwanda with special needs will be assisted. above, the pursuit of durable solutions for the dif- ferent groups will encompass all the options of Education will be a priority in UNHCR’s work in voluntary repatriation, local integration and reset- Rwanda; primary and basic secondary education tlement. Particular focus will be put on building will be provided, as well as a small number of DAFI national capacity on asylum issues and RSD. scholarships for tertiary education.

UNHCR will continue to promote the voluntary repatriation of Rwandan refugees by organizing Organization and and/or participating in tripartite commission implementation meetings and by arranging refugee visits. The Office will continue to distribute returnee pack- ages and provide transportation of returnees to Management structure their district of origin. UNHCR will also seek to improve reintegration assistance, particularly for In 2006, UNHCR will maintain its main office in returnees with special needs. Similarly, if the Kigali, with two field offices in Byumba and security situation in DRC permits, UNHCR will Kibuye, as well as field units in Cyangugu and encourage DRC refugees in Rwanda to return Gisenyi. Another field unit in Butare will continue home within the framework of the tripartite agree- overseeing Nyamure and Kigeme camps. UNHCR ment between the Office and the two countries will have 61 staff members in Rwanda (seven inter- concerned. national, 54 national) and 13 UNVs.

In close collaboration with the Government of Coordination Rwanda, UNHCR will strive to continue the envi- ronment programme in order to mitigate the neg- UNHCR’s activities will continue to be carried out ative impact of refugee camps in densely in collaboration with the Ministry of Local Govern- populated Rwanda. After the downsizing or clo- ment, Good Governance and Community Devel- sure of camps, UNHCR will facilitate rehabilitation opment and Social Affairs through the National and reforestation. Council for Refugees, and five international NGOs. The Office will continue its close coopera- In cooperation with its partners and in the frame- tion and consultation with WFP for the provision work of the Great Lakes Initiative on AIDS, UNHCR of food rations in camps and for returnees; with will increase sensitization activities in all sites ICRC on family reunification; with MONUC on including transit centres as well as voluntary repatriation from DRC of ex-combatants’ depend- counselling and testing and anti retroviral treat- ants; with UNICEF on children’s rights, and with ment programmes in camps. UNDP as the coordinating agency in Rwanda. Under United Nations Development Assistance Desired impact Framework auspices, UNHCR will contribute to the coordination and joint programming assess- UNHCR is moving towards the conclusion and ment and participate in UN Country Team theme closure of its operations in Rwanda. However, groups and task forces.

UNHCR Global Appeal 2006 104 Offices NGOs African Humanitarian Action Kigali American Refugee Committee Butare Jesuit Refugee Services Byumba Norwegian People’s Aid Cyangugu Gisenyi Kibuye Others Deutsche Gesellschaft für Technische Zusammenarbeit

Partners Rwanda Government agency Ministry of Local Government, Good Governance and Community Development and Social Affairs (MINALOC - National Council for Refugees)

Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 1,513,520 476,796 1,990,316 coordination

Community services 234,262 4,092 238,354

Domestic needs 361,819 26,596 388,415

Education 443,353 0 443,353

Food 39,894 6,206 46,100

Forestry 94,865 120,000 214,865

Health 592,965 10,000 602,965

Income generation 26,596 0 26,596

Legal assistance 168,439 120,594 289,033

Operational support (to 461,566 49,134 510,700 agencies)

Sanitation 198,455 0 198,455

Shelter/other 239,991 100,000 339,991 infrastructure

Transport/logistics 1,186,220 86,059 1,272,279

Water 151,574 9,752 161,326

Total operations 5,713,519 1,009,229 6,722,748

Programme support 1,010,833 0 1,010,833

Total 6,724,352 1,009,229 7,733,581

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 70,646) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

105 UNHCR Global Appeal 2006 United Republic of Tanzania

character of camps and addressing problems of Main objectives sexual and gender-based violence (SGBV), sex- ual exploitation, malaria and HIV/AIDS. • Maintain the support of the Tanzanian • Protect the rights of refugees from Burundi, the Government and the goodwill of its population Democratic Republic of the Congo (DRC) and towards refugees and asylum-seekers by pro- Somalia by providing international protection viding tangible benefits to the local population and essential assistance and services. in areas hosting refugees. • Enable refugees from Burundi and DRC to take an informed decision regarding repatriation Planning figures and assist those willing and able to return to do so in safety and dignity, provided that condi- Population Jan 2006 Dec 2006 tions in the countries of origin are satisfactory. Burundi1 (refugees) 365,600 259,900 • Consolidate the local integration of those DRC (refugees) 142,500 107,000 refugees allowed to settle permanently by the Government and support the local integration Other refugees 2,010 1,090 of other refugees, when this is the desired, and Asylum-seekers 100 75 most appropriate, solution. Total 510,210 368,065 • Offer resettlement to a third country to those

refugees unable either to remain in the United 1 Includes Burundian refugees living in the settlements of Rukwa and Tabora region. Republic of Tanzania (Tanzania) or to return to 2 Jan 2006 figure includes Rwandans, Somalis and refugees of various ethnicities their country of origin. from Mkugwa camp. • Implement specific programmes aimed at ensuring refugees’ security and the civilian Total requirements: USD 31,515,959

UNHCR Global Appeal 2006 106 foreshadowed, above all, by the registration since Working environment June 2005 of voters – have led to an increase in spontaneous returns of Congolese refugees. In Recent developments DRC, UNHCR has recorded the arrival of 10,000 returnees from Tanzania, including over 2,700 Chronic food shortages that began in 2004 con- during August 2005. Against this background, it tinued in 2005, causing serious protection prob- was decided at a September meeting of the Tri- lems. These include domestic violence due to partite Commission in Kinshasa to start organized family disputes over the sharing of food, and, return the following month to Baraka and Fizi in when refugees are forced to leave the relative South Kivu, the main areas of origin of Congolese safety of camps in search of work, sexual exploita- refugees in Tanzania. tion and violence, including rape. Higher under-five mortality rates have also been linked to Constraints

the food shortage: young children who are taken United Republic of Tanzania outside of the camps by their parents or left in the The protection environment for refugees in Tanzania care of young siblings frequently do not receive is likely to remain difficult due to the Government health services in time to save their lives. policy of confining refugees to camps and the fact that insecurity in north-western Tanzania is attrib- Following security incidents, restrictions on free- uted to the refugees’ presence. dom of movement of refugees, first imposed in 2003, have been applied more strictly since early The lack of access to basic services and land in 2005. Similarly, restrictions have been imposed Burundi, and the absence of non-agricultural live- on refugee commercial activities particularly in lihood activities, could become major obstacles Ngara camps where the selling of some goods was to repatriation and sustainable reintegration if not banned and shops in the camps destroyed. addressed by the international community and the Government. Similarly, in DRC, while access to By the end of August 2005, the refugee population property and land does not appear to be a major assisted by UNHCR in Tanzania had decreased by problem in South Kivu province, the presence of only six per cent since the beginning of the year renegade groups in some areas, the high number and the country was still hosting 566,000 refugees of SGBV incidents and the lack of basic services in ten camps and three settlements. According to remain severe problems that affect the pace of the Government there are also 200,000 Burundian return. and Congolese refugees living in villages near the border. Strategy While repatriation of Burundian refugees continued at a slow pace through the first half of 2005, the successful democratic elections in Burundi in late Protection and solutions August have led to a sharp increase in returns from an average of 2,500 per month until July 2005 UNHCR will continue to assist Burundian refugees to about 4,500 per week in August 2005. to repatriate and will also facilitate the return of Congolese refugees, while maintaining assistance In the DRC, the United Nations Mission (MONUC) and services for those refugees who are as yet has increased its presence and capacity to inter- unable or unwilling to repatriate. Although the vene on the ground, and progress has also been strategy for Burundian and Congolese refugees achieved with the integration of former rebel will focus mainly on voluntary repatriation, groups in the national army and in extending the UNHCR will also expand its capacity to identify transitional government’s authority. These posi- those eligible for resettlement from Tanzania. tive developments, coupled with the prospect of general elections in the first half of 2006 –

107 UNHCR Global Appeal 2006 ntdRpbi fTanzania of Republic United

Burundian refugees at Kanembwa Departure Centre in Kibondo loading their belongings in preparation for repatriation. UNHCR / M. Bulow-Olsen

In 2006, UNHCR will provide enhanced support to advocate for the local integration of those who an estimated 200,000 “1972 Burundian refugees” wish to stay and for development assistance tar- (Burundians who left their country in 1972 or geting the refugees’ host communities and local before the 1993 events) living in established set- authorities, with a view to facilitating their further tlements in Rukwa and Tabora Region. UNHCR will social and economic integration. UNHCR will

UNHCR Global Appeal 2006 108 in Chogo settlement by facilitating the process of naturalization for the remaining candidates and through socio-economic integration activities, which should be completed by the end of 2006.

UNHCR’s protection strategy in Tanzania will be defined in terms of closing the protection “gaps” identified during 2005 within the framework of the Strengthening Protection Capacity Project. In par- ticular, the Office will help the Government to address inconsistencies between legal provisions that need to be harmonized and to clarify the roles of the different ministries in refugee matters. This work will take the form of technical support in United Republic of Tanzania reviewing the draft Refugee Act and in preparing a guidebook on refugee administration. UNHCR will contribute to the development of RSD guidelines and standard operating procedures and provide training for the relevant government authorities. These training programmes will extend to the local officials in border areas responsible for receiving and registering asylum-seekers. In addition, UNHCR will support authorities in pro- viding documentary proof of refugee and civil sta- tus. The Office will also identify NGOs with a legal focus and include them in consultations, training activities and operations, with the aim of increas- ing their capacity for refugee protection.

To address security issues, UNHCR and the Government of Tanzania will review the security package, including the refugee security system or sungu-sungus, and the traditional forms of justice practised in the camp, in order to identify areas for improvement. The Office will also encourage the further recruitment of women security officers and strengthen monitoring mechanisms to ensure compliance with the Code of Conduct. UNHCR will strive to reinforce prevention and response mechanism for SGBV by expanding existing programmes to the local communities and by studying and documenting cultural practices and gender roles underlying SGBV.

In order to counter negative attitudes and to promote a more positive image of refugees in directly support community-based activities and Tanzania, UNHCR and its partners will intensify facilitate applications for citizenship. information and education activities targeting key groups, develop the capacity of advocacy groups UNHCR will also continue to support the local and sensitize the media to the plight of refugees integration of some 2,600 Somali refugees living and their need for protection.

109 UNHCR Global Appeal 2006 Assistance Organization and

UNHCR will advocate with donors for support and implementation work to ensure adequate supplies of food and non-food items, emphasizing the linkage between Management structure shortages of essential assistance and critical pro- ntdRpbi fTanzania of Republic United tection problems, including SGBV. The Office will In 2006, UNHCR will operate with a total of 164 encourage the Tanzanian Government to allocate staff members (39 international and 125 national) land to refugees for cultivation on a sharecrop- and 36 UNVs (13 international and 23 national) ping basis and to ease restrictions on movement. working in the capital Dar es Salaam and in five UNHCR will also support income-generating field offices plus a support unit in Mwanza. activities that involve both refugees and the local population. Efforts will continue to improve health and education services in the camps, with a Coordination particular focus on malaria prevention and control and the reduction of student-to-teacher ratios UNHCR works closely with the Department for in the camps. UNHCR will also promote the Refugee Services of the Ministry of Home Affairs, integration of initiatives aimed at supporting which is responsible for coordinating all refugee- refugee hosting areas within broader, related matters in Tanzania, and with 13 NGO part- long-term development programmes benefiting ners. Other UN agencies also support the refugee the local communities. programme: WFP supplies food rations; UNICEF plays an important complementary role in the health and education sectors; FAO provides agri- Desired impact cultural inputs and WHO provides expertise on immunization. Regular coordination meetings If the current positive trends in Burundi and the are held with NGOs, other UN agencies and the DRC continue, UNHCR hopes to achieve a durable Tanzanian Government. UNHCR is an active solution for a considerable number of refugees in member of the North-western Tanzania Task the camps during 2006. UNHCR’s efforts also aim Force that looks specifically at increasing UN to create conditions conducive to the initiation of assistance to refugee-hosting areas. UNHCR also a local integration programme for refugees. It is participates in the Development Partners Group also hoped that Tanzania’s remarkable hospitality and co-chairs, with WFP and UNICEF, monthly towards asylum-seekers will be preserved, and sub-group meetings devoted exclusively to official and public attitudes toward refugees will refugee issues for donor representatives. IOM become more positive. The overall protection facilitates refugee travel for resettlement. framework should improve further through intensified efforts, under the Strengthening Offices Protection Capacity Project framework. The Office Dar es Salaam will endeavour to ensure that refugees of all ages, Kasulu gender and background enjoy their rights and Kibondo benefit from services in line with international Kigoma standards, and that security and SGBV incidents Lugufu decrease as more perpetrators are identified and Mwanza brought to justice. Ngara

UNHCR Global Appeal 2006 110 Partners Others Deutsche Gesellschaft für Technische Government agencies Zusammenarbeit Commissioner of Prisons FAO Ministry of Home Affairs IOM Regional Administrative Secretary (Kigoma and UNFPA Tanga) UNICEF UNDP NGOs WFP CARE International WHO Caritas Rulenge Chama Cha Uzazi na Malezi Bora Tanzania Concern Worldwide International Rescue Committee

Norwegian People's Aid United Republic of Tanzania Relief to Development Society Southern Africa Extension Education Unit Tanganyika Christian Refugee Services Tanzania Red Cross Society Tanzania Water and Environmental Sanitation World Vision Tanzania

Budget (USD) Activities and services Annual Programme Budget Supplementary Programme Total Budget1 Protection, monitoring and 8,830,357 1,228,062 10,058,419 coordination Community services 416,073 105,000 521,073 Crop production 20,704 0 20,704 Domestic needs 664,650 20,000 684,650 Education 1,055,069 0 1,055,069 Forestry 481,381 0 481,381 Health 2,041,847 55,660 2,097,507 Legal assistance 2,702,524 43,518 2,746,042 Operational support (to 2,672,144 200,000 2,872,144 agencies) Sanitation 225,306 15,000 240,306 Shelter/other 984,220 100,000 1,084,220 infrastructure Transport/logistics 4,454,020 1,735,000 6,189,020 Water 702,061 15,000 717,061 Total operations 25,250,356 3,517,240 28,767,596 Programme support 2,748,363 0 2,748,363 Total 27,998,719 3,517,240 31,515,959

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 246,207) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

111 UNHCR Global Appeal 2006 Chad / Sudan situation

Recent developments

he signing of the Comprehensive Peace TAgreement (CPA) between the Government of Sudan and the Sudanese People’s Liberation Movement/Army (SPLM/A) in January 2005 boosted hopes for the recovery and reconstruc- tion of South Sudan and for the return of those displaced by the conflict (refugees and internally displaced persons - IDPs). On 30 July 2005, former SPLM leader Dr. John Garang died in a helicopter crash only three weeks after being sworn in as First Vice-President of the Republic of Sudan, sparking riots in Khartoum and in the southern cities of Juba and Malakal. However, calm returned with the naming of his successor, General Salva Kiir. The death of Dr. Garang also caused a brief delay in the formation of the new Government of National Unity, but by 20 September the SPLM took up nine of the 29 ministerial portfolios, with the former ruling National Congress Party retaining 16. Darfur These events, however, have not affected the Republic of Chad intentions of those refugees who wish to return Sudan to South Sudan. Refugees in the Democratic Republic of the Congo (DRC) and the Central African South Sudan Republic (CAR) are particularly eager to return. Chad / Sudan situation

At the time of writing, UNHCR was planning the In general, Chad enjoyed general political stability organized voluntary repatriation of 5,000 refugees during 2005. A change of government in August from DRC and 10,000 from CAR and 2,000 from saw new ministers appointed in most major Kenya following the completion of the registration portfolios, including interior, foreign affairs and and verification exercises and the provision of security. Chad continued to provide a protection documentation to refugees prior to their depar- environment conducive to the stay of refugees ture (such as birth, school, marriage certificates from Sudan and the CAR as well as asylum- and medical records). Preparation for the orga- seekers. More than 20,000 Sudanese in eastern nized return of some 20,000 refugees in Ethiopia Chad are residing in 12 camps, benefiting from had also begun. During surveys in September assistance from UNHCR and protection from the 2005, Sudanese refugees in Uganda renewed their Government of Chad. As a result of the deteriora- interest to return. However, due to insecurity and tion in security in northern CAR, an additional scarcity of basic services in intended areas of 12,500 refugees made their way to southern return, the number expected to actually repatriate Chad. The new arrivals, like the pre-existing popu- after the rainy season may be limited. lation of approximately 30,000 CAR refugees, will be oriented quickly to self-reliance activities. In 2006, UNHCR expects to repatriate a total of Amboko settlement, near Gore, in southern Chad, 140,000 Sudanese refugees; the Office will orga- is nearing its capacity of 27,000 refugees. The nize the return of some 55,000 among them from Government of Chad has approved a new site at CAR, DRC, Egypt, Ethiopia, Kenya and Uganda. Gondje to which the newly arrived refugees will be UNHCR does not expect large numbers of returns relocated. UNHCR is seeking an additional site for from Egypt and Eritrea. The refugee population in contingency purposes. Egypt is urban-based and it is anticipated that ref- ugees will want to wait and assess the progress of In Darfur, the political situation remains uncertain. the reconstruction effort before opting to return. Peace talks are ongoing in Abuja, Nigeria.

113 UNHCR Global Appeal 2006 hd/Sdnsituation Sudan / Chad

Chad: Despite enormous logistical problems, 10,000 refugees from the Central African Republic are being transferred further away from the border to Goré. UNHCR / C. Pryce

Protocols have been signed but differences exist Meanwhile, UNHCR’s protection monitoring between the Government of Sudan and the rebel activities in Darfur continue to be strengthened. movements. However, the signing of a CPA for In 2005, the opening of seven additional field South Sudan, after seemingly intractable offices was approved. Four of these were opened differences, does suggest that hopes for a similar in 2005 and the remaining three will be opened in achievement in Darfur might not be misplaced. It 2006. Monitoring missions to various field loca- is estimated that up to 40,000 Sudanese refugees tions are hampered by the generalized deteriora- in eastern Chad could repatriate in 2006 if the tion in security. The Government of Sudan has peace agreement for Darfur is signed. been urged to play its rightful role in the provision of security.

UNHCR Global Appeal 2006 114 efforts that the challenges ahead can be tackled. Strategic objectives UNHCR has been given the responsibility to pro- vide protection to IDPs and returnees in both The overall objective for UNHCR’s programmes West Darfur and South Sudan, as part of a UN col- in Chad and Darfur is to ensure the protection of laborative effort to deal with the internal displace- refugees and IDPs, and to achieve durable solu- ment in the two areas. tions for as many of them as possible. The Office will also ensure that coordination Whenever the situation in countries of origin between the operation in Sudan and those of the allows, UNHCR will facilitate the repatriation of countries of asylum is further strengthened. In the refugees. Likewise, UNHCR will facilitate the west, UNHCR in El Geneina (Sudan) and Abeche return of IDPs willing to return to their homes (Chad) will hold regular coordination meetings to within Sudan. prepare for the possible return of the more than 200,000 Sudanese refugees currently living in Chad / Sudan situation Chad (if a peace agreement is signed and Operations implemented).

For the South, draft tripartite agreements have The UNHCR office in Sudan was responsible until been prepared in anticipation of voluntary repatri- recently only for the protection and assistance of ation, and cross-border meetings will continue. Eritrean and Ethiopian refugees in eastern Sudan. UNHCR will pursue its efforts to create an effec- It now has to deal with two other situations: Chadian tive transition from relief to recovery, laying the refugees and internally displaced Sudanese in foundations for development in affected areas. Darfur, as well as returning refugees and IDPs in SouthSudan.InacountrytwicethesizeofWestern Cooperation with the AU will be a crucial element Europe, the Office has had to quickly adjust its in UNHCR’s operations both in eastern Chad and structure and expand its field presence to cope in Darfur. UNHCR’s relationship with the AU will with the considerable logistical and resource be strengthened, especially with regard to the challenges. security of humanitarian personnel, refugees and IDPs. Many roads in the west and south of Sudan become unusable during the rainy season. UNHCR’s operations are described in detail in Despite the CPA, travelling to Government and separate country chapters. SPLM-held areas requires separate travel permits and flying between the two areas is restricted to Budget: The annual programme budgets for Chad members of the UN Mission in Sudan (UNMIS). and Sudan can be found under the respective Despite these challenges, UNHCR has been able country chapters. While the budgets for the sup- to open 12 offices in strategic locations in Darfur plementary programmes for Darfur and South and South Sudan (for details, see South Sudan are being finalized, the budget table for Sudan/Darfur chapters). Sudan includes the supplementary budget for the repatriation and reintegration of Congolese (DRC) The needs in South Sudan and Darfur are refugees from Sudan. immense and it is only through inter-agency

115 UNHCR Global Appeal 2006 Republic of Chad

Main objectives

• Provide international protection and assistance to the refugees in camps in eastern and southern Chad as well as in urban areas. • Ensure the civilian character of the camps and the physical security of refugees in and around the camps. • In southern Chad, relocate 12,500 refugees from the Central African Republic (CAR) to a new settlement at Gondje and promote self-reliance pending durable solutions. • Monitor the protection needs of 20,000 spontaneously settled Sudanese refugees in villages along the Chad-Sudan border; monitor the situation in Darfur (West Sudan) and northern CAR and facilitate voluntary repatriation when conditions are favourable. • Facilitate the voluntary return of an estimated 3,000 to 5,000 Chadian refugees from west Darfur, Sudan. • Strengthen strategic partnerships with UN agen- Working environment cies and pursue the multi-agency agreement and response to the situation in northern CAR. Recent developments

Planning figures In 2005, Chad has generally enjoyed political sta- bility despite periodic manifestations of tension. Population Jan 2006 Dec 2006 In June 2005, amidst boycotts by opposition par- Sudan (refugees) 220,000 180,000 ties, a constitutional referendum was passed, Central African Republic 45,500 33,000 paving the way for the incumbent President, (refugees) Idriss Deby, to seek a third term. A major cabinet reshuffle in early August saw the removal from Urban refugees and 5,300 5,300 asylum-seekers office of more than half of the 31 ministers, including those with whom UNHCR had been Chad (returnees) 1,400 5,050 working closely. A number of key regional and Total 271,700 223,350 local government counterparts have also changed. Chad remains a mediator for the AU-brokered Total requirements: USD 74,337,462 Abuja peace process on Darfur and once more enjoys the backing of all parties to the talks.

UNHCR Global Appeal 2006 116 In spite of the strain of hosting approximately one border area to an extension at the Amboko settle- quarter of a million refugees, Chad continues to ment. Once the new site at Gondje, about 10 kilo- provide an environment in which the protection of metres from Amboko, is ready, the refugees at the refugees and asylum-seekers from Sudan and the Amboko extension and any small number of new Central African Republic is largely assured. Some refugees will be located there. UNHCR is seeking a 220,000 Sudanese refugees in eastern Chad second new site for contingency purposes. (200,000 in 12 camps and another 20,000 in the border areas) and 42,000 CAR refugees in southern As a result of the deteriorating security situation Chad as well as several thousand asylum-seekers in in northern CAR and the consequent outflow of the urban areas continue to enjoy protection and refugees, a high level meeting of ministerial and assistance and, in general, hospitality from the military officials from CAR, Chad and Cameroon Government and local populations. met in Yaounde, Cameroon, in August 2005 to

discuss possible joint responses. UNHCR is Republic of Chad Eastern Chad actively supporting the joint country response. A follow-up ministerial meeting among the three Eastern Chad hosts approximately 200,000 Suda- States was organized by UNHCR on the margins of nese refugees from Darfur in 12 refugee camps UNHCR's Executive Committee meeting in Octo- and an estimated 20,000 spontaneously settled in ber 2005 to give greater visibility to the crisis in communities along the border with Sudan. Peace northern CAR and search for practical interven- talks in Abuja, Nigeria continue between the tions among the governments and UN agencies Sudanese Government and the two major rebel concerned. movements: the Sudan Liberation Move- ment/Army (SLM/A) and the Justice and Equality In September 2005, UNHCR organized the volun- Movement (JEM). Meanwhile, in Darfur, there have tary repatriation from northern CAR of nearly been ongoing violations of the ceasefire. This has 1,400 Chadian refugees. This population had been accompanied by an increase in cross-border opted not to return with other Chadian refugees in violence. For Sudanese refugees in eastern Chad 2001 owing to its significant degree of integration the prospect of voluntary repatriation has been in northern CAR. The deterioration of the situa- somewhat set back by the significant tion in northern CAR, however, led the group to deterioration of security since August 2005. reconsider its decision and to appeal to UNHCR for assistance in repatriating. In 2005, UNHCR stabilized its support to refugees in the camps and increased its support to the Constraints extent possible to host communities who are most directly affected by the presence of refu- gees. Though conditions remain challenging, the Chad is among the poorest countries in the world, th basic needs of the refugees are being met. UNHCR ranking 167 out of the 177 surveyed in UNDP's is also reinforcing camp security by providing Human Development Index. Competition for additional communications and transport sup- scarce resources between local populations and port to the more than 180 Chadian gendarmes refugees can strain relations between the two deployed to guard the refugee camps. communities. The lack of infrastructure in refugee-hosting areas and breakdown in the food Southern Chad pipeline, particularly in the south, cause significant hardship for the refugees. At the beginning of 2005, southern Chad hosted approximately 30,000 Central African refugees in While the Government respects its obligations Amboko and Yaroungou settlements. Violent dis- under the 1951 Refugee and OAU Conventions, turbances in northern CAR have led since June the absence of a formal, comprehensive, national 2005 to an influx of at least 12,500 new arrivals. legal basis for the recognition and treatment of The individuals have been recognized as refugees refugees undermines the transparency and pre- on a prima facie basis and relocated from the dictability of the decision-making process.

117 UNHCR Global Appeal 2006 eulco Chad of Republic

Sudanese refugees from Darfur at the market place in Iridimi camp. UNHCR / J. Clark

site at Gondje will be developed for the approxi- Strategy mately 12,500 newly arrived refugees from CAR temporarily located at the extension at Amboko. Protection and solutions The relocation will ensure that the pre-existing population will not face overcrowding or a reduc- In 2006, UNHCR will continue to lobby the tion in services or land allotted for agricultural Government of Chad to establish national refugee activities. legislation. For the CAR refugees in southern Chad, UNHCR's Urban refugees twin priorities will remain the facilitation of volun- tary repatriation – when appropriate conditions are Some 5,000 refugees in N'djamena have been rec- achieved – and the initiation of activities aimed at ognized on an individual basis by the Government. self-reliance. In view of the scale of the security It is anticipated that this number will remain rela- problems in northern CAR, assisted repatriation in tively static in 2006. large numbers is not anticipated in 2006.

New CAR refugee arrivals in southern Sudanese refugees in eastern Chad Chad With respect to eastern Chad, the current security Amboko settlement in southern Chad is nearing situation is not conducive to returns to Darfur. its capacity of 27,000 refugees. The new settlement UNHCR and its partners will continue to provide

UNHCR Global Appeal 2006 118 protection and assistance in line with established CAR refugees standards. Individual registration of Sudanese refugees began in late 2004 and is continuing. It is UNHCR will continue to rehabilitate or build com- anticipated that comprehensive figures for all munity infrastructure and provide permanent camps will be available by early 2006. Thereafter, accommodation for refugees opting for local inte- individual identification cards will be issued to all gration at Amboko or Yaroungou settlements. adult refugees by the Government of Chad. Local integration efforts in southern Chad will continue to gain pace over the next two to five Assuming a positive outcome to the Abuja peace years. UNHCR will promote sustainable subsis- process, coupled with a significant improvement tence farming and income-generating activities in the security situation in Darfur, some 40,000 for non-farmers. These activities will be imple- Sudanese refugees are expected to return to mented in parallel with assistance (for education,

Darfur in 2006: 30,000 from the 12 camps in health and water supply systems) designed to Republic of Chad eastern Chad and 10,000 from the border areas. benefit the refugee population and local commu- UNHCR will take a lead role in assisting with the nities alike. The Office intends to gradually phase repatriation and reintegration of refugees, while out the provision of these services and hand them continuing to provide basic services to the over to the Government and the local remaining population. communities.

Following repeated requests, the President of the Sudanese refugees Republic agreed in August 2005 to allow UNHCR to relocate the Oure Cassoni and Am Nabak In 2006, stocks of non-food items will be replen- refugee camps away from the border. The Office ished. More durable shelters will be constructed is in the process of identifying appropriate new by the refugees. Two new camps will be built fur- sites. ther inland to receive the refugees who were previ- ously accommodated in the temporary Oure In all refugee camps, counselling and support Cassoni and Am Nabak camps. Alternative mechanisms have been or will be put in place for sources of energy will be identified and intro- refugee women and girls who have suffered vio- duced in all the camps where there is a shortage of lence and abuse. Participation of refugee women wood. A water supply system will be established in in management and leadership committees will be the two new sites and existing water systems will encouraged and gender awareness training and be upgraded in all camps to ensure that 80 per campaigns will continue. cent of refugees receive at least 20 litres per person per day. Assistance UNHCR and its partners will aim to meet the basic In 2006, UNHCR will provide assistance to nutritional needs of the refugees in eastern and approximately 242,000 refugees in 15 camps (14 southern Chad. Monitoring of malnutrition rates existing and one planned) in eastern and southern will remain a priority, as will implementation of Chad. In the east, the focus will remain on health, supplemental and therapeutic feeding pro- water, shelter, sanitation, education and the envi- grammes, where necessary. ronment (substitution of other fuels for non-renewable firewood and replenishment of Targeted assistance will be provided to the local water supplies). In southern Chad, the focus will community through quick-impact projects such remain on promoting self-reliance through agri- as rehabilitation or construction of health posts, cultural production. health centres and schools.

119 UNHCR Global Appeal 2006 Urban refugees Coordination

UNHCR's strategy for urban refugees is to provide In 2006, UNHCR will work closely with the material assistance and skills training to the most Government of Chad, especially with the vulnerable to increase self-reliance. Commission nationale pour l'accueil et la réinsertion des réfugiés (CNAR, the national refugee authority), the Ministry for Territorial Administration and the Organization and Ministries of Foreign Affairs, Health, Environment, eulco Chad of Republic Justice and Immigration. UNHCR will participate in implementation coordination meetings of the sectoral working groups established by the UN Humanitarian Coordinator Management structure and will lead the Protection Working Group.

With a total staff of 276 (74 international including In eastern Chad, UNHCR will work closely with two JPOs and 25 UNVs and 202 national staff), CNAR and the administrative authorities activities in 2006 will be carried out under the (gouverneurs, préfets, sous-préfets) as well as with UN supervision of the UNHCR Representative based and NGO partners. in N'djamena. In the East, the Representative will be assisted by the sub-office in Abeche and five In southern Chad, UNHCR has identified new field offices in Bahai, Iriba, Guereda, Farchana, potential partners and is strengthening its coop- and Goz Beida to oversee the 12 refugee camps. eration with existing local and international part- The field office in Adre has been moved to ners. Regular contact will also be maintained with Farchana to be closer to the Gaga, Bredjing and CNAR and the local and regional authorities. Treguine refugee camps. UNHCR will continue to maintain a presence in Adre. Offices

N'Djamena In the south, owing to the recent and continuing Abeche influx of Central African refugees, the size of Adre UNHCR's operation is being significantly Bahai increased at the Gore field office. Five interna- Danamadji tional staff including one JPO and 20 national staff Farchana are foreseen for Gore. Gore Goz Beida Guereda Iriba Koukou Angarana

UNHCR Global Appeal 2006 120 Partners Others Deutsche Gesellschaft für Technische Government agencies Zusammenarbeit Commission nationale pour l'accueil et la réinsertion FAO des réfugiés (CNAR) IFRC Ministry of Environment IMF Ministry of Foreign Affairs OCHA Ministry of Health UNAIDS Ministry of Immigration UNDP Ministry of Justice UNFPA Ministry for Territorial Administration UNICEF WFP NGOs WHO Republic of Chad Action contre la faim World Bank Agence d'aide à la coopération technique et au développement Association pour le développement d'Adré Budget USD African Concern Africare Activities and services Annual Programme African Humanitarian Action Budget Action for Greening Sahel, Japan Protection, monitoring 15,169,095 Care and coordination Cooperazione Internazionale Community services 4,639,742 Christian Outreach Relief Development Hebrew Immigrant Aid Society Crop production 1,035,000 International Medical Corps Domestic needs 3,460,000 Internews Education 2,802,441 INTERSOS International Rescue Committee Food 2,000 Oxfam Forestry 2,620,834 Première Urgence Health 4,309,330 Association Tchadienne pour les Actions Humanitaires et Sociales Income generation 550,000 Bureau Consult International Legal assistance 2,255,865 Croix Rouge tchadienne Institut national pour le développement économique Livestock 518,000 et social Operational support (to 6,558,804 Secours catholique pour le développement agencies)

Sanitation 1,157,361

Shelter/other 4,585,000 infrastructure

Transport/logistics 13,515,000

Water 4,075,069

Total operations 67,253,541

Programme support 7,083,921

Total 74,337,462

121 UNHCR Global Appeal 2006 Darfur

Main objectives deployment of African Union (AU) troops, the security situation in Darfur remains volatile.

• Create a protective environment in camps, UNHCR started its operation in West Darfur in host communities and settlements conducive June 2004. In October, the UN Secretary-General to return and prevent further displacement. approved UNHCR's proposal to "take responsibility • Prevent forced returns of internally displaced for the protection and voluntary return of IDPs to their vil- persons (IDPs) and refugees and promote the lages of origin in West Darfur in partnership with other principle of voluntary return in safety and agencies…" On 31 January 2005, UNHCR and the dignity. Government of Sudan signed a Letter of Under- • Facilitate the return of IDPs and refugees if the standing (LoU) governing the voluntary return of security situation improves. displaced people to and within West Darfur, fur- • Support the reintegration of voluntary ther formalizing UNHCR's role. returnees. • Provide technical expertise to the Government During 2004 and 2005 conditions in Darfur were of Sudan and other UN agencies. not conducive to large-scale return of IDPs or ref- • Facilitate the voluntary repatriation of the ugees from Chad. However, UNHCR, through its 5,000 Chadian refugees in Darfur. monitoring, identified some 20,000 persons who returned spontaneously to their villages of origin: Planning figures half of them returned from the Chadian border Population Jan 2006 Dec 2006 area and the others from displacement elsewhere, West Darfur (IDPs) 657,000 459,900 mainly within West Darfur.

West Darfur 10,000 216,100 (returnee IDPs) Though delayed by limited funding in 2005, UNHCR will complete the expansion of its pres- Sudan (returnees) 10,000 40,000 ence in West Darfur from its main office in El Chad (refugees) 5,000 0 Geneina to seven field offices in 2006. This will allow for outreach to remote areas of displace- Total 682,000 716,000 ment and return. Financial requirements for this The UN in Sudan is anticipating the conclu- supplementary programme are being sion of a viable peace agreement between the finalized Government of Sudan and the Sudan Liberation Army and the Justice and Equality Movement by early 2006. If implemented successfully, this Working environment could improve security and confidence suffi- ciently to motivate 30 per cent of all IDPs and Recent developments 40,000 Sudanese refugees from Chad to return to their villages of origin before the onset of the At the time of writing, there are approximately 1.8 rainy season. Based on this scenario, West Darfur million IDPs in Darfur, of whom 657,000 are of would need to reintegrate almost 28,000 Sudanese concern to UNHCR in West Darfur. Despite the refugees and over 206,000 IDPs. ceasefire agreements, the two protocols signed in Abuja in November 2004 and the increased

UNHCR Global Appeal 2006 122 Constraints Attention will be paid to the protection of children and the elderly. The number of youth centres The main obstacle to IDPs and Sudanese refugees within IDP camps will be increased for children contemplating return to their villages is the lack of and young people to have a place where they can security and confidence. Armed clashes continue, share their protection concerns. as well as banditry and attacks on civilians, includ- ing IDPs, and humanitarian convoys, leading to UNHCR will expand its monitoring of return move- severe restrictions on movement. Long distances ments. Returnees will be interviewed at the point of and difficult road conditions constrain departure to ensure the voluntary nature of return programme delivery, particularly during the rainy and verification will take place at the point of season. UNHCR could unfortunately be prevented return. UNHCR will continue to implement the LoU from meeting many of its objectives by several in consultation with the Government of Sudan and Darfur possible obstacles, not least a failure to conclude community leaders and the Return Working Groups or implement a viable peace agreement. which UNHCR chairs in El Geneina and at relevant field locations in West Darfur.

Strategy After researching the issues of land occupation, the re-establishment of pastoral migration routes, land tenure and fair compensation for lost property, Protection and solutions UNHCR will seek to prevent further displacement and create an environment conducive to volun- tary return. If conditions are conducive to return, In 2006, UNHCR will continue to coordinate its UNHCR will organize the voluntary repatriation of protection activities through a collaborative an estimated 3,000-5,000 Chadian refugees from approach with different actors, primarily in West West Darfur. Darfur. UNHCR will chair the Protection Working Groups in El Geneina, Kulbus, Mukjar and Habilla, and in the other UNHCR offices when these Assistance become operational (Masteri, Foro Baranga and Beida). UNHCR will also support protection initia- UNHCR's planning for return and reintegration of tives in places where it does not maintain a per- Sudanese returnees and IDPs will continue to be manent presence. reviewed with relevant partners as the situation is constantly evolving. Arrangements will be put in UNHCR will continue to work in collaboration with place with the Governments of Sudan and Chad the Government of Sudan, UN agencies and to facilitate the spontaneous and organized repa- NGOs and further develop the role of camp coor- triation of Sudanese refugees from Chad. This will dinator in West Darfur (having taken on this role in include some transportation and assistance with 2005). A particular focus will be the protection of border-crossing, especially for groups of IDPs with women, especially the prevention of and specific needs. response to sexual and gender-based violence (SGBV). UNHCR will, therefore, provide safe UNHCR will continue to implement commu- spaces where women can share their concerns. In nity-based reintegration projects to support the addition to the 30 women's centres already func- reintegration of Sudanese returnees and IDPs who tioning in various IDP settlements and villages, have voluntarily returned to their villages of origin additional centres will be established. UNHCR and in West Darfur. These projects will concentrate on its partners will disseminate information on the water, sanitation, health and education. UNHCR advantages of fuel-efficient stoves. SGBV work- will provide shelter materials in coordination with shops will be organized to build capacity among other agencies and non-food items such as mos- agencies and community volunteers. UNHCR will quito nets, blankets, kitchen sets, sanitary mate- continue to co-chair the SGBV Working Group in rials, soap, and jerry cans. UNHCR will cooperate El Geneina with UNFPA. with other agencies to ensure that food and nutri- tion needs are being catered for and that

123 UNHCR Global Appeal 2006 Darfur

Internally displaced men and women from Douma camp escorted by soldiers from the African Union (AU) and the Government of Sudan to collect firewood. It is not uncommon for women to be attacked and sometimes raped when searching for firewood outside the camp. Since the AU initiative began, such violence has decreased sharply. UNHCR / H. Caux

sustainable livelihoods are being supported through the provision of seeds, tools and Coordination livestock. UNHCR will continue to work in close cooperation with the Government of Sudan, the AU, UN agen- Desired impact cies, the ICRC and local and international NGOs present in the region. A secure environment in areas of displacement and return will be created and consolidated. Basic Under the collaborative approach, UNHCR will pro- protection and assistance needs of the popula- vide its protection expertise to the Government of tion of concern will be met. Voluntary return and Sudan and other humanitarian agencies. UNHCR reintegration will become sustainable and secondary will coordinate protection through chairing the displacement will be prevented. Stable economic Protection Working Groups in West Darfur and co- and social activities will re-commence. chairing the Khartoum Protection Steering Group.

UNHCR will cooperate with the Human Rights Unit Organization and of United Nations Mission in Sudan (UNMIS) to implementation deliver protection and monitoring; with OCHA on camp coordination; and with UNFPA and UNICEF for the protection of groups with special needs. Management structure Through the Return Working Groups in El Geneina The operation in Darfur will be managed by the and relevant field locations, UNHCR will office in El Geneina and coordinated by the strengthen its coordination role regarding return Representation in Khartoum and the Director of and reintegration to and within West Darfur. The Operations for the Sudan Situation. Field offices Office will coordinate with IOM and OCHA, who in Zalingei, Kulbus, Mukjar, Habillah, Foro have assumed similar roles in the other two states Baranga, Masteri and Beida (West Darfur) and of Darfur. UNHCR will cooperate with UNMIS Nyala (South Darfur) will be overseen by the office (Human Rights/Civil Affairs Units) and FAO on in El Geneina. The programme in Darfur will be land occupation, migration routes and property supported by 160 staff members, 43 international rights and with the United Nations Joint Logistics and 117 national. Cell (UNJLC) in the transportation of non-food items. Additionally, UNHCR will work with other UN agencies, including OCHA, FAO, WFP, UNICEF

UNHCR Global Appeal 2006 124 and WHO as well as the ICRC to mobilize adequate Partners material support to reintegration in rural areas. Government agencies Commissioner for Refugees For the provision of security to IDPs, returnees Humanitarian Aid Commission and humanitarian workers, UNHCR will maintain close contact with the AU. NGOs UNHCR in El Geneina, West Darfur, will remain in Amel Center for Treatment and Rehabilitation close contact with UNHCR in Chad and regularly Danish Refugee Council exchange information on the 220,000 Sudanese International Rescue Committee refugees who have fled Darfur. INTERSOS Save the Children (Spain and USA) Darfur Triangle génération humanitaire Offices

Khartoum Others El Geneina AU Zalingei FAO Kulbus ICRC Mukjar IOM Habillah OCHA Foro Baranga UNFPA Masteri UNICEF Beida UNJLC Nyala UNMIS UNV WFP WHO

Financial requirements for this supplementary programme are being finalized

125 UNHCR Global Appeal 2006 Sudan

Main objectives

• Promote self-reliance for Eritrean refugees residing in camps in eastern Sudan, emphasizing gender equality, the needs of women, older ref- ugees and adolescents. • Advocate for a local integration policy for Eritrean refugees who opt to stay in eastern Sudan and resettle those who cannot be locally integrated. • Facilitate and promote volun- tary repatriation of refugees of various other nationalities, conditions permitting. • Pursue the establishment of a national asylum system in Sudan to provide refugees and asylum-seekers with interna- tional protection and legal status in accordance with international standards. • Rehabilitate refugee-hosting areas.

Planning figures Working environment Population Jan 2006 Dec 2006 Eritrea (refugees) 113,000 116,000 Recent developments Ethiopia (refugees) 14,800 14,600 During 2005, the repatriation of Eritrean refugees Uganda (refugees) 7,700 7,200 dwindled to insignificant numbers due to ongoing Other refugees 7,950 3,500 political tensions within Eritrea and difficult eco- Asylum-seekers 2,000 500 nomic conditions aggravated by drought. For the same reasons, there was a steady influx of Other of concern 25,000 10,000 Eritrean refugees into eastern Sudan throughout Total 170,450 151,800 the year. The prospects of voluntary return in 2006 are fairly remote. Also, it is anticipated that Total requirements: USD 13,045,950 some Eritrean refugees may remain in Sudan owing to the strong links created during their 30

UNHCR Global Appeal 2006 126 years' stay in the country. UNHCR is therefore reviewing its operational strategy to shift the Strategy focus from provision of assistance to promotion of improved livelihoods and self-reliance for the Protection and solutions refugee groups staying in the country. The Office will call for the Government to accept local inte- UNHCR's presence in eastern Sudan remains vital gration of refugees. Resettlement will also be for effective protection and timely assistance to pursued as a complementary form of durable refugees and asylum-seekers. While Sudan is a solution. party to the main international instruments and has national legislation on refugees, there is an The signing of the Comprehensive Peace Agree- urgent need for the establishment of an effective Sudan ment in January 2005 between the Government of national asylum system compliant with interna- Sudan and Sudan People's Liberation Movement / tionally accepted standards. This is particularly Army (SPLM/A) and the subsequent formation of important as Sudan is a transit point for many the Government of National Unity has created irregular migrants from the Horn of Africa to North hope for lasting stability in the country. The Africa and Europe. Building on the training support appointment of new governors in eastern states is provided to the Government by UNHCR to also a step towards addressing the needs of the assume refugee status determination (RSD) of marginalized eastern region. Further evolution of newly arrived asylum-seekers in the East in 2005, the refugee situation in the East depends largely UNHCR will assist in developing sustainable on political progress within Eritrea. Similarly, mechanisms and procedures to respond to the resolving outstanding internal political issues in protection needs of asylum-seekers and refugees. the region will allow for stable economic develop- UNHCR will aim eventually to handover full ment, improving livelihoods and generating viable responsibility for RSD to the Government of solutions for refugees. Sudan.

Constraints UNHCR will advocate for the adoption of a local integration strategy as a complementary tool for achieving durable solutions along with the Continued political instability in the East some- development of refugee-hosting areas through times erupts into violence, significantly restricting the Development through Local Integration (DLI) the mobility of UNHCR staff and hampering free initiative. At the same time, UNHCR will continue access to refugee sites. UNHCR's activities in to facilitate and promote voluntary repatriation of eastern Sudan unfortunately have to compete for refugees from various countries, provided that funding with the equally urgent work in South conditions are conducive to return. UNHCR will Sudan and Darfur. Inadequate funds are a major also pursue resettlement as a strategic means of obstacle impeding durable solutions for the enhancing protection of a select number of refugees residing in camps in eastern Sudan. refugees. Limited funding for food supply to refugees and inadequate and irregular food delivery has caused a drop in the nutrition level in some refugee The Office will implement initiatives such as sites.Atthesametime,ashortageofagricul- development of special monitoring, response and tural land restricts opportunities for food pro- support systems, to address the special protec- duction by refugees. The prospects for work or tion and assistance needs of refugee groups- self-employment are similarly bleak. at-risk and avoid potential human rights abuse, sexual and gender-based violence and exploitation.

Eritrean refugees

At the time of writing, some 88,500 Eritrean refugees in camps have the option to return when the

127 UNHCR Global Appeal 2006 security situation improves. In addition, there are Assistance 40,000 Eritreans whose status is to be determined following the application of the cessation clause UNHCR will tailor its 2006 assistance activities to in February 2002. For the remaining Eritrean pop- meet the needs of several distinct refugee and ulation, UNHCR will shift its assistance other groups of concern. Some assistance activi- programme from provision of assistance to ties will be implemented to meet the immediate self-reliance as a crucial intermediate step to humanitarian needs of newly arrived refugees and achieving durable solutions. UNHCR will continue asylum-seekers. UNHCR will reorient its assis- its advocacy and discussions with the Sudanese tance strategy so as to make refugees in camps

Sudan Government on the integration of those who cannot more self-reliant and better accustomed to partic- return through the comprehensive Development ipation in camp decision-making. These interven- Assistance for Refugees (DAR) and the Development tions will entail refugee and host community through Local Integration programmes. UNHCR development and support to the Government to will also further elaborate the programme of mobilize the productive capacities of refugees Sustainable Options for Livelihoods Security in and the local population. UNHCR will support ini- Eastern Sudan (SOLSES) to support the host tiatives by national and local authorities to pro- communities through community-based develop- vide arable lands to refugees for generating ment projects involving refugees and local resi- income. dents. Environmental recovery, infrastructure rehabilitation activities, and small-scale area Desired impact development will complement the community- based projects. As the implementation of the new programmes proceeds, the Office will maintain Refugees and asylum-seekers will have access to relief assistance exclusively for the groups at risk, international protection and durable solutions while skills development and vocational training, during 2006. With the help of UNHCR, the capac- provision of micro-credits, and income generation ity of the national Government will be strength- activities facilitating self-reliance will become the ened to establish a viable national asylum system. core of the programme. Self-reliance and integra- UNHCR and national authorities will respond tion activities will require approximately five years effectively to the immediate humanitarian needs of implementation, the majority of the activities of persons of concern, new arrivals and vulnerable beginning in 2006 or 2007. groups. The refugees residing in camps will have better living conditions and 60 per cent will Refugees of other nationalities become more self-reliant by 2008. The various ref- ugee camps in eastern Sudan will be consolidated into four camps. The SOLSES programme will link UNHCR will support the Government to provide up with camp closures, improve the living condi- protection and humanitarian assistance to refugees tions of refugees in the remaining camps and of other nationalities and asylum-seekers. For increase the potential for integration of refugees some Ethiopian, Ugandan, Congolese and Somali into host communities. Local hosting communi- refugees, voluntary repatriation remains the most ties will benefit from the community-based devel- viable durable solution. Where feasible and if opment projects through rehabilitation of appropriate, small numbers of these refugees will schools, health centres and other vital infrastruc- be voluntarily repatriated to their respective coun- ture. Communities will take increasing ownership tries either by land or chartered or commercial of ongoing environmental recovery projects. flights. UNHCR will pursue resettlement for urban and camp-based refugees on a group and indi- vidual basis for 1,400 Eritreans, 100 Ethiopians and some 500 refugees of other nationalities.

UNHCR Global Appeal 2006 128 Sudan

An Eritrean refugee in eastern Sudan is queuing to receive her monthly food ration, with her UNHCR card in hand. UNHCR / P. Stromberg

Organization and Coordination implementation UNHCR will continue to implement its projects in eastern Sudan in close cooperation with the Sudanese Government and local and interna- Management structure tional NGOs. The Governor's Office for Kassala, Gedaref and Red Sea states, various line minis- In 2006, UNHCR will operate with 53 staff members: tries, UN agencies and NGOs will also play an 16 international staff including 10 UNVs, 36 important role in the implementation of the national staff, and one secondee. SOLSES programme. Coordination will be ensured at two levels - at the national level in The UNHCR Representation in Khartoum will be Khartoum and at the regional level in the states of responsible for the overall management of the Kassala, Gedaref and Red Sea. The sub-office in programme and for liaison with the Government, Es Showak will be responsible for the coordina- embassies and NGOs. To ensure adequate pres- tion of the programme at the regional level and a ence in eastern Sudan, UNHCR will maintain its presence in Kassala will cover a wide geographic sub-office in Es Showak and a presence in area in eastern Sudan. Kassala. Offices

Khartoum Es Showak Kassala

129 UNHCR Global Appeal 2006 Partners Others FAO Government agencies UNFPA Commissioner for Refugees UN-HABITAT Ministry for Education UNICEF Ministry of Health UNV Ministry of International cooperation WFP National Forestry Corporation WHO Office of the Governor of Gadaref, Kassala and Red Sea States Sudan

NGOs Global Health Foundation Human Appeal International IUCN - World Conservation Union Ockenden International Sudan Open Learning Organisation Sudanese Environmental Conservation Society Sudanese Red Crescent Society Window Trust

Budget (USD Activities and services Annual Programme Budget Supplementary Programme Total Budget1 Protection, monitoring and 3,317,160 25,000 3,342,160 coordination Community services 354,321 0 354,321 Crop production 254,361 0 254,361 Domestic needs 163,592 0 163,592 Education 530,938 0 530,938 Food 39,960 0 39,960 Forestry 398,802 0 398,802 Health 764,770 0 764,770 Income generation 702,635 0 702,635 Legal assistance 857,186 10,000 867,186 Operational support (to 994,299 0 994,299 agencies) Sanitation 364,122 0 364,122 Shelter/other 693,562 150,000 843,562 infrastructure Transport/logistics 769,970 0 769,970 Water 738,962 0 738,962 Total operations 10,994,642 185,000 11,129,642 Programme support 1,916,308 0 1,916,308 Total 12,860,950 185,000 13,045,950

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 12,950) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

UNHCR Global Appeal 2006 130 South Sudan

Main objectives • Address protection issues faced by returning populations through interventions with the local authorities. • Facilitate safe and dignified voluntary repatria- • Lead the formulation of an inter-agency pro- tion of Sudanese refugees from countries of tection framework for South Sudan. asylum. • Under the coordination of the Return, Reinte- • Promote durable solutions for returning refu- gration and Recovery Section of the United gees and internally displaced persons (IDPs) Nations Mission in Sudan (UNMIS), play a lead through sustainable reintegration activities role in assisting the return and reintegration of pursued through the implementation of com- IDPs in greater Equatoria (West Equatoria, East munity-based reintegration projects employing Equatoria and Bahr el Jebel) and Blue Nile the "4Rs" approach to reintegration assistance State. and thereby contributing to an effective transi- tion from relief to recovery. Financial requirements for this supplementary programme are being finalized

131 UNHCR Global Appeal 2006 ot Sudan South ot Sudan South

The Peace Agreement has opened the way for the return to southern Sudan of many refugees and IDPs. Women collect water at a new settlement outside Rumbek, where many returnees have set up home. UNHCR / R. Ek

Planning figures Working environment UNHCR expects a total of 140,000 Sudanese refugees from the neighbouring countries to Recent developments return to South Sudan by May 2006. Of this total, approximately 55,000 will benefit from organized On 9 January 2005, the Government of Sudan returns (Central African Republic: 6,000, and the Sudan People's Liberation Move- Democratic Republic of the Congo: 10,000, ment/Army (SPLM/A) signed a Comprehensive Egypt: 5,000, Ethiopia: 14,000, Kenya: 10,000, Peace Agreement (CPA) formally ending more Uganda: 10,000) and 85,000 may return sponta- than two decades of civil war in Sudan. The sign- neously. At the time of writing, the projected ing of the CPA has paved the way for the recovery number of returnees by the end of 2006 was not and reconstruction of South Sudan and the return available as surveys from countries of asylum on of millions of displaced people. The civil war in intention to return were still being compiled. South Sudan has caused the displacement of approximately four million internally displaced persons (IDPs) and more than half a million refugees.

In July 2005, Dr. John Garang, the former leader of the SPLM/A, was sworn in as the first Vice-President of the Republic of Sudan and the President of South Sudan, but then tragically lost his life in a helicopter crash. The announcement of his death sparked violent riots in Khartoum and in the

UNHCR Global Appeal 2006 132 southern towns of Juba and Malakal, resulting in Rehabilitation Commission (SRRC) and assists numerous casualties and widespread destruction them in fulfilling their primary role of providing of property. The SPLM/A appointed Salva Kiir, protection to refugees and IDPs, as well as former Vice-President of southern Sudan, to suc- returning IDPs and refugees. UNHCR's support is ceed Dr. John Garang. A Government of National mainly in the areas of protection and return mon- Unity was formed in accordance with the CPA with itoring, capacity building and training on IDP and SPLM and the former ruling National Congress returnee protection standards and principles, Party taking up nine and 16 ministerial portfolios registration, information campaigns, as well as respectively. Juba was confirmed to be the new interventions with the authorities on behalf of capital of South Sudan. It is here that government returnees and those still displaced. Further- institutions and humanitarian agencies are cur- more, UNHCR seeks to implement community- rently establishing their offices. based reintegration projects to ensure that South Sudan returnees can freely exercise their right to return to areas of their choice or their right to integrate Constraints where they are. UNHCR's overarching protection principle is to ensure that IDPs and returnees are In 2006, displaced populations are expected to equally treated and that the same protection return to areas that have suffered heavily from standards are applied for both. conflict and where basic social services are limited or non-existent. Physical infrastructure is lacking, UNHCR plays a prominent role in the the little that had been in place before the conflict inter-agency collaborative effort in South Sudan now long since destroyed. Local institutions and and has developed a common protection frame- communities in the south are perilously work which will guide the operational response of overstretched. the UN, partners and local authorities for the provision of protection services along routes and ThepresenceoftheUganda-basedLord's in areas of return. As part of the framework, Resistance Army continues to cause displace- UNHCR aims to ensure the legal, physical and ment within southern Equatoria, making it difficult material security of returnees; secure a receptive for refugees to return. Numerous Sudanese militia environment in areas of return; strengthen local groups still need to be brought into the peace and institutions through capacity-building activities; reconciliation processes. Regional and clan differ- promote fair land and property restitution and ences remain sources of tension and social strife allocation; and promote confidence building and in South Sudan. Issues such as land allocation reconciliation. and livelihood opportunities also pose major challenges to sustainable return. Landmines and In 2006, UNHCR will continue to deploy monitor- unexploded ordnance are omnipresent, and many ing teams to track return movements. In collabo- feeder roads to be used by returning refugees and ration with concerned UN agencies, UNHCR will IDPs are still mined. support HIV/AIDS prevention/awareness and pro- motion of gender equality through community- based organizations and in cooperation with local Strategy authorities.

Protection and solutions Refugees of other nationalities

UNHCR has been appointed the lead agency for Insecurity in neighbouring countries has led to an the protection sector in South Sudan and chairs influx of refugees from Ethiopia, the Democratic the Protection Working Groups in Rumbek, Juba Republic of the Congo (DRC) and the Central and other state capitals of South Sudan. UNHCR African Republic (CAR). UNHCR is aware of the collaborates with the Government of South presence of 20,000 refugees from these three Sudan, in particular with the Sudan Relief and countries in the south and in Khartoum. UNHCR

133 UNHCR Global Appeal 2006 will liaise with local authorities to promote asylum reintegration of refugees and IDPs. Ideally, the for these groups and provide assistance in coordi- recurrence of displacement, or an exodus from nation with other humanitarian agencies, bearing rural to urban areas, should be precluded. In this in mind the need to promote self-sufficiency at regard, provision of assistance to returnees will the earliest opportunity. have an immediate and visible impact and will meet their immediate and urgent basic needs. For the local population in target areas, assistance Assistance will build confidence, encourage reconciliation,

ot Sudan South and help peace to take root. From October to May, prior to the rainy season, voluntary repatriation from various countries of Refugees from Ethiopia, DRC, and CAR hosted in asylum will take place simultaneously. A logistics South Sudan will be registered and receive protec- base in Yei will be further developed to support tion and basic assistance pending durable voluntary repatriation (it houses the main ware- solutions. house for non-food items and fuel and the main workshop for vehicle maintenance). Organization and UNHCR will be responsible for the management of implementation 13 way stations located on key return routes. Basic medical facilities and mine awareness edu- cation will be made available to returning popula- Management structure tions. Returnees will stay a maximum of 72 hours in way stations before proceeding to their final The Director of Operations for the Sudan Situation destinations. In close partnership with UN Mine has overall managerial responsibility and provides Action Service, mines on return routes will be policy and operational guidance on the voluntary cleared. The rehabilitation of bridges and roads repatriation of the Sudanese refugees in CAR, on return routes will continue. DRC, Egypt, Eritrea, Ethiopia, Kenya and Uganda. Following observations made by the High Com- In order to help returnees resume a normal life missioner during his first visit to Sudan, the Direc- upon arrival, UNHCR and its partner agencies tor of Operations for the Sudan Situation (DOSS) will continue to implement a wide range of has, since October 2005, reorganised the man- community-based reintegration projects serving agement structure to address operational objec- one or more of the five main sectors: water, tives and activities in South Sudan. The decision sanitation, education, health, and livelihood. has also been influenced by the southern authori- UNHCR will assist local authorities (police and ties' recent designation of Juba as their political judiciary) to cope with increased populations by capital. The Operations Manager based in Juba providing training on human rights and material will run UNHCR activities in South Sudan and will assistance such as office equipment. be directly accountable to the Director of Opera- tions for the Sudan Operations. This arrangement From May to October, during the rainy season, is in line with the management structure of UNMIS when most roads in the South become unusable, for South Sudan. The Operations Manager will UNHCR will focus on stockpiling and capacity also liaise with the countries of asylum. The building for the local authorities. branch office in Khartoum will collaborate and cooperate with the Operations Manager's office on protection, programme, supply chain, logistics Desired impact and administration until it builds up its human resource capacity in Juba by early 2006. Conditions permitting, UNHCR will repatriate an estimated 140,000 refugees in safety and dignity In this regard, the staffing for the 2006 South to South Sudan by May 2006. The initial two-year Sudan operations is currently under review. The post-conflict phase is crucial to the return and operation in 2005 was managed by 42

UNHCR Global Appeal 2006 134 international staff 121 national staff and 13 UNVs. NGOs The number of staff is expected to increase fol- Action contre la faim lowing a staffing review in late 2005. Adventist Development and Relief Agency (USA) African Development and Emergency Organization Afrika Aktion Hilfe Coordination American Refugee Committee Association of Christian Resource Organization for UNHCR's repatriation and reintegration South Sudan programme is regional in nature in the sense Catholic Relief Services (USA) that it includes returns to South Sudan from Comboni Missionaries seven refugee-hosting African countries. In Comitato Collaborazione Medica South Sudan, UNHCR will operate within the col- Diocese of Rumbek laborative humanitarian framework set out in the Diocese of Yei South Sudan UN Work Plan. UNHCR will continue to contribute Humanitarian Assistance for South Sudan to inter-agency efforts to develop comprehensive International Aid Services policies, guidelines and standards for the return International Rescue Committee and reintegration as well as protection frame- Jesuit Refugee Services Italy works for returning refugees and IDPs. These Lutheran World Federation efforts are incorporated into the UN Work Plan for Malteser Hilfsdienst (Germany) 2006 to support spontaneous and assisted New Sudan Council of Churches returns. Norwegian Peoples Aid Norwegian Refugee Council Offices PACT International (USA) Secretariat of Education Juba Swedish Free Mission Ad Damazin World Relief Sudan (USA) Bor World Vision International Kajo-Kaji ZOA Refugee Care Kapoeta Malakal Pochalla Others Rumbek Deutsche Gesellschaft für Technische Zusammenarbeit Tambura FAO Torit ICRC Kurmuk UNDP Yambio UNICEF Yei United Nations Mine Action Services United Nations Mission in Sudan UNV Partners WFP Government agencies Humanitarian Affairs Commission Sudan Relief and Rehabilitation Commission Financial requirements are being finalized for this supplementary programme

135 UNHCR Global Appeal 2006 East and Horn of Africa

Recent developments

urable solutions remain the region’s funda- Dmental overall objective both in terms of vol- untary repatriation and reintegration, as well as in terms of local integration and self-sufficiency. In Ethiopia, the voluntary repatriation of Somalis to “Somaliland” was completed in June 2005, leading to the closure of seven Somali refugee camps. Today a residual group of some 10,000 refugees from south and central Somalia is being hosted in one camp. By mid-June 2005 over 4,000 refugees had returned from Djibouti to “Somaliland”, and it is expected that another 4,000 refugees will have repatriated by the year’s end. A small, but signifi- cant voluntary repatriation of Somalis to “Puntland” also took place. Djibouti Eritrea Considerable efforts were made to enhance peace- building initiatives in the region. The signing of the Ethiopia Comprehensive Peace Agreement between the Kenya Government of Sudan and the Sudan People’s Liberation Movement/Army (SPLM/A) on 9 January Somalia 2005, as well as the adoption of a new Transitional Sudan Constitution in July 2005, have paved the way for (see under Chad/Sudan situation) the inauguration of a Government of National Unity and the commencement of a six-year Uganda interim period. East and Horn of Africa

Another notable development was the successful the UN Security Council to expedite an exemption relocation in June 2005 of Somalia’s Transitional of the arms embargo to allow for the IGASOM Federal Government (TFG) from Nairobi to deployment. Somalia, despite differences within the TFG on the place of relocation and the deployment of The overall military situation in Ethiopia and forces to support it (see Somalia chapter for Eritrea remained tense, with a build up of troops details). The existence of the TFG brings with it on both sides of the border. In Ethiopia, although renewed hope for the voluntary repatriation of the outcome of the general election in May 2005 some 350,000 Somali refugees from Djibouti, fuelled continued political tension, the parties Ethiopia, Kenya, Uganda and Yemen, although it continued their endeavours to resolve the is likely that refugees will prefer to see the situa- impasse. tion stabilize before deciding to repatriate in large numbers. In the meantime, a multi-pronged The region continued to implement the most Comprehensive Plan of Action (CPA) for Somalia, advanced of UNHCR’s HIV/AIDS refugee interven- initiated in August 2004, will benefit returnees, tion programmes in Africa. Over the years, many refugees, internally displaced persons (IDPs) and of the countries have implemented comprehen- other groups with specific needs in communities sive HIV/AIDS interventions for refugees and sur- where returnees and IDPs live. rounding host communities; this includes prevention of mother-to-child transmission and In July 2005, the African Union Peace and Security the provision of antiretroviral treatment. After Council (AU/PSC) reaffirmed support for the many years of planning, the implementation of deployment of Phase 1 of an Intergovernmental the Great Lakes Initiative on AIDS will begin in Authority on Development (IGAD) Peace Support 2006; this includes Kenya. The planned repatria- Mission in Somalia (IGASOM), which is expected tion to Sudan from surrounding countries con- to be taken over subsequently by the African tains a strong HIV/AIDS component that includes Union. The AU/PSC also reiterated its request for a related repatriation package as well as strong

137 UNHCR Global Appeal 2006 atadHr fAfrica of Horn and East

Ethiopia: Convoy taking refugees back to "Somaliland" from Aisha camp. Only 15 metres of each side of the road have been cleared of landmines; the rest of this former frontline mountain area is still full of mines. UNHCR / B. Heger

coordination and communication mechanisms major concern in most of the operations, and this among agencies and governments. HIV surveillance continues to affect the security of refugees and has been undertaken among Sudanese refugees in staff. Furthermore, despite the welcome move of Uganda, Kenya and Ethiopia. Results to date show the Somali Transitional Federal Government from a lower than expected HIV prevalence with a high Kenya to Somalia, the security situation in south level of awareness. and central Somalia has remained volatile. Another notable constraint was the unpredictabil- While there has been considerable progress in the ity of funding for the programmes, posing serious promotion and implementation of durable solu- challenges to ensuring effective programme deliv- tions in the region, the overall security environ- ery. Several important policy priority activities, ment remained a source of anxiety. The border such as environmental activities, or sustainable demarcation dispute between Ethiopia and Eritrea return activities, had to be deferred due to insuffi- led to travel restrictions. Attacks by the Lord’s cient resources. Resistance Army in Northern Uganda and Southern Sudan resulted in outflows of Sudanese to Uganda. In 2004-2005, more than 18,000 Sudanese had Strategic objectives sought asylum in Uganda and another 4,000 in Kenya. Insecurity in the eastern Democratic One of UNHCR’s main objectives at the regional Republic of the Congo (DRC) continued to affect level is to strengthen its partnerships with the Uganda, leading to the massive outflow of some AfricanUnion(AU),theNewPartnershipfor 20,000 Congolese into Uganda. The majority, Africa’s Development (NEPAD), the African however, eventually returned to DRC and a Development Bank (AfDB), the Economic residual group of 8,000 was transferred to Kyaka II Commission for Africa (ECA) and IGAD. In col- in south-west Uganda. Camp safety and security laboration with IGAD and with other UN agencies, and related access issues are another area of

UNHCR Global Appeal 2006 138 UNHCR will continue to promote the implementa- tion of the signed peace accords, which remain Operations vital for the consolidation of peace and stability in both Sudan and Somalia, as well as in the imple- UNHCR’s operations in Eritrea, Ethiopia, mentation of the planned voluntary repatriations. Kenya, Somalia and Uganda are described in separate chapters. Operations in Sudan will be UNHCR’s strategic objectives also include the described in the Chad/Sudan chapters. improvement of the institution of asylum through national refugee legislation. In this respect, it In Djibouti, UNHCR will focus on pursuing dura- should be noted that Ethiopia adopted its ble solutions for refugees through voluntary repa- national refugee legislation in mid-2004 and triation to “Somaliland”, “Puntland” and Ethiopia. Kenya and Uganda expect to adopt their national Resettlement of refugees will also be given prior- refugee legislations in 2005/2006. UNHCR intends

ity. Other programme activities include perform- East and Horn of Africa to support the Governments of these three coun- ing individual refugee status verification for those tries with the implementation of their national refugees who opt not to return, and seeking legislations, especially in establishing appropriate appropriate durable solutions for them; consoli- structures and developing capacity. dating all camp-based refugees and services into one camp at Ali Adde; addressing refugee protec- The promotion of voluntary repatriation will tion issues and concerns according to interna- remain a priority for UNHCR and in 2006 it is tional refugee protection principles; rehabilitating expected that some 34,000 Sudanese will be refugee-impacted areas; and strengthening the assisted to return to their areas of origin (10,000 Government’s capacity to coordinate refugee in Kenya, 14,000 in Ethiopia and 10,000 in affairs. UNHCR will ensure that adequate assis- Uganda). Likewise, some 10,000 Somalis will be tance is delivered in accordance with UNHCR assisted to return (5,000 in Djibouti and 5,000 in standards. This will include health and social ser- Kenya). UNHCR will also play an active role in vices, along with a primary school in the camp. It facilitating resettlement initiatives and in this is envisaged that with the camp consolidation, respect it is envisaged that over 5,500 individuals re-registration and profiling of the refugee popu- will be targeted in Kenya, Ethiopia and Djibouti. lation will be more feasible. Other durable solution initiatives will be actively pursued, such as self-sufficiency, development assistance for refugees (DAR), and UNHCR’s exit The lack of a logistics implementing partner con- strategy will include camp rehabilitation and con- tinues to render repatriation operations time con- solidation. Programmes in the region will ensure suming for UNHCR staff. In addition, the lack of attention to policy priorities for refugee women, infrastructure, particularly education facilities and children and older people. In Ethiopia, Kenya and roads, in “Somaliland”, along with Somali refugees’ Uganda, multifunctional teams are expected to be long-term dependence on international assis- established by the end of 2005 to ensure of age, tance in camps, discourage refugees from repatri- gender and diversity mainstreaming in 2006. In ation. Another notable constraint continues to be the same vein, UNHCR will implement global pri- food pipeline and supply challenges. There has ority programmes in line with Agenda for Protection been a 50 per cent cut in food rations since March goals: gender equality and empowerment of 2005. women, education and combating HIV/AIDS. Improvements will be made in data collection, The Regional Support Hub (RSH) in Nairobi registration and the application of standards and provides support to 17 UNHCR operations in the indicators in all sectors. These efforts are East and Horn of Africa and in Central Africa and expected to improve the quality of programmes the Great Lakes. Its main objective is to coordi- through the reinforcement of results-based man- nate the implementation of global policy priorities agement. In Somalia and Uganda, UNHCR will also with all country operations under its purview. It continue to work closely with other UN agencies brings together expertise in durable solutions, on the formulation and implementation of return registration, refugee women and children, geographic plans for internally displaced people. information systems and public information. RSH

139 UNHCR Global Appeal 2006 applies this expertise to specific objectives UNHCR’s interaction with the AU, there is a need related to the enhancement of durable solutions, to complement the strong existing partnership in particular resettlement, support for the imple- by simultaneously strengthening relations with mentation of peace processes, registration and interdepartmental fora and with the Department documentation of refugees, prevention and of Peace and Security. response to sexual and gender-based violence and advocacy. Another important area of support The appointment of a UNHCR NEPAD Programme atadHr fAfrica of Horn and East covers financial control, supply chain and field Coordinator has significantly enhanced the Office’s safety, where the RSH assists offices to improve capacity to support NEPAD and the activities of the their internal control mechanisms and comply UN system Sub-Cluster on Humanitarian Response with security standards. The staff welfare depart- and Post-Conflict Recovery. The absence of a ment also plays a key role in counselling staff. The mechanism within which the AU/NEPAD can RSH consists of 14 regional staff, two field service interact and provide leadership and guidance to staff and two experts seconded from the Interna- UN agencies continues to slow down progress. tional Catholic Migration Commission. UNHCR has established strong working relationships and developed joint work programmes The African Union Liaison Unit in with the AU, IGAD, AfDB, ECA and other UN Addis Ababa agencies that should facilitate the realization of the broad NEPAD goals and the objectives of the The process of transforming the Organization of sub-cluster. African Unity into the new African Union (AU) has been achieved, with a large number of the newly The status of recovery and reconstruction in some appointed staff at the AU Commission taking up 14 post-conflict countries will be assessed in part- their assignments in early 2005. However, prog- nership with the AU, the Japan International ress is slow, due in part to the limited capacity of Cooperation Agency and NEPAD. Assessment the Commission to implement the heavy work reports will provide the basis for design and imple- programme it has set for itself, coupled with the mentation of comprehensive and integrated challenges of managing the numerous offers for programmes, including the reintegration and support and partnership. With regard to rehabilitation of displaced populations.

Budget (USD)

Country Annual Programme Supplementary 1 Total Budget Programme Budget

Regional Support Hub (Nairobi, Kenya) 5,083,850 0 5,083,850

Djibouti 3,326,894 0 3,326,894

Eritrea 9,212,440 0 9,212,440

Ethiopia 15,332,397 0 15,332,397

Kenya 29,984,562 0 29,984,562

Somalia 7,155,371 0 7,155,371

Sudan 12,860,950 185,000 13,045,950

Uganda 16,250,358 705,890 16,956,248

Total 99,206,821 890,890 100,097,711

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. The requirements for Darfur and South Sudan will be communicated at a later date. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 62,362) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

UNHCR Global Appeal 2006 140 Eritrea

Main objectives Planning figures Population Jan 2006 Dec 2006

• Ensure international protection, provide care Returnees 17,000 20,000 and maintenance assistance and seek durable Somalia 3,500 2,000 solutions for some 4,000 refugees, as well as (refugees) some 580 asylum-seekers. Asylum-seekers 580 565 • Facilitate the voluntary repatriation of 3,000 Eritrean refugees from Sudan. Other refugees 560 260 • Consolidate the response to the immediate Total 21,640 22,825 needs of returnees and returnee-receiving areas. Total requirements: USD 9,212,440 • Mobilize the support of other UN and develop- ment agencies in addressing the longer-term needs of returnee areas.

141 UNHCR Global Appeal 2006 monitoring to ensure that appropriate levels of Working environment security can be maintained to implement the country operation. The limited involvement of Recent developments NGOs in the country limits the development of eventual partnerships. In September 2005, the UN Security Council extended the mandate of the UN Mission in Ethiopia Although the Governments of Eritrea and Sudan and Eritrea (UNMEE) until 15 March 2006. The maintain a humanitarian corridor for voluntary Security Council also expressed concern about repatriation, the border point into Sudan remains

Eritrea the high concentration of troops from both coun- closed. Trade and local economies have suffered tries near the border over which they had fought a as a result, reducing the prospects of successful two-year war. These military movements gave rise to reintegration of returnees. Construction projects fears of renewed conflict, and Ethiopia was urged to have been delayed by the lack of skilled labour accept as final the decision of the Eritrea-Ethiopia and a chronic shortage of building materials. Boundary Commission on the demarcation of the The high rate of inflation has further compli- border and to enable the Commission to demar- cated the reintegration of returnees. The border cate the border without delay. with Ethiopia also remains closed.

Some 2.3 million people in Eritrea, almost UNHCR'sexitstrategyisbeingcompromisedby two-thirds of the population, depend on varying the lack of an integrated United Nations and levels of food aid. In July 2005, Eritrea asked the US Government strategy to address the longer-term Agency for International Development (USAID) – needs of returnees and displaced people in the its largest donor of food aid – to stop operations, country. saying it was “uncomfortable” with the agency's work. In its September resolution, the UN Security In the absence of national refugee-related legisla- Council expressed concern about the food security tion and procedures, UNHCR retains the primary situation and its potential to create greater insta- responsibility for the protection of refugees. This bility in both Eritrea and Ethiopia, and called on involves ensuring access to asylum, fair proce- Eritrea to lift restrictions imposed on the opera- dures and refugee status determination (RSD). tions of aid organizations. At the time of writing, UNHCR will actively pursue durable solutions, humanitarian officials in Eritrea were assessing how mainly through resettlement and voluntary repa- the departure of USAID would affect food security. triation for refugees from Somalia and Sudan. In 2004, the country produced 85,000 metric tons However, the success of these efforts will be con- of cereals: just 15 per cent of its yearly food tingent not only upon conditions in those coun- requirements and less than half of the average tries, but also upon the allocation of additional annual harvest over the previous twelve years. resources to UNHCR. Although the food crisis is largely attributable to long-term drought, the failure to grow sufficient food since 1998 is also commonly linked to Strategy Eritrea’s conflict with Ethiopia and its strengthen- ing of defences along the border. Protection and solutions

Constraints The Office will continue to monitor conditions of return for past and new returnees in Eritrea. It will The difficulties caused by prolonged drought in monitor the enjoyment of rights by returnees, returnee areas have been compounded by the sig- especially their access to basic services. In 2006, nificant risk of mines and unexploded ordnance UNHCR will maintain a response capacity for the and the increased security concerns caused by return of 3,000 returnees from Sudan and con- the failure of Eritrea and Ethiopia to resolve the tinue with the provision of reintegration assis- border issue. All these factors will require careful tance for an estimated 17,000 persons in the main

UNHCR Global Appeal 2006 142 Eritrea Eritrea

Village in the Gash Barka region of Eritrea, where many returnees have set up home. UNHCR / E. Parsons returnee areas. This will be the continuation of sustainable, there will have to be a greater diver- efforts to address one of the world's oldest pro- sity of sources of income generation available to tracted refugee situations (dating back to the returnees. 1960s). The majority of the 3,000 refugees are expected to return to the Gash Barka region in UNHCR is committed to the successful comple- western Eritrea, an area with great agricultural tion of voluntary repatriation and reintegration potential despite the recent devastation wrought programmes, allowing Eritreans to rebuild their by war and drought. Since 2000, some 230,000 lives in a sustainable manner. The building of refugees have repatriated, of whom UNHCR has government capacity will eventually allow for a assisted over 120,000. complete transfer of management responsibili- ties to central and local authorities. UNHCR, in Considerable inputs are still required in returnee cooperation with its sister UN agencies, is pro- areas to ensure the sustainability of repatriation. viding vital expertise and longer-term support to UNHCR is continuing with its “4Rs” initiatives strengthen the capacity of national institutions. (Repatriation, Reintegration, Rehabilitation and In 2006, they will provide training on project plan- Reconstruction), advocating for joint efforts to ning and management in view of the handover of address identified gaps and foster synergy reintegration projects. As UNHCR begins to between UN agencies and other development phase out of reintegration, the bulk of its imple- actors in the recovery process. Initially UNHCR mentation work will be taken over by two govern- interventions focused on addressing basic ment agencies: the Eritrean Relief and Refugee infrastructural needs. The focus will now shift Commission (ERREC) and the Gash Barka Zoba towards protecting these investments in the Administration (GBZA). community through local government capacity building. In addition, if livelihoods are to be

143 UNHCR Global Appeal 2006 As part of its search for durable solutions for will be discouraged. Continuing education for Somali refugees, UNHCR made arrangements to adolescents and access to secondary schools repatriate 376 persons in 2005. UNHCR will also will be promoted through an agreement with the continue with this activity in 2006. In addition, a Ministry of Education. small number of Sudanese refugees are expected to repatriate voluntarily. Resettlement will also be UNHCR will supply refugees with food and other explored, albeit for strictly defined categories. items in the two camps. Assistance to refugee women and children will involve supplementary Eritrea is not a party to the 1951 Convention relat- feeding for malnourished children, pregnant and

Eritrea ing to the Status of Refugees or to the 1969 OAU lactating women and other groups with special Convention on the Specific Aspects of Refugee needs. UNHCR will also provide financial assis- Problems in Africa, but the country continues to tance to urban refugees with special needs. accept asylum-seekers on its territory and Through community services, training sessions adheres to the principle of non-refoulement. will be provided on how to combat HIV/AIDS, UNHCR will continue to press for accession to female genital mutilation and sexual and these international instruments. In addition, the gender-based violence. Office will extend international protection, as well as basic humanitarian assistance to the Desired impact Somali and Sudanese refugees in camps, as well as to some urban asylum-seekers and refugee UNHCR will ensure the safe and dignified return of groups from other countries. The focus will be on Eritreans to their areas of choice, whereupon the search for durable solutions to avoid a pro- immediate needs will be met, followed by reinte- tracted refugee situation. The Office will conduct gration assistance. The Office will at the same refugee status determination for all asylum-seekers. time make further progress in its efforts to ensure It will continue to provide full material support and that the long-term development of returnee com- also offer technical assistance to the Government of munities is supported by the Government and Eritrea in the development of standards and pro- international development actors. 2006 will be an cedures pertinent to refugees. In order to protect important year in the transition from reintegration potentially stateless individuals, UNHCR will con- to longer-term assistance, as UNHCR endeavours tinue to maintain its monitoring role. to lay a foundation for sustainable development by drawing in agencies to carry out development Assistance activities.

UNHCR and ERREC will manage the protection Refugees and asylum-seekers in Eritrea will con- and logistics component of voluntary repatria- tinue to benefit from protection and basic assis- tion, ensuring that returnees travel in safety and tance (which will encompass some education, dignity. Immediate needs will be addressed in community service and training projects). Protec- areas of return through major upgrading of water tion of urban asylum-seekers will be guaranteed supplies, and more modest projects in health, through effective RSD procedures and protection sanitation, education, agriculture and community interventions, and the RSD backlog will be services. Efforts to protect the environment will reduced through improved procedures and be enhanced through small-scale community resources. tree planting projects and the provision of metal-frame shelter structures, kerosene stoves, UNHCR’s efforts to promote adherence to inter- and kerosene (reducing the demand for wood for national protection standards will be linked construction and fuel). Women will have access explicitly to its call for Eritrea to accede to all rele- to a range of income generation and vocational vant international legal instruments. training projects, and children will benefit from educational inputs. The education of primary school age children, especially girls, will be pro- moted and traditional early marriage practices

UNHCR Global Appeal 2006 144 Organization and Partners implementation Government agencies Eritrean Relief and Refugee Commission (ERREC) Gash Barka Zoba Administration (GBZA) Management structure Ministry of Education Ministry of Health The main office is situated in Asmara, with two Office of Refugee Affairs field offices in western Eritrea. The three offices are run by a total of 82 national and 17 interna- NGOs tional staff (including one JPO, five UNVs and one Cooperazione e Sviluppo international UNOPS staff). All three offices will be Coordinating Committee for Voluntary Service Eritrea required for the duration of the repatriation and Organizations reintegration operation in 2006. International Medical Corps

Coordination Budget (USD)

Refugee and statelessness issues are dealt with in Activities and services Annual Programme coordination with the Office of Refugee Affairs Budget and the Department of Immigration and Nationality. Protection, monitoring 1,784,864 Eritrean Relief and Refugee Commission, and the and coordination Gash Barka Zoba Administration remain UNHCR’s Community services 516,665 main governmental counterparts with regard to repatriation and reintegration. Continued Crop production 333,833 collaboration is enjoyed with the Regional Domestic needs 158,000 Directorates of the Ministries of Education, Health, Education 237,900 Agriculture and Labour and Welfare in the Gash Barka Region under the overall authority of the Food 973,333 Governor. UNHCR has recently joined the UN Forestry 109,583 Development Group and will further develop “4Rs” actions through joint programmes in Health 396,236 returnee situations. UNHCR also works with the Income generation 599,042 UN Resident/Humanitarian Coordinator as well as Legal assistance 184,962 other UN Agencies. UNHCR actively participates in inter-agency working groups including the Livestock 60,000 Consolidated Appeals Process (CAP), the Common Operational support (to 586,898 Country Assessment/UN Development Assistance agencies) Framework (CCA/UNDAF), and Millennium Sanitation 34,297 Development Goals (MDG) initiatives. UNHCR will Shelter/other 116,900 continue to take an active role in the UN Agencies infrastructure Working Group on Programme Coordination, the Human Rights-Based Approach Task Force and Transport/logistics 586,914 the UN Task Force on Sexual Exploitation and Water 1,215,435 Sexual Abuse. Total operations 7,894,864 Offices Programme support 1,317,576 Total 9,212,440 Asmara Barentu Tesseney

145 UNHCR Global Appeal 2006 Ethiopia

Main objectives Planning figures Population Jan 2006 Dec 2006

• Provide international protection and material Sudan (refugees) 92,800 78,800 assistance to mainly Sudanese, Eritrean and Somalia (refugees) 12,600 13,000 Somali refugees. Eritrea (refugees) 10,500 11,700 • Promote the voluntary repatriation of 14,000 Sudanese refugees. Asylum-seekers 3,150 2,620 • Assist the Government of Ethiopia in the reha- Other refugees 480 590 bilitation of infrastructure and the environment in and around refugee camps. Total 119,530 106,710 • Promote the well-being of refugees with spe- cific needs (women, children and the elderly). Total requirements: USD 15,332,397 • Pursue resettlement as a durable solution for qualifying urban and camp-based refugees. Working environment

Recent developments

In 2005, some 5,000 Eritreans sought asylum in Ethiopia, with the influx continuing at a rate of

UNHCR Global Appeal 2006 146 some 400 persons per month. Ethiopia had also Fugnido and Yarenja camps and will continue to received over 2,200 asylum-seekers from Southern adversely affect the delivery of relief items to Sudan and another 43 from other countries. During refugees. the course of the year, 594 refugees were resettled and almost 6,000 Somali refugees repatriated. The nutritional status of refugees in almost all refugee camps in Ethiopia has been adversely The situation at the border with Eritrea remained affected by delays in the delivery of food rations, of concern, with troops stationed on both sides reductions in rations due to incomplete popula- amid fears of a renewal of conflict. In September tion data in the camps, lack of milling facilities and 2005, the UN Security Council renewed the man- lack of sufficient funds to procure non-food items date of the UN Mission in Ethiopia and Eritrea (such as kitchen sets and stoves for cooking). This

(UNMEE) until 15 March 2006 and urged Ethiopia situation is likely to continue in 2006. Ethiopia to accept as final the decision of the Eritrea- Ethiopia Boundary Commission on the demarca- With regard to UNHCR’s programme, it is feared tion of the border and to enable the Commission that a lack of funding will result in insufficient provi- to demarcate the border without delay. sion in the sectors of water, health, and sanitation, including activities related to HIV/AIDS, gender, The security situation in the Gambella region, prevention of sexual and gender-based violence, which had been plagued by inter- and intra-ethnic children, women and other groups with specific conflict, improved considerably and refugees who needs. had dispersed to the surrounding areas returned to Fugnido camp. UNHCR was able to regain Due to the security problems and the absence of a access and resumed registration activities which situation conducive to return to southern and will be completed by the end of 2005. central Somalia, the Somali refugees in eastern Ethiopia are expected to remain there in 2006. Due to the continuing influx from Eritrea, there are over 10,000 refugees in Shimelba, which is crowded and cannot be expanded. Joint efforts are Strategy under way with the Ethiopian authorities to identify a site where a new camp could be developed. Protection and solutions In the east, the remaining 5,600 Somali refugees were repatriated to “Somaliland” and the Aisha In 2006, UNHCR will continue to support the camp was closed in June 2005. Only one camp, Government and its regional departments with with some 10,000 refugees from southern Somalia, training in order to implement the refugee will remain open. legislation enacted in mid-2004. This will enable the relevant government departments to conduct refugee status determination (RSD) activities. Train- The situation in the eastern part of the Democratic ing activities will also be carried out to increase Republic of the Congo (DRC) continues to be awareness of human rights among the refugees. tense and has provoked a significant increase in These activities will highlight the well-being of women, the number of Congolese asylum-seekers in children and other groups with specific needs. Ethiopia. An increase in the arrival of Burundian asylum-seekers has also been noted. In Ethiopia most of the refugee population is from Sudan, with significant numbers from Somalia and Constraints Eritrea. There is also a small number of urban refugees from 17 countries. UNHCR plans to Although security in Gambella is much improved, repatriate some 14,000 Sudanese refugees from there is still a need for military escorts when trav- western Ethiopia to southern Sudan and estimates elling to Fugnido and Dimma camps. Heavy rains that there will be roughly 119,500 refugees and have destroyed sections of the roads to Dimma, asylum-seekers in Ethiopia in early 2006.

147 UNHCR Global Appeal 2006 Ethiopia

A Somali boy looks out from his tent in Aisha refugee camp. UNHCR / B. Heger

Efforts to secure resettlement opportunities will be use renewable sources of energy (such as solar intensified, particularly for cases deserving special energy stoves) and materials (such as mud bricks attention due to vulnerability or immediate protec- for house construction). tion concerns. For other refugees, voluntary repa- triation will be pursued when conditions in the Urban refugees will benefit from vocational train- country of return are acceptable. ing and income generation initiatives. UNHCR will also cover subsistence allowances for the basic Assistance needs of school-age refugee children enrolled in primary schools in Addis Ababa. UNHCR will continue to provide basic assistance in refugee camps in the sectors of water, sanita- Desired impact tion, health and primary education. Minimum standards of hygiene will be maintained through The voluntary repatriation of Sudanese refugees the provision of pit latrines and communal refuse will represent a solution to one of the most pro- pits. Sanitary kits will be provided to women of tracted refugee programmes in UNHCR’s history. reproductive age. In addition, non-food items will be supplied to refugees. Somali refugees who remain camp-based will con- tinue to benefit from UNHCR’s protection and, UNHCR will continue to counter the excessive use whenever possible, will be offered some form of of forest resources through a multifaceted strat- durable solution. In addition, refugee students will egy to minimize environmental degradation, pro- have increased access to primary and secondary mote environmental awareness and include education. UNHCR will continue its advocacy role environmental matters in the education curricu- in the rehabilitation of selected infrastructure in lum. Tree seedlings will be planted, while contin- eastern Ethiopia, and will reinforce the involve- ued efforts will be made to persuade refugees to ment of the UN Country Team.

UNHCR Global Appeal 2006 148 Organization and NGOs African Humanitarian Aid and Development Agency implementation Development and Inter-Church Aid Commission of the Ethiopian Orthodox Church Hope for the Horn Management structure Hugh Pilkington Charitable Trust International Rescue Committee In 2006, the programme will be supported by 12 Jesuit Refugee Service international staff, 100 national staff and eight Opportunities Industrial Centre (Ethiopia) JPOs. In addition, the African Union Liaison Unit in Refugee Care Netherlands Addis Ababa, whose work and objectives are Rehabilitation and Development Organization

described in the Regional Overview for the East Save the Children (Sweden) Ethiopia and Horn of Africa, is staffed by three interna- Save the Children Fund (GBR) tional staff, two national staff and one JPO. Society of International Missionaries

Coordination Budget (USD)

UNHCR works closely with the Government of Activities and services Annual Programme Ethiopia, international and national NGOs, UN Budget agencies, as well as with IOM, ICRC, the AU, Protection, monitoring 3,314,192 NEPAD and IGAD. Through its active participation and coordination in all fora where regional policies concerning Community services 479,301 Somali, Eritrean and Sudanese refugees are shaped, UNHCR is able to ensure that development and Crop production 7,881 humanitarian issues of concern to refugees and Domestic needs 631,378 internally displaced people are included in all rele- Education 1,601,649 vant development strategies. Food 46,855

Offices Forestry 497,372

Addis Ababa Health 1,657,642 Assosa Legal assistance 568,293 Bonga Gambella Operational support (to 1,632,342 agencies) Jijiga Mankush Sanitation 161,884 Shiraro Shelter/other 37,247 infrastructure

Transport/logistics 972,402 Partners Water 603,302 Government agencies Total operations 12,211,740 Administration of Refugee and Returnee Affairs Bureau of Agriculture and Natural resources Programme support 3,120,657 (Shiraro/Tigray) Total 15,332,397 Bureau of Education Bureau of Health Ethiopian Road Authority Natural Resources Development and Environmental Protection (Gambella and Assosa)

149 UNHCR Global Appeal 2006 Kenya

Main objectives

• Ensure that appropriate stan- dards of asylum, treatment, safety and security are met and maintained for refugees. • Pursue a comprehensive durable solutions strategy with an empha- sis on voluntary repatriation, supplemented by resettlement opportunities and self-sufficiency, particularly in urban areas. • Support and reinforce the capac- ity of the Government of Kenya to adopt and implement refugee leg- islation and fully discharge its protection, coordination and management responsibilities. • Maintain a high level of integrity in all aspects of the management of the country programme, including compliance with the established rules, procedures and standards of the UNHCR Code of Conduct.

Planning figures Working environment Population Jan 2006 Dec 2006 Somalia (refugees) 154,300 149,000 Recent developments Sudan (refugees) 69,000 58,900 Kenya played a key role in the signing of a compre- Ethiopia (refugees) 13,300 15,000 hensive peace agreement on 9 January 2005 Other refugees 6,720 15,200 between the Government of Sudan and the Asylum-seekers - 3,000 Sudanese People’s Liberation Movement Army (SPLM/A), putting an end to 22 years of civil war. Total 243,320 241,100 Kenya’s role was also crucial in the formation of the Transitional Federal Government in Somalia Total requirements: USD 35,068,412 following many years of discussions, including the Somali peace talks sponsored by the Inter- governmental Authority on Development (IGAD). While the situation in Somalia is unpredictable,

UNHCR Global Appeal 2006 150 the formation of the National Government in In the year ahead, UNHCR will continue to pro- Sudan (that includes the SPLM) has created a new mote the involvement of the Government in pro- dynamic. UNHCR and its partners are reorienting tecting refugees and assuming an effective role in their operations in 2006 towards promoting the refugee affairs management. This will include the voluntary repatriation of the Sudanese and pre- promotion of the new Refugee Act when adopted; paring for some returns to Somalia. training and other forms of capacity building; establishing a Government-based system for the At the time of writing, Kenya had not yet adopted reception of asylum-seekers, their registration, a new Refugee Act, which requires the creation of refugee status determination and the issuance of national refugee legislation and a Department for identity cards; and the prevention of arbitrary Refugee Affairs within the Ministry of Home arrest and detention of refugees. Affairs. The Act is expected to be approved during Kenya 2006. Sudanese refugees

Despite the death of its leader, John Garang, in Constraints July 2005, the SPLM has shown its determination to implement the Peace Agreement signed before The encampment policy of the Government of his death. Based on the encouraging political Kenya, and the related actions of security authori- developments and the enthusiasm of the ties, will continue to severely constrain refugees’ Sudanese refugees to return and rebuild their efforts to achieve self-sufficiency. Under this pol- country, UNHCR and its partners anticipate that icy, refugees are not permitted to cultivate land or 10,000 of the 69,000 Sudanese refugees in seek employment outside the camps, and there- Kakuma camp will return to southern Sudan in fore remain wholly dependent on humanitarian 2006. aid. While reorienting its programme in Kakuma to vol- It is feared that UNHCR’s 2006 programme will untary repatriation, UNHCR will continue to only address the most basic of all the assistance ensure international protection, the provision of needs identified in a detailed gaps analysis con- humanitarian assistance and the empowerment ducted in 2005, and that serious gaps in protec- of all refugees. Empowerment will hinge on skills tion and solutions will remain. However, progress development and a community-based approach will be made towards meeting standards in the for those Sudanese refugees who choose to delay sectors of food, sanitation and education, and on their return home until basic infrastructure and addressing the priority needs of groups facing services, in particular education, are established. serious protection and survival challenges, such Individuals who cannot return owing to a as children and women-at-risk. well-founded fear of persecution will continue to benefit from protection and humanitarian assis- tance in 2006. Resettlement will serve to address Strategy the need for durable solutions and protection of particular individuals and families. Protection and solutions Somali refugees In 2006, activities will focus on core mandate responsibilities in addition to life-saving activities. The unpredictable security and political situation Building on the participatory assessment initiated in south and central Somalia will in all likelihood in 2005 to mainstream gender, age and diversity preclude any large-scale repatriation of Somali concerns, UNHCR will work with other agencies refugees in 2006. Nevertheless, UNHCR plans to and with refugees to identify solutions and to pri- help up to 5,000 Somalis to repatriate. UNHCR oritize the use of resources to address the most does not expect that organized repatriation will pressing protection needs. be possible before the last quarter of 2006, and is therefore planning to continue providing protection

151 UNHCR Global Appeal 2006 and humanitarian assistance to the 154,000 Somali continue to receive special attention. Supplemen- refugees in Kenya, through an enhanced commu- tary and complementary feeding assistance will nity-based approach that addresses the concerns be provided under the programme to combat of groups at risk, while pursuing repatriation to malnutrition. safe areas within Somalia. UNHCR will also con- tinue to engage all stakeholders in the Compre- To combat HIV/AIDS, the refugee population will hensive Plan of Action (CPA) process in 2006. The benefit from a multi-sectoral approach that CPA was launched in 2004 by UNHCR and a core includes awareness-raising and interventions in group of countries as a forum for dialogue and for reproductive health, voluntary counselling and

Kenya identifying ways to create peace inside Somalia, testing, provision of antiretroviral treatment and whilst strengthening the protection capacity of dissemination of information materials. Condom neighbouring countries hosting Somali refugees. dispensers will be installed throughout the camps.

Other refugees Sustainable environmental management and rehabilitation will continue in the refugee hosting Following the June 2005 elections in Burundi, locations. UNHCR will also support initiatives to prospects for the voluntary repatriation of rehabilitate the environment in areas vacated by Burundians in 2006 are improving. By contrast, Sudanese returnees. the prospect of return is still relatively remote for refugees from the Democratic Republic of the Congo, Eritrea, Ethiopia, the United Republic of Desired impact Tanzania, and Uganda, due to the difficult circum- stances in some of these countries, and the indi- UNHCR will aim to achieve the minimum stan- vidual nature of some of the refugees’ claims. dards of humanitarian assistance in core protec- UNHCR will nonetheless continue to facilitate tion and life-saving and life-sustaining activities. individual repatriation and to improve the protec- At the same time attention will be given to tion and self-sufficiency of those who are not able UNHCR’s global policy priorities on the protection to repatriate to their countries of origin. of women and children, gender equality, HIV/AIDS and the environment, through a community- based approach that will empower refugees and Assistance enhance their coping mechanisms. The Office’s capacity-building activities will strengthen the UNHCR will reinforce measures to include physi- Government’s delivery of protection, allowing cal safety (through improved family shelters and UNHCR to focus on the core mandated protection support to community policing) and to counter tasks. Support to the host communities will aim to sexual and gender-based violence. The provision foster harmony with refugees, thus minimizing of adequate quantities of household fuel will mini- protection problems and security-related inci- mize the need for female refugees to leave the dents. All this is set in a context of possible repa- camp in search of firewood (involving the risk of triation, primarily of the Sudanese refugees; rape or sexual assault). However, these measures however, assistance programmes will be pursued will remain contingent on sufficient resources to for those in need of asylum in Kenya. address other priority issues: malnutrition, high maternal mortality, inadequate shelter and domestic needs (especially for household fuel) and sanitary materials for females of child-bearing age. UNHCR will consolidate the progress achieved since 2003 in addressing shortcomings in the delivery of assistance across the sectors of health care, shelter, nutrition, water and sanita- tion, primary education and other community ser- vices. Shelter and sanitation in particular will

UNHCR Global Appeal 2006 152 Organization and Coordination implementation UNHCR will continue to work closely with the Government of Kenya, focusing on capacity- building activities, so as to hand over certain Management structure responsibilities to the Government when the Refugee Act is adopted. The Kenya Office will UNHCR manages sub-offices in Dadaab and coordinate and plan its implementation of the Kakuma. Sub-office Kakuma is also responsible Sudanese repatriation operation with the for a field office in Lokichoggio. The Branch Regional Support Hub, other UNHCR offices Office in Nairobi provides coordination and liaises assisting Sudanese refugees and returnees, and Kenya with the donor community and implementing and the Kenyan and Sudanese authorities. The Office operational partners. It is also responsible for will collaborate with embassies of resettlement implementation of the urban refugee programme. countries. It will negotiate where possible with The operations will be managed by 28 interna- authorities in countries of origin to facilitate the tional staff, 101 national staff, seven JPOs and six return of refugees in Kenya. UNVs.

A UNHCR officer talking to refugees and asylum-seekers outside the Nairobi office. UNHCR / J. Adongo

153 UNHCR Global Appeal 2006 Offices Budget (USD)

Nairobi Activities and services Annual Programme Dadaab Budget Kakuma Protection, monitoring 7,967,718 1 Lokichoggio and coordination Community services 842,401

Crop production 56,777 Partners Domestic needs 2,037,461 Kenya Government agency Education 2,771,707 National Refugee Secretariat Food 573,816

NGOs Forestry 253,612 African Refugee Training and Employment Services Health 3,260,334 CARE International Don Bosco Income generation 85,413 Handicap International Legal assistance 1,726,064 International Rescue Committee Livestock 182,162 Lutheran World Federation National Council of Churches of Kenya Operational support (to 3,167,419 agencies)

Sanitation 548,026 Others Deutsche Gesellschaft für Technische Shelter/other 1,164,277 Zusammenarbeit infrastructure IOM Transport/logistics 1,154,644 WFP Water 812,671

Total operations 26,604,500

Programme support1 8,463,912

Total 35,068,412

1 Includes costs related to the Regional Support Hub in Nairobi.

UNHCR Global Appeal 2006 154 Somalia

Main objectives

• Attain durable solutions for Somali refugees through pro- moted voluntary repatriation to the safe areas of “Somaliland” and “Puntland”, and through facili- tated voluntary repatriation to south and central Somalia, where conditions are not yet conducive to large-scale refugee return. • Support the reintegration of returnees, with a view to improving their income generation options and access to basic services. • Where UNHCR has physical access to them, provide international protection and humanitarian assistance to refugees and ensure adequate processing and treatment of asylum-seekers, whilst simulta- neously pursuing durable solutions. • Contribute to the collaborative UN efforts to improve the protection of and assistance to internally dis- placed persons (IDPs).

Planning figures Working environment Population Jan 2006 Dec 2006

IDPs1 400,000 400,000 Recent developments

Others of 300,000 300,000 concern The working environment remains complex and in (receiving many areas insecure, especially in south and cen- communities) tral Somalia, despite the successful formation of Returnees2 15,500 25,500 the Somali Transitional Federal Government (TFG) and its relocation from Kenya to Somalia in June Refugees/ 1,145 2,145 asylum-seekers 2005. Two issues have proven controversial within the TFG, namely where to relocate to within Total 716,645 727,645 Somalia and the deployment of foreign forces in

1 support of the relocation. In light of these dis- UNHCR’s programme will benefit those IDPs to whom UNHCR has access. 2 The total number of returnees since the height of the crisis is estimated at 1.25 agreements, the President and the Prime Minister million out of a population of 6.8 million. decided to relocate temporarily to Jowhar, whilst Total requirements: USD 7,155,371 the Speaker and some Members of Parliament

155 UNHCR Global Appeal 2006 The Harrirad village in "Somaliland" was almost totally destroyed during the war. In the past three years, Somalis from neighbouring countries have returned and reconstruction of homes and infrastructure has taken place at a very rapid pace. UNHCR / B. Heger proceeded to Mogadishu. It is however important development of a national reconciliation plan and to remember that although their differences are an agreement on security and stabilization. yet to be resolved, the legitimacy of the TFG is not in dispute. With the support of the international In these circumstances, the principal driving community, the TFG continues to be occupied forces of economic and social development are with establishing the transitional federal institu- the private sector, the diaspora, civil society orga- tions, setting up governance structures and map- nizations, emerging women's groups and authori- ping a way forward for improving the security ties such as those in “Somaliland” and “Puntland”. situation. However, it is not clear how long it will Peaceful multi-party elections in “Somaliland” in take to restore peace and stability. Therefore there September 2005, and the mature handling of a is no precise time frame for the implementation of constitutional crisis in “Puntland” in 2003, dem- a strategy for large-scale repatriation and reinte- onstrate the determination of the people and gration of Somali refugees to south and central their administrations to preserve hard-won peace Somalia. The Secretary-General’s Special Repre- and stability. Meanwhile, Somalia remains fifth sentative for Somalia is working towards fostering from the bottom on the UNDP Human Development a dialogue among the TFG leaders for the

UNHCR Global Appeal 2006 156 Index, and 73.4 per cent of the population lives in Moreover, repeated drought, floods and semi-arid general or extreme poverty. land make reintegration efforts more difficult.

Despite the difficult environment, UNHCR repa- In 2006, one of the main humanitarian concerns triated almost 7,000 Somali refugees between will be to alleviate the effects of several years of January and August 2005, bringing the total num- drought and severe flooding in 2005 which hit ber of assisted returnees to over 486,000, with an crops and livestock and thus further contributed even larger number having returned spontaneously, to the impoverishment of an estimated 700,000 withoutUNHCRsupport.Inaddition,UNHCR Somalis. Furthermore, assistance is required for assisted some 470 refugees in “Somaliland”. 1.25 million returnees and an estimated 400,000 internally displaced people scattered in 34 loca-

tions throughout Somalia (of whom 250,000 are Somalia Constraints in Mogadishu). Among those displaced are the 2004 tsunami victims, many of whom left their Armed conflict and lawlessness in south and communities along the Indian Ocean coast and central Somalia continue to erode development moved to their relatives further inland. The inter- gains and hamper humanitarian access, although national community has failed to respond ade- at the same time access is improving in some quately to the plight of displaced populations, areas like Lower Juba. “Somaliland” and “Puntland” and the authorities lack the capacity to address are relatively stable and contain secure areas to this issue. The severe shortfall in funding for which refugees can return and in which aid agen- recovery and development activities by UN agen- cies can operate, even if a number of security inci- cies and NGOs, and a total absence of bilateral dents against international aid workers have led aid, make the shortage of skills among the to the application of stricter security regulations. Somali population even more damaging. If Furthermore, the possibility of conflict between large-scale repatriation is to be sustainable, “Somaliland” and “Puntland” over the contested more funds are needed for community-based Sool and Sanaag regions, claimed by both enti- reintegration and developmental activities. ties, continues to hinder access, despite these regions’ well known humanitarian needs. Strategy Until the TFG succeeds in the exercise of its authority and the restoration of peace and secu- rity, coupled with better service delivery to the Protection and solutions Somali people, mass voluntary repatriation to south and central Somalia will be neither desir- UNHCR will assist the TFG to build its capacity able nor sustainable. The lack of absorption with regard to the protection of asylum-seekers, capacity in the areas of return could render large refugees, returnees and internally displaced peo- returns a destabilizing force rather than a peace- ple. UNHCR’s programme forms a part of the pri- building factor. Absorption capacity has already ority interventions by the UN Country Team for been severely overstretched in “Somaliland” and Somalia and its partners for vulnerable “Puntland”, causing serious concern among the populations. The Preparatory Project for a communities and authorities. The lack of absorp- Somali Comprehensive Plan of Action (CPA) tion capacity in “Somaliland” is the main reason aims at identifying durable solutions to the prob- for slow returns from Djibouti. lems of displaced Somalis. Where durable solu- tions are not immediately available, the CPA will Most areas are affected, to varying extents, by a identify and support measures to improve the qual- combination of weak governance, a fragile political ity of asylum in the hosting countries. Following process, the lack of socio-economic and political completion of the gaps analyses and consulta- infrastructure, environmental damage caused by tions with a wide range of national and regional charcoal burning and the use of firewood, and a stakeholders, the project was entering its final ban on the export of livestock to Saudi Arabia. drafting phase during the second half of 2005.

157 UNHCR Global Appeal 2006 The CPA has been designed in relation to actions environs. UNHCR will continue to provide legal required to progress towards the Millennium assistance to returnees, as well as to refugees, Development Goals. The final document is to be through the legal aid network. The repatriation presented at an international conference of larger groups to the central and southern towards the end of 2005. parts of the country may be possible if the polit- ical developments result in positive change. In 2006, as part of a multi-agency strategy, This would require considerable resources that UNHCR will, wherever possible, and provided that cannot be provided under the 2006 annual programme, but UNHCR is preparing an opera-

Somalia development agencies have sufficiently strong presence and funding, focus further on imple- tional framework for this scenario as well as menting project activities that will bridge the gap large-scale repatriation, whenever conditions between relief and development, through active permit. collaboration with development actors. As a way to ensure this link, UNHCR is actively participating Internally displaced people in the Joint Needs Assessment (JNA), led by the United Nations and the World Bank, in the cluster UNHCR will strengthen its involvement with inter- on Livelihoods and Solutions for the Displaced. nally displaced people, in accordance with the The results of the JNA will be translated into a collaborative approach on internal displacement Reconstruction and Development Framework for agreed by the relevant agencies in September Somalia which will be presented at a donor con- 2005. In 2005, UNHCR seconded a senior IDP ference in April 2006. advisor to assist the UNCT in the development of a joint UN strategy to better address the needs of UNHCR has established an international presence 400,000 internally displaced people. This strategy in “Puntland” in order to enhance the protection has three objectives: improve the protection of of returnees and asylum-seekers. It will monitor IDPs, returnees and other vulnerable populations; the physical, legal and material safety of returnees improve their current living conditions; and pro- through contacts with local authorities, commu- mote durable solutions for them. The UNCT, nities and NGOs, as well as direct interviews with under the leadership of the Humanitarian Coordi- asylum-seekers, refugees and returnees. nator and assisted by OCHA, is currently in the process of developing an action plan for the Returnees implementation of the joint strategy. UNHCR’s role in the strategy is focused on protection – An estimated 350,000 Somali refugees continue including community mobilization – emergency to reside in nearby countries. A protective envi- shelter and the provision of basic services. Find- ronment conducive to self-reliance must be cre- ing durable solutions for internally displaced peo- ated in order to improve the prospects for their ple is intrinsically linked to finding solutions for voluntary repatriation. In 2006, UNHCR will returning refugees, because they mostly live in the continue to promote repatriation to “Somaliland” same communities. and “Puntland”, and facilitate voluntary return to other areas of Somalia. Some 10,000 refugees Refugees and asylum-seekers will be repatriated during the year. The repatria- tion from Djibouti to “Somaliland” will be com- UNHCR will also provide international protection pleted. To enable Somali refugees in camps to and life-sustaining assistance to urban refugees make informed decisions on their return, infor- and asylum-seekers (mainly from Ethiopia) in mation campaigns and confidence building activ- “Somaliland” and “Puntland”. These activities will ities, including “go and see” visits, will be jointly focus on resettlement, because the opportunities conducted with the authorities of each hosting for local integration and voluntary repatriation are country and the authorities and communities of very limited. potential areas of return. UNHCR will focus its rein- tegration interventions on “Somaliland” and “Puntland”, as well as on Mogadishu and its

UNHCR Global Appeal 2006 158 Assistance Organization and UNHCR will provide reintegration assistance to implementation those who repatriated in 2004 and 2005 (or ear- lier), as well as to the refugees who will return in 2006. UNHCR will adopt a community-based Management structure approach to the provision of assistance in the sectors of water, health, HIV/AIDS, education, The country representation for Somalia, based sanitation and community services, aiming at the in Nairobi, Kenya, will oversee all operations in improvement of livelihoods and income genera- Somalia, in close coordination with countries tion. Activities that support access to basic ser- hosting Somali refugees. The country represen- vices will be tailored to the needs of the most tation will relocate to Somalia, when conditions Somalia vulnerable segments of the returnee population. allow it. The offices in Hargeisa (“Somaliland”), In “Puntland”, and where possible in central and Garowe (“Puntland”) and Mogadishu will run southern Somalia, UNHCR will enhance its reinte- operations in their respective areas. In 2006, gration programme to improve access to basic the Somalia operation will be staffed by ten services to all returnees, as well as to groups with international and 40 national staff and six UNVs. special needs among internally displaced and marginalized minority populations, and promote Coordination their economic self-reliance. Working jointly with other UN agencies, UNHCR will address the con- sequences of environmental degradation and Overall coordination is ensured by the UNCT and drought in the form of emergency relief and the Coordination and Management Committee rehabilitation projects. (CMC), which includes the TFG, AU, IGAD, donors, and NGOs. The Joint Planning Sub-Committee of the CMC, established in early 2005, will eventu- Desired impact ally take over the functions of the Somalia Aid Coordination Body. On security issues, UNHCR will attend to the main concerns of coordination is carried out by the UN Security returnees: the establishment of sustainable liveli- Management Team. NGO coordination is hoods and access to basic services. Close collab- ensured through the NGO Consortium. oration with other UN agencies and NGOs will further support returnees’ efforts to achieve self-reliance. Income generation projects will improve the circumstances of many returnee women, female-headed households and female youth. If local conditions permit it, and funding is provided, UNHCR will in 2006 explore the possi- bility of voluntary repatriation to areas still inse- cure in 2005, and the number of refugees able to repatriate will increase as a result. Likewise, where opportunities for voluntary return or resettlement of internally displaced people arise, they will be supported in the context of a collaborative inter-agency approach.

Refugees and asylum-seekers in Somalia will ben- efit from international protection and access to basic services. Special emphasis will be given to those who are particularly vulnerable, for example victims of sexual and gender-based violence and those living with HIV/AIDS.

159 UNHCR Global Appeal 2006 Offices Budget (USD)

Nairobi (Kenya) Activities and services Annual Programme Garowe Budget Hargeisa Protection, monitoring 2,352,826 Mogadishu and coordination Community services 242,700

Crop production 440,000 Partners Somalia Domestic needs 227,000 Government agencies Education 460,700 Humanitarian Assistance and Disaster Management Agency (HAMDA) (“Puntland”) Forestry 195,000 Ministry of Interior (“Somaliland”) Health 348,300 Ministry of Interior, Security and Disarmament Demobilization and Reintegration (“Puntland”) Income generation 855,000 Ministry of International Cooperation and Planning (“Puntland”, “Somaliland”, TFG) Legal assistance 180,600 Ministry of Resettlement, Rehabilitation and Operational support (to 240,700 Reconstruction (“Somaliland”) agencies) National Refugee Commission (TFG) Sanitation 175,000

Transport/logistics 355,000 NGOs Agricultural Development Organization Water 560,000 Bani’Adam Total operations 6,632,826 Community Concerned Somalis Danish Refugee Council Programme support 522,545 Galkayo Education Centre for Peace and Total 7,155,371 Development Health Unlimited Hargeisa Voluntary Youth Committee HIGSAD Norwegian Refugee Council Save Somali Women and Children Shafi’I Social Development Organization Somali Development and Rehabilitation Organization Somali Reunification Women’s Union Somali Women Concern United Somali People Organization

UNHCR Global Appeal 2006 160 Uganda

Main objectives

• Provide international protec- tion and assistance to refugees whilst pursuing durable solu- tions for them. • Continue to promote increased self-reliance and the integration of refugee services into national structures. • Expand the Development Assistance to Refugee Hosting Areas Programme (DAR) and ensure its full ownership by the Ugandan Government. • Put into effect the new domestic Refugee Bill and institutionalize Government protection and management structures. • Monitor the needs of internally displaced persons (IDPs) located in refugee hosting areas/districts and intervene when necessary.

Working environment Planning figures

Population Jan 2006 Dec 2006 Recent developments Sudan 228,700 218,700 (refugees) Uganda hosts refugees from three of its five imme- DRC 25,000 25,000 diate neighbours, the Democratic Republic of the (refugees) Congo (DRC), Rwanda and the Sudan, as well as Rwanda 16,000 16,000 smaller groups from Somalia, Burundi, Ethiopia (refugees) and Eritrea. Nearly all of these countries continue to experience conflicts, which have caused further Returnees 100 100 outflows into Uganda. In addition, Uganda is fac- Total 269,800 259,800 ing its own displacement crisis in the north, caused by the conflict with the Lord’s Resistance Total requirements: USD 16,956,248 Army (LRA). As a result of this geopolitical envi- ronment, the refugee programme in Uganda is in a state of flux, with refugees and returnees moving

161 UNHCR Global Appeal 2006 Uganda

UNHCR officers discussing voluntary repatriation with Sudanese refugees. UNHCR / T. Muftic

in and out of Uganda almost daily. Some of the Encroachment on land by nationals, particularly asylum-seekers, particularly from DRC, seek tem- in Nakivale and Oruchinga, has created tensions porary refuge and return to their places of origin and reduced the land available to refugees. when hostilities subside. They are reluctant to be moved to designated refugee settlements. A number of factors not only hinder the repatria- tion process but have become reasons for Despite the generous promotion by the influxes to Uganda, such as increased attacks by Government of Uganda of the Self-Reliance the LRA in Northern Uganda and South Sudan, Strategy (SRS), under which refugees have been food shortages in South Sudan, the unpredictable provided with both residential and agricultural security situation in eastern DRC, fear of the plots, the programme has been affected by the Gacaca process (a new form of the traditional jus- recurrent conflict with the LRA. tice system which is being used to try alleged Rwandan genocide perpetrators) as well as land Constraints disputes in Rwanda. The great challenge for UNHCR is how to address the protection needs Refugees in Uganda are settled in 68 communi- and assistance requirements of the existing ties, dispersed over 600 kilometres of territory. As refugee population and also meet the emerging families have grown in numbers, however, avail- needs of newly arriving refugees. able fertile arable land has become insufficient.

UNHCR Global Appeal 2006 162 Strategy Sudanese refugees There are 228,700 Sudanese refugees living in 68 Protection and solutions settlements in six districts in Uganda and 40,000 of them are considered to be satisfactorily self- The Government of Uganda continues to maintain reliant and are not assisted. Following the signing a generous refugee regime. The Refugee Bill, of the peace agreement between the Government which incorporates fundamental human rights of Sudan and the Sudan People’s Liberation principles, was approved by the Ugandan cabinet Movement/Army (SPLM/A), it was anticipated that and Treasury and is scheduled for parliamentary some 35,000 Sudanese refugees from different debate. locations in Uganda would have repatriated to Sudan in 2005. However, in view of the lack of Uganda UNHCR will continue to apprise all stakeholders, infrastructure and basic services in southern including refugees, of the provisions of the Refugee Sudan, the projected number of returnees in 2005 Bill, and will support drafting of the implement- has been reduced to 6,000. In 2006, up to 10,000 ing regulations necessitated by those provi- are expected to return. Since 2004, 18,000 new sions. UNHCR will also support training of arrivals from Sudan have reached Uganda, citing immigration, police and security officials, and LRA fighting, inter-ethnic tensions and lack of upgrading of refugee management structures, food as reasons for leaving Sudan. such as the Refugee Eligibility Committee, to bring them into conformity with the new Rwandan refugees legislation. Rwandan refugees have been encouraged to repa- In 2004, the Government of Uganda and UNHCR triate. However, in 2004, of the some 2,400 who launched the Development Assistance to Refugee returned home, 500 made their way back to Hosting Areas (DAR) programme to ensure better Uganda citing lack of land, fear of the Gacaca pro- food security, access to social services and cess, arbitrary arrest and lack of infrastructure as improved income generating opportunities for the reasons for their return. In 2005, an additional refugees and host communities. DAR empowers 500 have sought asylum in Uganda. refugees and locals to participate in the planning and implementation of their own development Some 5,000 Rwandan asylum-seekers previously agenda. It ensures that refugees play a key role in living in the United Republic of Tanzania now live their own socio-economic development and con- alongside recognized refugees in Nakivale settle- tribute to the development of their host commu- ment. They have access to community-based nities. The 2004 review of DAR’s predecessor, assistance such as health and water services. the Self- Reliance Strategy, revealed significant improvements in food crop production, greater Congolese (DRC) refugees access to social services, better provision of train- ing and increased consultations between refugees With continued instability in DRC, new refugees and host communities. continue to arrive in Uganda. The magnitude of the influx depends on protection and assistance Resettlement has been considered as a protec- delivered inside DRC and on whether the asylum- tion tool and durable solution for some refugees seekers are allowed by the different Congolese in Uganda. The main countries of resettlement are militia groups to leave the country. The main pro- the United States, Canada and Australia. By the tection concerns continue to be the suspected end of 2005, 1,500 refugees are expected to have presence of militia, sexual and gender-based been resettled, with a further 1,500 over the violence, and inter-ethnic tensions among the course of 2006, most of them from Rwanda, refugees. A special emergency allocation of USD Sudan and DRC. 1.25 million was provided in April 2005 for the more than 8,000 newly-arrived Congolese

163 UNHCR Global Appeal 2006 refugees who have been relocated to Kyaka II, for refugees and host communities alike. effectively doubling the size of that settlement. Increased participation by refugee women and opportunities for education and training will help Other refugees the communities to sustain themselves, as well as ensure better food security, access to social ser- There are refugees from Somalia, Burundi, Eritrea, vices and improved income generating opportuni- Ethiopia, Kenya and other neighbouring countries ties. Economic recovery and self-reliance will be who are living in Kampala and the settlements. further enhanced through an effective transition Refugees in urban areas receive occasional, from humanitarian aid to development activities.

Uganda needs-based, limited assistance. Monitoring of the situation of IDPs in northern Uganda will result in interventions that will Internally displaced people improve their protection. The training of gov- ernment officials and the introduction of new Eighteen years of conflict in 19 northern districts refugee legislation will ensure that the Government in Uganda led to the massive displacement of up has a better capacity to deal with protection to 1.6 million Ugandans and the establishment of issues. 218 IDP camps. The quality of life in the IDP camps is sub-standard, marked by poor housing, poor hygiene and sanitation and food supply Organization and problems. Many IDPs have limited access to education and health care. A Draft Framework for the implementation Return, Resettlement and Reintegration of Internally Displaced Persons in Northern Uganda has been Management structure prepared under the auspices of OCHA with the assistance of the Internal Displacement Division. UNHCR’s operations in Uganda are coordinated UNHCR has been an active participant in 2005 in by a country office in Kampala, supported by two the numerous working groups and planning sub-offices in Arua and Moyo, three field offices in processes concerning IDPs. Adjunami/Pakelle, Hoima and Mbarara, and a field office in Kyaka/Mubende. The Uganda programme Assistance will be managed by a total of 110 staff members: 21 internationals, 78 nationals and 11 UNVs. The Ugandan Government continues to provide free access to land, thereby enabling the refugees Coordination to achieve varying degrees of self-sufficiency. UNHCR will continue to ensure that basic assis- The UNHCR Representation in Uganda will con- tance and international protection are provided tinue to coordinate with the United Nations to the refugees. Repatriation will continue to be Country Team, the Regional Technical Support encouraged for the Sudanese, Congolese and Services (RTSS) as well as UN sister agencies (par- Rwandan refugee populations despite the chal- ticularly WFP, UNICEF, UNFPA, OCHA, FAO and lenges being faced in their countries of origin. WHO), and other national and international NGOs. The office will continue to take part in the Desired impact preparation of the Common Country Assessment (CCA), the Consolidated Inter-agency Appeal Through DAR, the operation in Uganda aims to (CAP) and the United Nations Development facilitate the most appropriate durable solutions Assistance Framework (UNDAF) processes.

UNHCR Global Appeal 2006 164 Offices NGOs African Development and Emergency Organization Kampala African Humanitarian Action Adjumani/Pakelle Aktion Afrika Hilfe Arua Danish Assistance to the Self-Reliance Strategy Hoima Finish Refugee Council Kyaka/Mubende German Development Services Mbarara German Technical Cooperation Moyo Hugh Pilkington Charitable Trust (UK) Inter-Aid Uganda International Medical Corps (USA)

Partners International Rescue Committee Uganda Jesuit Refugees Services Government agencies Right to Play Directorate of District Community Development Department (Arua) Save the Children Fund District Directorate of Health Services (Adjumani, Uganda Red Cross Society Moyo and Arua districts) District Education Office (Adjumani, Moyo and Arua Others districts) District Forestry Office (Adjumani, Moyo and Arua UNV districts) Office of the Prime Minister

Budget (USD)

Activities and services Annual Programme Supplementary 1 Total Budget Programme Budget

Protection, monitoring and coordination 3,750,360 258,390 4,008,750

Community services 309,076 15,000 324,076

Crop production 86,226 0 86,226

Domestic needs 179,013 0 179,013

Education 2,216,355 40,000 2,256,355

Health 1,620,922 5,000 1,625,922

Legal assistance 355,255 40,000 395,255

Operational support (to agencies) 2,143,117 40,000 2,183,117

Sanitation 112,859 2,500 115,359

Shelter / other infrastructure 205,214 5,000 210,214

Transport / logistics 2,530,464 300,000 2,830,464

Water 241,502 0 241,502

Total operations 13,750,363 705,890 14,456,253

Programme support 2,499,995 0 2,499,995

Total 16,250,358 705,890 16,956,248

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 49,412) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

165 UNHCR Global Appeal 2006 West Africa

Recent developments

he peace process in Côte d’Ivoire is looking Tincreasingly bleak. On 30 August 2005, the South African Government announced the end of Benin its mediation efforts, blaming the deadlock on the Burkina Faso Forces nouvelles and the opposition parties. With the announcement that presidential elections will not Cameroon take place as planned at the end of the President’s constitutional term on 30 October Cape Verde 2005, heightened political tension and an increase Côte d’Ivoire in security incidents may result in population outflows into neighbouring countries. Neverthe- Gambia less, it is hoped that the renewed commitment Ghana expressed by the African Union will result in moves in putting the peace process back on track. Guinea Guinea-Bissau In Guinea, the socio-economic situation remains poor despite the Government’s efforts, under Liberia pressure from its development partners, to raise Mali political and economic standards. The economy is plagued by high inflation which, compounded Niger by the devaluation of the currency, has resulted in Nigeria an increase in fuel costs of more than 100 per cent in a single year. On the political front, tensions Senegal continue within the Government and there has Sierra Leone been speculation about the possibility of a coup d’état. The regional contingency plan is updated Togo on a regular basis. West Africa

The political situation in Sierra Leone remains completed in 2006 with the return of the remain- stable while the country continues to face the ing Nigerian refugees. challenges of post-conflict recovery. Progress has been made on political and economic gover- The political crisis in Togo started in February 2005 nance, consolidation of peace (improving the with the death of the former President, followed by country’s capacity for conflict prevention) and disputed presidential elections in April. The situation investment has been attracted for development degenerated into massive civil unrest and caused projects. Preparations are under way for elections an influx of over 40,000 refugees to Benin and scheduled for 2007. Following Sierra Leone’s Ghana as well as the displacement of some path, the improving political, social and security 10,000 people within Togo. Since June 2005, ten- situation in Liberia has allowed almost 40,000 sions in Togo have subsided somewhat, and repa- refugees to return to their homes with UNHCR’s triation of the Togolese will be considered as soon assistance from October 2004 to October 2005, as conditions there are conducive to return in while more than 150,000 have returned sponta- safety and dignity. neously. It is expected that with the holding of free and fair elections on 11 October 2005 and the In Guinea-Bissau politics remained volatile and establishment of an elected Government, UNHCR the security situation unpredictable. Following a will be able to shift from facilitation to promotion coup d’état which ousted former President Kumba of return movements. Yala, a transitional president was nominated to rule the country, while arrangements were made Repatriation was facilitated following the signing to return Guinea-Bissau to a democratic State. This of a tripartite agreement in April 2005 between culminated in the June 2005 presidential elections, the Governments of Nigeria and Cameroon and which were declared free and fair by all international UNHCR, and by September some 7,500 Nigerian observers, resulting in the election of former presi- refugees had returned home. These refugees had dent João Bernardo Vieira. Mindful of the prevailing spent more than two years in exile in neighbouring fragile situation, the UN Country Team in Bissau Cameroon. The repatriation is expected to be drew up a regional contingency plan.

167 UNHCR Global Appeal 2006 In late December 2004, a peace accord was signed between the Senegalese Government and the rebel Mouvement des forces démocratiques de Casamance (MFDC). Talks on disarmament and the reintegra- tion of ex-combatants followed, increasing the hopes for lasting peace in the region. The latest negotiations on the practical modalities of the agreement took place in February 2005 and appear more promising than the three previous etAfrica West peace accords of 1991, 1993 and 1995. The nego- tiations once again included the question of the repatriation of Senegalese refugees.

In sum, three categories of situation will be found in West Africa in 2006.

• Countries where solutions are being actively implemented and consolidated: Sierra Leone, where the reintegration programmes were completed by the end of 2005; or Liberia, where the peace process is being consolidated allowing more and more refugees to opt for repatriation. • Countries where existing tensions must be closely monitored: Guinea-Bissau, for which regional and inter-agency contingency plans must remain in place (despite relatively peace- ful recent elections); Côte d’Ivoire, where the political situation could lead to a further deteri- oration, and possibly a humanitarian crisis; and Guinea, where the socio-economic situation remains fragile in a volatile regional environment. • New situations, such as the crisis in Togo, where election-related unrest has triggered refugee movements to Ghana and Benin since April 2005.

situations. Special Representatives of ECOWAS have been appointed in Guinea-Bissau, Sierra Strategic objectives Leone, Liberia, Côte d’Ivoire and Togo.

One objective for UNHCR in 2005, to be further The return and reintegration of Liberian refugees developed in 2006, was to strengthen its remains the main strategic objective for the partnership with the Economic Community of West region. It is expected that the period October African States (ECOWAS). ECOWAS has been 2005 to July 2006 will mark the high point in the working at various political and humanitarian levels, return of Liberian refugees. It is anticipated that including monitoring the political and security after the elections, UNHCR will be able to accelerate situation in countries at war or at the post-conflict activities and encourage large-scale repatriation. stage and intervening if appropriate. ECOWAS In order to ensure the safety and security of and UNHCR have cooperated in responding to refugees throughout 2006, UNHCR will endeavour different refugee, returnee and internal displacement

UNHCR Global Appeal 2006 168 West Africa

Benin: A newly-arrived Togolese refugee in Agoue digs trenches around tents to prevent flooding during the rain. UNHCR / J. Björgvinsson

to enhance the national protection capacity of conducive to the sustainable local integration of the governments of asylum countries. refugees who choose to remain in their country of asylum. The pursuit of gender equality and programmes for refugee women and children, in 2006, will In line with UNHCR's priorities for refugee chil- include gender and age mainstreaming through- dren, the Office will focus on the prevention of out UNHCR’s West Africa operations. The preven- various forms of exploitation faced by refugee tion of and response to sexual and gender-based adolescents. If there are no opportunities for violence will remain a high priority. formal education, they will be provided with vocational and skills training as well as UNHCR will work with host governments and con- income-generating activities. tinue to advocate for refugee legislation to better protect refugees and asylum-seekers. This will HIV/AIDS interventions in conflict and post- include efforts to create a legal environment conflict settings in West Africa have focused on

169 UNHCR Global Appeal 2006 promoting prevention, especially life skills train- 20,000 refugees and 1,300 asylum-seekers in ing, capacity building and distribution of informa- Benin, Burkina Faso, Niger and Togo under its tion, education and communication materials. In regular programme. Local integration assistance 2006, UNHCR, together with its implementing will be provided to approximately 10,300 refugees partners, plans to expand voluntary counselling who are living in the four countries and are unable and testing as well as prevention of mother- to return home to Rwanda, the Republic of the to-child transmission and post-exposure prophy- Congo (RoC) and certain areas of the Democratic laxis for rape victims. UNHCR will continue to Republic of the Congo (DRC). In conformity with advocate that refugees have equal access to the Agenda for Protection, UNHCR in Benin will rein- etAfrica West antiretroviral therapy when it becomes available force the Government’s protection capacity and to local populations. the voluntary repatriation programme, in addition to pursuing activities geared towards self-reliance In view of the fragile socio-economic and political for refugees and strengthening the intervention situation in the subregion, UNHCR will be review- capacity of implementing partners. Special efforts ing and updating contingency plans to enhance will be made to make the income-generating its regional emergency response capacity. In this programme more effective, including small-scale context, UNHCR will retain the regional stockpile economic activities as well as formal employment of non-food items in Accra. The stockpile will for those with the necessary skills and qualifica- serve both for possible emergencies and ongoing tions. In this context the Regional Office will repatriation operations. implement recommendations formulated as a result of the 2005 protection gaps analysis and the national consultations related to Benin and Operations Burkina Faso held in September 2005 in Cotonou. In 2006, education, vocational training and income-generating activities will target female UNHCR has established a Regional Support refugees in particular. Special attention will be Hub in Accra to offer direct support in areas such devoted to groups with specific needs, including as resettlement, registration, refugee women and unaccompanied minors, the elderly, single heads children, health coordination and HIV/AIDS. Used of household, the handicapped and the chroni- strategically and in combination with repatriation cally ill, who will be supported both materially and programmes or local integration plans, these psychosocially. functions enhance the overall protection environ- ment in the region and support the search for In addition to the regular programme the Regional durable solutions. The Hub is staffed by a Office in Benin will continue to provide protection multidisciplinary team and will concentrate on and assistance to some 27,500 Togolese refugees monitoring compliance of processes and sys- who arrived in Benin in April 2005. The Office will tems; ensuring age and gender mainstreaming; assist their voluntary repatriation as soon as it providing technical assistance and capacity build- becomes possible for them to return to Togo in ing to strengthen emergency response capacities safety and in dignity. in the region; and developing stronger networking and outreach of activities at the regional level. It At the beginning of 2006, Cameroon will host will also help find durable solutions in the region, some 40,000 refugees and some 6,800 asylum- with a focus on reintegration and local settlement, seekers, mainly from Central and West African and enhance external relations. countries. This number includes some 7,500 Nigerian refugees (from an influx of 17,000 who UNHCR’s country programmes in Côte d’Ivoire, arrived in late 2002 following ethnic clashes in Ghana, Guinea, Liberia and Sierra Leone are Taraba state). Over the course of 2006, the Office described in separate chapters. will improve the protection of asylum-seekers and refugees, and will focus, in particular, on the In 2006, UNHCR's Regional Office in Benin will establishment and the effective implementation continue to provide protection to an estimated of a national eligibility committee, following the

UNHCR Global Appeal 2006 170 passing of refugee legislation in July 2005. UNHCR to provide medical and basic educational assis- will work with the Government to streamline the tance to vulnerable refugees. refugee status determination (RSD) process and reduce the backlog of some 6,000 asylum cases, In 2004, the Sierra Leonean voluntary repatriation as well as to implement an improved registration programme ended, with only 250 refugees opting and identity document system for the refugee to return and another 6,000 remaining in the population. In building up the capacity of the country of asylum. The latter group continues to Cameroonian authorities to conduct RSD, enjoy administrative and legal support from UNHCR’s aim is to eventually hand over this activ- UNHCR. When conditions in their home countries ity to the Government. Working in conjunction allow it, the Office will promote voluntary repatria- with the national authorities and human rights tion for Liberians and Senegalese.

groups, the Office will work to raise awareness and West Africa address any problems affecting the protection of Nigeria hosts some 8,000 refugees and over refugees and asylum-seekers. 1,100 asylum-seekers originating mainly from Liberia, Sierra Leone, DRC, Chad and Sudan. In Following the signing of the tripartite agreement 2006, UNHCR will undertake to strengthen the for the repatriation of Nigerian refugees, some protection capacity of the Government of Nigeria 7,500 Nigerian refugees had returned to Nigeria by and pursue durable solutions for both September 2005 and 2,500 more were expected camp-based and urban refugees. In 2005, 107 to repatriate by the end of the year. Another 2,500 Sierra Leoneans were repatriated and durable are expected to repatriate in 2006 and a local set- solutions were sought for the remaining 650. tlement programme will be implemented to facili- UNHCR reviewed the options afforded by national tate the integration of those opting to remain in legislation and the ECOWAS Treaty and will advise Cameroon. The programme will focus on refugees on naturalization and regularization of agro-pastoral activities and sanitation. their stay through immigration.

The Office will continue to promote and facilitate Following the signing of tripartite agreements for the voluntary repatriation of urban refugees and the repatriation of Liberian and Nigerian refugees, local integration activities will be reinforced to some 1,000 Liberian refugees were repatriated and encourage self-reliance. These will include educa- more refugees are expected to return to Liberia as tional programmes, vocational training and the country stabilizes. A further 10,000 Nigerian income-generating activities. The Office will also refugees will have repatriated from Cameroon by continue to provide medical care for persons of the end of 2005 and another 2,500 are expected concern as well as making available hygienic kits to repatriate in 2006. The Office will continue to to female adolescents and women. It will also coordinate activities with all partners, including focus on strengthening and empowering women’s the Government of Nigeria and United Nations groups, and will continue to provide social sup- agencies, to ensure the smooth reintegration of port and material assistance to elderly and returnees, as well as reconstruction and rehabili- disabled refugees, single female-headed house- tation activities in line with the “4Rs” concept. holds, unaccompanied minors and others with acute needs. In collaboration with the Ministry of In 2006 UNHCR plans to resettle some 240 refugees Social Affairs, UNHCR will continue to raise aware- from Nigeria in close coordination with the ness of HIV/AIDS among persons of concern. Regional Hub in Accra. While working towards a phaseoutofOrucamp,wheresome5,700refugees UNHCR will continue to provide basic humani- live, UNHCR will endeavour to enhance the capacity tarian assistance to some 1,500 of the 6,700 refugees of the Government to assume its primary role in registered in the Gambia, mostly Liberians. The the management and delivery of protection and Office will seek to strengthen the protection of assistance to refugees. The Office will also explore refugees by pressing for the adoption of a national with the Government the feasibility of a compre- refugee law. UNHCR will promote self-reliance, hensive plan for self-reliance and local settlement focusing on vocational training, and will continue and integration through community development

171 UNHCR Global Appeal 2006 for Oru camp refugees. Standards of protection Mauritanian refugees living in Senegal and Mali. and assistance in the camp will be closely moni- Resettlement will be pursued in cases where other tored and improved. UNHCR is actively working durable solutions are not feasible. A principal con- towards the eradication of sexual and gender- cern remains the absence of suitable documenta- based violence in refugee and returnee settle- tion for the refugees of Mauritanian origin in ments, and HIV/AIDS prevention and gender Senegal. UNHCR will continue to handle this situ- equality will remain a priority in 2006. ation and special efforts will be made to encourage the governments concerned to solve the problem In line with the Memorandum of Understanding of these refugees. In close collaboration with the etAfrica West signed between UNHCR and ECOWAS, UNHCR Senegalese Government, UNHCR will support a will play an increasingly robust role in addressing programme to facilitate access to local commu- issues of forced displacement in the subregion. nity services for urban refugees with special UNHCR will work closely with the ECOWAS needs. Executive Secretariat with a view to developing comprehensive approaches to: 1) prevent further It is hoped that following the peace accord the flight by addressing root causes of forced popula- situation in Casamance will allow for the repatria- tion displacement; 2) prepare for and respond to tion of roughly 7,900 Senegalese refugees living in new refugee emergencies through political and Guinea-Bissau and the Gambia. If current negotia- humanitarian capacity building; 3) implement the tions bear fruit, UNHCR expects to be a key player revised ECOWAS Treaty and its Protocol on free in the process of repatriation of refugees from movement and the right to establish residence in these two countries. another ECOWAS member State as applicable to persons of concern to UNHCR; 4) find durable Budget (USD) solutions to the current refugee situations in West Country Annual Programme Budget Africa through sustainable reintegration programmes, resettlement as a burden-sharing Benin 1,512,089 tool and rehabilitation of refugee-affected areas; Cameroon 2,338,327 and 5) mitigate the negative impact of unad- dressed consequences of violent conflicts Côte d’Ivoire 9,682,813 through post-conflict rehabilitation and reintegra- Gambia 726,099

tion programmes. 1 Ghana 8,531,345

In 2006 UNHCR’s Regional Office in Senegal will Guinea 15,413,060 continue to coordinate programme operations Liberia 39,084,990 with regard to international protection, the pro- Nigeria 3,440,989 motion of repatriation and the local integration of nearly 41,000 refugees living in Cape Verde, Senegal 1,845,745 Mali, Guinea-Bissau and Senegal. The refugee Sierra Leone 17,281,205 population in the four countries originates Regional activities2 4,044,042 mainly from Senegal, Mauritania, Sierra Leone, Côte d’Ivoire, Liberia and Rwanda. The Regional Total 103,900,704 Office will also provide strategic, technical and 1 Includes the Regional Support Hub in Accra. 2 managerial support to UNHCR’s office in the Includes material assistance, voluntary repatriation, local integration and Gambia. resettlement of urban refugees; regional stockpile; as well as scholarships for refugee students in West African countries.

In 2006, UNHCR will focus on continuing to pro- mote durable solutions for roughly 1,000 urban refugees originating mostly from Liberia, Rwanda, Burundi, Côte d’Ivoire, ROC and DRC, without los- ing sight of the protracted plight of the 26,000

UNHCR Global Appeal 2006 172 Côte d’Ivoire

Main objectives Planning figures Population Jan 2006 Dec 2006

• Continue to provide international protection Liberia (refugees) 34,400 16,400 and assistance to urban refugees in Abidjan. Other refugees 1,100 850 • Promote voluntary repatriation of Liberian Republic of the Congo 500 400 refugees in safety and dignity. (refugees) • Provide international protection to Liberian refugees opting to remain in Côte d’Ivoire and Republic of the Congo 600 500 (asylum-seekers) provide them with basic assistance to enhance their self-sufficiency and facilitate their local DRC (asylum-seekers) 500 400 integration. Other asylum-seekers 400 300

Total 37,500 18,850

Note: In addition, there are an estimated 500,000 internally displaced people in the country in need of protection and assistance. Total requirements: USD 9,682,813

173 UNHCR Global Appeal 2006 The stalled peace process will further impede the Working environment return of State authority to certain areas in the country and will continue to hinder humanitarian Recent developments access. Some development agencies and interna- tional financial institutions have made the funding Three years after the beginning of the Ivorian cri- of post-conflict reconstruction programmes con- sis, peace is still elusive. The country is split, with ditional upon a substantial improvement of the the north held by the Forces nouvelles and the south security situation in the entire territory.

ôed'Ivoire Côte under the control of Government forces. Peace agreements were signed in Pretoria in April 2005 by all parties to the conflict, with the mediation of Strategy South African President Thabo Mbeki (as man- dated by the African Union) and a Declaration of Protection and solutions Implementation was adopted in June 2005. In September, the United Nations Secretary-General UNHCR's 2006 programme will be mainly oriented announced that presidential elections would not towards promoting the voluntary repatriation of be held as scheduled in October. Despite initial Liberian refugees and of urban refugees of other difficulties in bringing together the two parties in origins and the local integration of those refugees the implementation phase of the peace agreements, who choose to stay in Côte d’Ivoire. Those for the implementation of the Pretoria Declaration whom resettlement is the only durable solution registered real progress. However, the controversy will be resettled in a third country. that followed the promulgation by the President of some laws, such as the nationality law, delayed the disarmament process and compromised the If the security situation in Liberia improves after holding of elections at the end of the presidential the October 2005 elections, as is widely pre- term in October 2005, as prescribed by the dicted, an estimated 18,000 Liberian refugees are Constitution. At the time of writing, efforts were expected to return in 2006, leaving some 16,400 taking place to reach political consensus on the Liberian and 1,550 urban refugees of other way the country will be ruled until the elections nationalities in Côte d’Ivoire. take place. Maintaining or achieving social cohesion is a cru- cial element in all humanitarian activities in Côte Constraints d’Ivoire, given the existing tensions between com- munities, particularly in the west of the country Disarmament and disbanding of militias was, where most refugees are hosted. UNHCR will according to the peace agreements, a precondi- include local populations in its activities. tion for elections. Although some progress was registered, the disarmament, demobilization and UNHCR activities will attend to HIV/AIDS aware- reintegration process is by no means complete ness, the fight against sexual and gender-based and the security situation remains volatile. In violence, rehabilitation of the environment, and a 2006 militia activity could continue in the west, range of priorities related to women, children, threatening the civilian nature of the refugee adolescents, older persons and those with camps (all the refugee camps are in the west of the chronic diseases. UNHCR programmes in 2006 country). Government supporters have deliber- will be flexible so that they can be reoriented in ately constrained the movements and activities of case of a new emergency. UN troops in several areas of the country despite the condemnation of the international commu- Liberian refugees nity. In summary, fragile security conditions will probably reduce the presence of humanitarian The majority of the 34,400 Liberian refugees in workers and severely limit access to refugees and Côte d’Ivoire are hosted in the Zones d’accueil des returnees in some areas. réfugiés (ZAR), the refugee-hosting areas in the

UNHCR Global Appeal 2006 174 Côte d'Ivoire

The UNHCR ferry in Prollo used for repatriation from Tabou to Liberia, seconds after it was put on the waters as residents, some Liberian refugees and the technical team look on. UNHCR / F. Kaba west of the country, and some 4,000 live in Urban refugees and asylum-seekers Abidjan. The majority of those in the ZAR live in villages, and the rest live in two camps, in Tabou It is estimated that some 2,600 urban refugees and Nicla. UNHCR will promote voluntary repatri- and asylum-seekers, 51 per cent of them women, ation in line with the regional multi-year plan and will be living in Abidjan at the beginning of 2006. facilitate the local integration of those who This population comprises students and profes- choose to stay in Côte d’Ivoire, thereby reducing sionals mainly from the Republic of the Congo, their dependence on assistance. Urban-based the Democratic Republic of the Congo, Rwanda, Liberian refugees will be assisted only with health Burundi and the Central African Republic. Some care and primary education. They will be encour- 450 of these individuals will be resettled. Of the aged to return to Liberia, but if they remain they remainder, UNHCR will provide international will be assisted to integrate in the ZAR villages (the protection and assistance to the most vulnerable policy of the Ivorian Government being to provide refugees only, in the sectors of education, assistance in the ZAR only). UNHCR will continue health, vocational training and income-generating its mass information campaign to inform refugees activities. When the new asylum law is passed by on the situation in Liberia and thus help them Parliament, UNHCR will assist the Government in make an informed decision on whether or not to its implementation, which will require the establish- return. ment of a legal framework for the protection of urban refugees.

175 UNHCR Global Appeal 2006 Assistance Organization and In 2006, basic assistance will continue in the vil- implementation lages, reinforcing national and local structures so that they can progressively take over UNHCR’s Management structure assistance structures. UNHCR plans to close the refugee camp in Tabou. Initially built in 1999 as a In 2006, UNHCR will have a representation in transit centre for repatriation purposes with Abidjan and two field offices in Tabou and Guiglo.

ôed'Ivoire Côte capacity for 400 persons, it became a camp with a UNHCR will employ 12 international and 48 population of 2,600 refugees after new Liberian national staff. influxes. Living conditions are very harsh, and overcrowding has resulted in a recurrence of pro- tection problems. The camp is situated in Tabou Coordination town and offers few opportunities for self-sufficiency for the residents, who thus rely on humanitarian UNHCR will maintain a shared vision of the assistance for their basic needs. UNHCR will assist programme’s objectives and strategies through refugees in Tabou until its closure in mid-2006 quarterly review meetings and strategic planning and after that will assist the remaining refugees to workshops with partners. In order to implement settle in the surrounding villages. In Nicla camp, the multi-year repatriation of Liberian refugees basic assistance will gradually be reduced from under optimal conditions UNHCR will continue to the latter half of 2006 and limited to health, water, work closely with the Governments concerned. education and community services. Existing Particular attention will be given to the security of structures will be reinforced and handed over to transborder movements of children and other vul- national institutions in order to assist the local nerable groups. In collaboration with the United population in the villages of the ZAR. Nations Mission in Côte d’Ivoire (ONUCI), UNHCR will closely observe the evolution of security con- Desired impact ditions in the west of the country.

It is expected that all Liberian refugees who wish Along with other humanitarian agencies, the to repatriate will do so, either spontaneously or Office will take an active role in all coordination with the assistance of UNHCR in safety and dig- and planning initiatives undertaken by OCHA and nity and that they will participate in reconstruc- UNDP in the framework of the Common Humani- tion efforts. Urban refugees who express the wish tarian Action Plan for Côte d’Ivoire, including humani- to return to their countries will be assisted to do tarian staff security. UNHCR will collaborate so. UNHCR’s 2006 programme will also contribute closely with other UN agencies to ensure that to the implementation of durable solutions for their country programmes cover refugees along- Liberian refugees and urban refugees of other side other beneficiary populations. With UN agen- nationalities who opt to remain in Côte d’Ivoire by cies, ONUCI, the Government and its partners, ensuring that they continue to receive interna- UNHCR will endeavour to maintain the civilian tional protection when this option is desirable. nature of asylum. UNHCR will contribute with other humanitarian agencies to a responsive and efficient protection network for refugees and internally displaced people.

UNHCR Global Appeal 2006 176 Offices Budget (USD)

Abidjan Activities and services Annual Programme Budget Guiglo Protection, monitoring 2,808,360 Tabou and coordination Community services 266,235 Partners Crop production 261,663 Domestic needs 279,783 Government agency Education 281,940 Service d’aide et d’assistance aux réfugiés et apatrides Food 149,409 Côte d'Ivoire Health 336,836 NGOs Income generation 110,762 Afrique Solidarités Assistance Legal assistance 405,792 Association de soutien à l’autopromotion sanitaire urbaine Operational support (to 547,200 Caritas agencies) International Rescue Committee Sanitation 181,247 Solidarité International Shelter/other 150,900 infrastructure Others Transport/logistics 962,335 Deutsche Gesellschaft für Technische Zusammenarbeit Water 565,895 IOM Total operations 7,308,357

Programme support 2,374,456

Total 9,682,813

177 UNHCR Global Appeal 2006 Ghana

Main objectives

• Support the Government of the Republic of Ghana to maintain a positive international protection regime. • Promote the repatriation of Liberian refugees. • Work with the Government and other partners to ensure protec- tion and assistance for more than 62,000 refugees and asylum-seekers in Ghana. • Stabilize the emergency opera- tion set up in response to the influx in 2005 of some 15,500 Togolese refugees in the Volta Region. • Seek to safeguard the rights of refugees and other persons of concern to UNHCR through advocacy and related initiatives. • Maintain and improve UNHCR’s emergency preparedness and response capacity, in the context of a joint Government of Ghana/UN inter-agency approach to contingency planning. Planning figures Working environment Population Jan 2006 Dec 2006 Liberia (refugees) 39,200 28,200 Recent developments Togo (refugees) 16,200 18,000 Ghana has remained at the forefront of regional Togo (asylum-seekers) 3,550 1,050 and international initiatives to find political solu- Other asylum-seekers 3,250 3,100 tions to the crises in Togo, Côte d’Ivoire and Other refugees 360 640 Liberia, all of which have threatened stability in the subregion. Total 62,560 50,990 The refugee protection regime in Ghana has been Total requirements: USD 8,531,345 substantially reinvigorated by enhanced proce- dures for refugee status determination and other

UNHCR Global Appeal 2006 178 protection activities. UNHCR has collaborated sustainability of initiatives, helping host commun- with the Ghana Refugee Board to initiate struc- ities at the same time as fostering self-reliance for tured refugee eligibility work and has conducted a refugees, empowerment of refugee communities, range of training activities for Government offi- and gender equality. A structured and significant cials. Nevertheless, vital support from the phasing down of programme activities is antici- Office will still be needed until sufficiently effec- pated for 2006-2007. Political uncertainty in tive asylum procedures are in place, so that all neighbouring countries giving rise to concerns of responsibilities for status determination can be population outflows to Ghana warrants emer- transferred to the Government of Ghana. gency preparedness. UNHCR has taken the lead in the development of regularly updated inter- agency contingency plans for the reception of any

Constraints Ghana new refugee influxes.

The anticipated voluntary repatriation of about 11,000 Liberian refugees in 2006 is likely to result Protection and solutions in a demographic shift, whereby the remaining Liberian refugee population in Ghana will include UNHCR continues to place considerable empha- disproportionate numbers of women, children sis on strengthening the protection regime in the and elderly people. Many of them have been country, through better implementation of the repeatedly displaced, and are thus more likely to asylum law and furthering the goals of the Agenda be traumatized, presenting a complex spectrum for Protection. Key objectives for 2006 include the of special needs. It is anticipated that gaps will improvement of asylum procedures; ensuring persist in key sectors at the Buduburam refugee better and continuous registration and documen- settlement, affecting those with the most acute tation of refugees and asylum-seekers; improving needs. These difficulties are further aggravated by the physical safety of refugees; empowering the problems related to infrastructure, mainly due to refugees to meet their own protection needs; and the non-availability of major services in previous meeting the special protection needs of refugee years, when UNHCR had no assistance pro- women and children. In 2006, UNHCR’s work with gramme for refugees in Ghana. the Ghana Refugee Board and local NGOs will enhance their ability to provide protection and In the Volta Region, a lack of local NGOs reduces other services on a long-term basis. the scope of UNHCR’s work on behalf of Togolese refugees. The Office is facing complex logistical, UNHCR has empowered the refugee communities communication and human resource challenges to meet their own physical protection needs when trying to obtain access to refugees living in through Neighbourhood Watch Team arrange- host communities in 114 locations. ments, working in close cooperation with the police force. Measures to address the special pro- tection needs of refugee women and children Strategy involve an emphasis on prevention of and response to sexual and gender-based violence (SGBV) among refugees. An experienced local UNHCR’s strategy for 2006 was designed in part- NGO will continue to be engaged to provide coun- nership with the Government, implementing and selling and assistance to SGBV survivors and con- operational partners, donors and refugees. The duct campaigns to raise awareness and prevent strategy is built around the High Commissioner's further violence against refugee children and Strategic Objectives, the Agenda for Protection,the women. Legal, medical, material and psychosocial UNHCR Regional Objectives for the Africa support is made available for SGBV survivors and Region, the High Commissioner's Commitments their families. to Refugee Women and the Millennium Develop- ment Goals. Covering both voluntary repatriation The presence of Togolese refugees, hosted by and local integration opportunities for Liberian local communities, has put considerable pressure refugees, it will place special emphasis on on local resources and services, including shelter,

179 UNHCR Global Appeal 2006 water, sanitation, and food. Togolese refugees in towards community support, rather than a Ghana have not thus far expressed a wish to resumption of assistance. At the same time, the return home, and UNHCR will continue to provide many special needs of the population are increas- basic assistance to both refugees and host com- ingly being addressed through targeted protec- munities in 2006. tion and assistance interventions, such as the joint WFP/UNHCR feeding programme for vulner- In mid-2005, there were more than 4,000 urban able refugees in Ghana. refugees, mainly from Côte d’Ivoire, the Democratic Republic of the Congo, Liberia, Sudan, and Togo. In anticipation of substantial voluntary repatria-

Ghana They have varying protection needs due to their tion movements in 2006, efforts will be intensified political affiliations, experiences of past persecu- to help prepare refugees for a successful life in tion and family backgrounds. Among them are their home country, including skills training, par- refugees from settlements who come to Accra ticularly for women and youth, as well as good pri- pending voluntary repatriation or resettlement, mary education for children. A programme of individuals with special medical needs, as well as vocational training introduced in 2004 will con- refugees who have attained some level of self- tinue to develop the skills of refugees in prepara- sufficiency in the urban areas but who require tion for repatriation to Liberia or local integration protection interventions. Some are accommo- in Ghana. Refugees will receive training in infor- dated and assisted in the UNHCR transit centre in mation technology, masonry, carpentry/joinery Accra. androadconstruction.

The restoration of peace in Liberia brings the Krisan settlement, located in the Western Region, promise of durable solutions for many Liberian about 300 km from Accra, houses more than refugees. Liberian refugees will be assisted to 2,000 refugees of mixed origin (from Liberia, repatriate by air or by sea within the legal and Rwanda, Sudan, Côte d’Ivoire and Togo). operational framework of the Tripartite Repatri- Although self-sustaining agricultural activities are ation Agreement with the Governments of Ghana limited, UNHCR will continue to identify opportu- and Liberia. nities for self-reliance and local integration as well as appropriate durable solutions, including volun- UNHCR's proposed activities are geared towards tary repatriation and resettlement. In the mean- reducing activities in a number of operational time, rations will continue to be provided, as well areas following the repatriation operation. How- as community-based assistance in the sectors of ever, this phase-down will be balanced by inten- health, sanitation and education. At the time of sive promotion of self-reliance and local writing, a collaborative initiative with FAO and integration for those who do not opt for repatri- UNIDO was being pursued to provide training and ation. The Office will continue to collaborate with support to refugees and local communities in donors and other partners to increase development and around the settlements. If this is successful, assistance for refugees and strengthen the frame- refugees will gain various means to earn a modest work for the process of local integration, particularly income, and thereby facilitate their local integration. for Liberian refugees remaining in Buduburam. UNHCR will also encourage relevant partners to Desired impact implement selected services with their own resources or through other funding arrangements. The Ghana programme is designed to facilitate the most appropriate durable solutions for refugees Assistance and to increase their self-reliance wherever poss- ible. A significant consolidation of operations in While a good number of refugee families have the camps is anticipated for 2006 and 2007, achieved a reasonable level of self-sufficiency, through comprehensive durable solutions and many have not been able to rebuild their lives. capacity-building efforts. It is assumed that the Consequently, the strategy has been directed situation in Liberia will prove conducive to the

UNHCR Global Appeal 2006 180 Ghana

Togolese refugees arriving in Ghana. UNHCR / D. Kamphuis voluntary repatriation of a substantial proportion immediate response mechanism in the event of of the population and that subregional develop- new influxes into Ghana. ments will serve to preclude population flows into Ghana. Should further influxes occur, however, UNHCR will have to adopt a phased approach, Organization and and a temporary increase in resources will be required for 2006 to ensure that sustainable dur- implementation able solutions are achieved. Management structure The Ghana Refugee Board will assume greater responsibility for the determination of asylum UNHCR will operate with 39 staff (six internation- applications and the Ghana Immigration Service als and 33 nationals). The UNHCR Representa- will become fully operational. It will thus handle tion, based in Accra, is responsible for all aspects the registration of asylum-seekers, registration of the operation. A field office in Takoradi caters and the logistics of departure arrangements during to the needs associated with the Krisan refugee voluntary repatriation of refugees, and facilitation settlement and the Western Region of Ghana, of local integration through documentation such while a field office in Ho, the capital of the Volta as work permits or long-term residency permits. Region, has been opened to help the recently arrived Togolese refugees. UNHCR’s strategy for Togolese refugees will play a role in the development of local communities in The Regional Support Hub, though based in the Volta Region. Shelter construction and the Accra, is an independent unit with regional improvement of other public goods and services responsibilities, as described in the regional are being designed to be of lasting benefit to the overview chapter. However, the costs of the Hub Ghanaian host communities, even after the are budgeted within the Ghana programme. The departure of the Togolese refugees. Developing Hub consists of 33 staff (14 internationals, three the infrastructure of these refugee-hosting com- JPOs and 16 nationals). munities will in effect make available an

181 UNHCR Global Appeal 2006 Coordination Budget (USD)

Activities and services Annual Programme Active partnerships are maintained with a range of Budget other UN agencies, IOM, the IMF, the World Bank, NGOs, as well as with the Government of Ghana Protection, monitoring 1,487,787 and coordination at national, regional and local levels. UNHCR’s programmes are planned and carried out in close Community services 158,601 cooperation with the Government of Ghana, both Crop production 25,000 through the Ghana Refugee Board and various line

Ghana ministries. UNHCR participates in UN inter- agency Domestic needs 138,633 forums, including the Task Force on Contingency Education 358,145 Planning and those connected with the Millen- Food 116,934 nium Development Goals. UNHCR and WFP will continue to implement a joint feeding programme Health 213,353 targeting the most vulnerable people living in Income generation 42,035 Buduburam refugee settlement. Legal assistance 175,042 Offices Operational support (to 267,174 agencies)

Accra Sanitation 29,846 Ho Shelter/other 50,105 Takoradi infrastructure

Transport/logistics 1,613,427

Partners Water 7,794 Total operations 4,683,876 Government agency 1 Ghana Refugee Board, Ministry of the Interior Programme support 3,847,469 Total 8,531,345

NGOs 1 Includes the budget of the Regional Support Hub in Accra. Assemblies of God Relief and Development Service Christian Council of Ghana Ghana Red Cross Society National Catholic Secretariat Women’s Initiative for Self-Empowerment

Others FAO UNFPA UNICEF UNIDO UNV WFP WHO

UNHCR Global Appeal 2006 182 Guinea

Main objectives Planning figures Population Jan 2006 Dec 2006

• Provide international protection to refugees Liberia (refugees) 59,000 19,000 and improve the quality of asylum by ensuring Other refugees (urban) 7,000 7,000 prompt access to refugee status determination Côte d’Ivoire (refugees) 3,310 1,310 procedures. • Promote and accelerate the sustainable volun- Sierra Leone (refugees) 1,500 0 tary repatriation of Liberian refugees, and Total 70,810 27,310 facilitate the voluntary repatriation of Ivorian refugees if and when feasible. Total requirements: USD 15,413,060 • Provide continuing care to camp-based refugees and strive to develop durable solutions for urban refugees whilst improving their access to rights. • Promote the local integration of the remaining Sierra Leonean refugees through a self-reliance programme. • Rehabilitate the environment in refugee- impacted areas, act as a catalyst to build part- nerships and secure funds for further remedial work.

183 UNHCR Global Appeal 2006 creating delays in the voluntary repatriation Working environment programme, in responding to emergency needs, and in the provision of material assistance. Recent developments The residual group of Liberian refugees is In 2005, the Government has been striving to fulfil expected to include a disproportionate number of political and economic requirements set by its women, children and elderly persons, many with development partners. The overall political cli- special needs. It is feared that important gaps will mate has improved, yet the country remains persist in key sectors where basic assistance is Guinea plagued by complex tensions and poor socio- needed the most, especially if further funding economic conditions. shortfalls occur.

The voluntary repatriation of nearly 140,000 Sierra Leonean refugees, which ended in 2004, relieved Strategy a burden on local Guinean communities and structures and reduced negative views of refugees Protection and solutions as an unwelcome drain on national resources. This more favourable context allowed progress Within the framework of the signed Tripartite in achieving durable solutions for the remaining Repatriation Agreement between Guinea, Liberia refugees, with the Government agreeing to the and UNHCR, an estimated 40,000 Liberian refugees local integration of the residual group of Sierra are expected to avail themselves of the assistance Leonean refugees. for voluntary repatriation planned for 2006. UNHCR will ensure that Liberian refugees receive The restoration of peace in Liberia offers the pros- accurate information on the situation in Liberia to pect in 2006 of significant progress towards the enable them to make an informed decision on achievement of durable solutions for Liberian whether or not to return. refugees in Guinea. By mid-September 2005 UNHCR had facilitated the repatriation of some UNHCR will complete a local integration project 18,000, and even more are expected to return for some 1,500 Sierra Leonean refugees in the first home after the Liberian elections scheduled in half of 2006, and then build on this experience to October 2005. explore the local integration options for those Liberian refugees unable or unwilling to return. At the same time, the political climate in the sub- region remains very volatile, particularly in neigh- Efforts to prevent and respond to sexual and gender- bouring Côte d’Ivoire, where ongoing instability based violence (SGBV) in refugee camps will con- requires the Office to continue providing assis- tinue through the Brigade mixte de sécurité, legal clin- tance to Ivorian refugees in Guinea and to main- ics, SGBV groups, regular monitoring and tain contingency planning and emergency coordination of activities. preparedness for any new refugee influxes.

The process of dialogue, profiling and counsel- Constraints ling of urban refugees with the help of the new proGres software is underway in Guinea. Over Guinea is rendered vulnerable by the fragile secu- 6,600 urban refugees, registered by mid-2005, rity situation in neighbouring countries due to the will increasingly benefit from international pro- presence of ex-combatants in the forest region tection and durable solutions options, while and the illicit small arms trade, reportedly flour- medical assistance will be provided for the vul- ishing in the border areas. In this context, main- nerable. UNHCR will continue to support the taining the civilian and humanitarian character of Government in its efforts to establish proper the camps remains a challenge. Additionally, poor refugee status determination mechanisms and road conditions badly affect UNHCR’s operations, identify solutions for asylum-seekers.

UNHCR Global Appeal 2006 184 Guinea

A refugee mother and her child. UNHCR / L. Taylor

185 UNHCR Global Appeal 2006 UNHCR will pursue all possible strategies to meet environmental degradation. The integration of the special needs of unaccompanied and sepa- refugees will be facilitated by the rehabilitation of rated children, particularly in the N'zerekore local infrastructures benefiting host communities, region. The best possible option will be explored notably in the préfecture of Gueckedou. The rights for each child, leading either to family reunifica- of refugees in Guinea will be better respected tion or the identification of a foster family, and when Government officials have the capacity, could involve repatriation or resettlement. including legal knowledge and technical back-up, to deal effectively with refugee issues. Assistance Guinea

The residual group of Sierra Leonean refugees will Organization and be integrated in local communities in Guinea, with implementation the support of an international partner. Management structure UNHCR is planning to facilitate the repatriation of up to 2,000 Ivorian refugees in 2006 on a volun- In 2006, UNHCR will have a total of 179 staff, tary basis whenever the situation in Côte d’Ivoire comprising 147 nationals and 32 internationals. permits return in safety and dignity. The Office will Country operations will be implemented through continue to provide material assistance for Ivorian offices in Conakry, Kissidougou and N’zerekore. refugees after relocating them from Nonah transit camp to Kouankan camp. Coordination In the camps, basic shelter materials, domestic items, water and sanitation services will be pro- UNHCR’s main operational government counter- vided alongside food rations, health care, vacci- part will remain the Bureau national de coordination nation and education. UNHCR and its partners will de l’assistance aux réfugiés which is now under the promote access to school for refugee girls, with Service national d’action humanitaire. Five implement- the aim of having roughly equal numbers of boys and ing partners will be involved in refugee girls attend school. Refugee women will be programmes. In an effort to support the transition encouraged to take a leading role in community- towards sustainable development, UNHCR will based initiatives, including campaigns for the strive to raise donor interest in funding rehabili- prevention of HIV/AIDS, sexual exploitation and tation or capacity-building projects in areas of gender-based violence. Guinea affected by the presence of large numbers of refugees. Successful partnership is also The rehabilitation of the environment in refugee- expected with other UN agencies, such as impacted areas will be incorporated into strat- UNICEF, UNDP and FAO, and within the context egies for achieving sustainable development. of the UN Development Assistance Framework (UNDAF). Desired impact

Continued provision of humanitarian assistance will allow UNHCR to maintain minimum living con- ditions in the refugee settlements. Increased par- ticipation by refugee women and opportunities for education and training will better equip the refugee communities to sustain themselves. Effective environmental management and awareness-raising will mitigate damage in and around the refugee camps and prevent further

UNHCR Global Appeal 2006 186 Offices Budget (USD)

Conakry Activities and services Annual Programme Budget Kissidougou N'zerekore Protection, monitoring 4,476,210 and coordination

Community services 265,000 Partners Crop production 175,000 Domestic needs 360,000 Government agencies Bureau national de coordination de l’assistance aux Education 590,000 réfugiés Guinea Food 60,000 Direction nationale des eaux et forêts Radio rurale de Guinée Forestry 150,000

Health 630,000 NGOs Income generation 185,000 Catholic Relief Services International Rescue Committee Legal assistance 470,000 Organisation pour le développement intégré Operational support (to 1,100,000 communautaire agencies)

Sanitation 120,000 Others Shelter/other 260,000 Deutsche Gesellschaft für Technische infrastructure Zusammenarbeit IFRC Transport/logistics 3,335,000 Water 100,000

Total operations 12,276,210

Programme support 3,136,850

Total 15,413,060

187 UNHCR Global Appeal 2006 Liberia

Main objectives Planning figures Population Jan 2006 Dec 2006

• Promote the voluntary repatriation of Liberian IDPs (non-camp-based) 186,000 55,800 refugees and internally displaced persons (IDPs) Returnees 88,1001 101,0002 to areas where basic security conditions are in IDPs (camp-based) 37,000 0 place and ensure their safety and dignity during transit. Côte d’Ivoire (refugees) 12,600 12,600 • Foster partnerships and complementarities Sierra Leone (refugees) 2,240 500 with other humanitarian actors to ensure the sustainable reintegration of former refugees Other refugees 60 60 (including TCNs) and internally displaced people in the context of the “4Rs” approach. Other asylum-seekers 30 100 • Provide adequate support for all refugees in Total 326,030 170,060 Liberia and seek durable solutions through 1 Estimated number of returnees in 2005. local integration, repatriation or resettlement. 2 Estimated number of returnees in 2006. • Help the Government to assume the primary responsibility for protecting refugees, Total requirements: USD 39,084,990 returnees and IDPs. • Maintain up-to-date contingency plans for possible new emergencies.

UNHCR Global Appeal 2006 188 Working environment Constraints In spite of peacekeeping efforts law and order Recent developments remains fragile, as the Government has not yet been able to firmly re-establish its presence and Progress continued on the implementation of the authority throughout the country. The Government Comprehensive Peace Agreement, signed in has not yet fully assumed its coordination and Accra in August 2003, and on the consolidation of leadership role countrywide, and there are concerns security and stability in Liberia. By September about the sustainability of the reconstruction 2005, more than 220,000 IDPs and over 39,000 effort. refugees had received assistance with food and non-food items, transport or a transport grant to The availability of basic services in main areas Liberia return to their communities of origin. Prepara- of return remains limited and so far there few tions for the October 2005 general elections were police or other law-enforcement mechanisms on track and over 1.3 million Liberians, out of an to back up traditional community service estimated population of 3.5 million, had regis- structures. tered to vote. The very poor roads, requiring major rehabilita- In September 2005, the UN Security Council tion, have been a major obstacle to the repatria- extended the mandate of the United Nations tion operations. UNMIL plays a major role in Mission in Liberia (UNMIL) for six months. There road repairs, but it intends to upgrade the road has been progress on the reform of the security network only as much as is required to facilitate sector. Although the restructuring of the Armed the deployment of its forces. Resources avail- Forces of Liberia was delayed, the demobilization able to humanitarian agencies for infrastructure of irregular armed forces personnel has made rehabilitation are often limited, and long-term steady progress, with over 8,000 of the 9,000 infrastructure development programmes are armed forces personnel demobilized. The not yet in place. Government’s objective is to form a new force expected to be 2,000-strong. However, there are still an estimated 26,000 ex-combatants in need Strategy of assistance with reintegration. By late September 2005, over 900 police officers had been Protection and solutions redeployed to police stations in various locations in the country. For the majority of Liberian refugees remaining in West African countries at the end of 2005, volun- The National Transitional Government of Liberia tary repatriation will be the most viable durable has endorsed the Governance and Economic solution. Indeed, the Regional Multi-Year Operations Management Assistance Programme (GEMAP), a Plan for the Repatriation and Reintegration of Liberian joint initiative of the United Nations, the European Refugees and Internally Displaced Persons (2004-2007) Union, the Economic Community of West African envisages facilitating the voluntary repatriation of States (ECOWAS), the African Union (AU), the this population until 2007. Following the installa- United States, the International Monetary Fund tion of the elected Government and an assess- (IMF) and the World Bank. GEMAP will enhance ment of the overall situation in the country, the capacity of the Liberian State to collect tax UNHCR will shift from the facilitation stage of the revenue and ensure that the revenues, as well as return, which began in October 2004, to the active Liberia’s natural resources, are utilized for the promotion phase. Ensuring that refugees are well benefit of all the people of Liberia. informed of existing conditions in their places of origin remains a key component of the repatria- tion operation.

189 UNHCR Global Appeal 2006 Liberia

Newly arrived returnees at Sinje transit centre wait in line to collect their belongings from the repatriation trucks. UNHCR / R. Olchik

Most of the 223,000 registered IDPs will have as UNDP and relevant units within UNMIL, dealing returned to their places of origin of 2006. UNHCR with human rights, will also ensure support to the will therefore focus, in close cooperation with judiciary and the police. other agencies, on the provision of reintegration assistance to former refugees and IDPs. UNHCR Programmes involving training, prevention and has expanded its involvement with IDPs by response to sexual and gender-based violence assuming the principal role in coordination and (SGBV) will be set up to increase community management of the protection response, and in awareness. The focus will be on sensitization, to 2006 will continue to do so within the overall enhance the role and value of women in decision- inter-agency collaborative approach. making and leadership. Specifically, the aim will be to increase and support girls’ enrolment in In order to support the Government to assume school. Initiatives for adolescent needs will continue primary responsibility for protecting refugees, in 2006. returnees and IDPs, UNHCR will support and strengthen the national judicial structure, through Urban refugees the provision of material assistance. At the central, county and district levels, UNHCR will continue to In Monrovia there are 95 registered urban refugees work through existing structures, strengthening the and asylum-seekers, who originate from Algeria, capacity of institutions to protect refugees and Burkina Faso, Chad, Côte d’Ivoire, the Democratic returnees. UNHCR will also ensure the proper Republic of the Congo, Iraq, Palestine, Rwanda, integration into society of returning populations, Somalia, Sudan and Togo. It is unlikely that they and that their rights are respected (including will opt to return home, and it is therefore restitution of property). Development actors such anticipated that Liberia will continue to extend its

UNHCR Global Appeal 2006 190 hospitality and that they will continue to benefit conflict resolution, coordination and resource from targeted individual assistance. mobilization.

Sierra Leonean refugees It is of vital importance that UNHCR collaborate with development actors from the outset in order Although the repatriation operation for Sierra to ensure that they include areas of return in Leonean refugees ended in July 2004, the their plans, and thus ensure that there are no Government of Liberia will continue to extend its shortfalls in interventions during the transition hospitality to the more than 2,200 remaining between humanitarian relief and development refugees in the country until a cessation clause is assistance. invoked. Only legal assistance is foreseen for this group in 2006. With regard to camp-based Ivorian refugees, the Liberia assistance will be community-based. However, Ivorian refugees some 590 refugees with special needs will receive regular assistance. UNHCR will seek to ensure that Over 12,000 Ivorian refugees live in Nimba and targeted beneficiaries have access to basic Grand Gedeh Counties. The unstable political situ- services. ation prevailing in Côte d’Ivoire is likely to inhibit the voluntary repatriation of Ivorian refugees in Desired impact 2006, and UNHCR plans to maintain its assistance throughout the year. It is hoped that UNHCR’s continued support will Liberian returnees and internally enable the elected government to provide pro- displaced people tection and assistance for refugees and asylum- seekers. The Liberian Government’s capacity to It is expected that in 2006 conditions in Liberia deal with persons of concern to UNHCR will be will continue to allow for returnees and IDPs to enhanced through various training activities, and resettle in their communities of origin. While most also through material assistance in areas receiv- IDPs will already have returned to their places of ing high numbers of returnees. Ivorian and Sierra origin, it is expected that some 101,000 refugees Leonean non-camp based refugees requiring will return from neighbouring countries in 2006 international protection beyond 2006 will have with assistance from UNHCR. freedom of movement and will have the possibil- ity to settle locally if they so choose. The overall strategic and operational management of reinte- Assistance gration activities will focus on promoting the “4Rs” framework, so as to ensure sustainable The bulk of reintegration and other programme return. Rehabilitation of local infrastructure will activities related to voluntary repatriation will benefit not only returnees but the communities continue during 2006 and 2007, eventually phas- they return to as a whole. The appropriate mech- ing down by 2008. Operations will focus on vol- anisms will be in place to address identified untary repatriation, reintegration, community problems or gaps through a collaborative services, protection and protection monitoring approach involving UNHCR, specialized agencies of returnees and IDPs. Besides return packages, and the relevant authorities. returnees will have access to community-based assistance in the areas of return. There are opportunities for humanitarian actors to lay the foundations for genuine progress in areas such as gender issues, legal assistance to SGBV survi- vors and psychosocial counselling, the involve- ment of beneficiaries in all aspects of planning and implementation, peace initiatives and

191 UNHCR Global Appeal 2006 Organization and Offices implementation Monrovia Gbarnga Harper Management structure Saclepea Tubmanburg UNHCR will maintain its branch office in Voinjama Monrovia, two sub-offices in Voinjama and Zwedru Saclepea and field offices in Gbarnga, Harper, Liberia Tubmanburg and Zwedru. UNHCR will have 170 national and 50 international staff in addition to Partners eight UNVs and five Surge project deployees and NRC secondees. Government agency Liberian Refugee Repatriation and Resettlement Commission (LRRRC) Coordination

As a member of the United Nations Country NGOs Team, UNHCR will continue to cooperate with all African Concern International United Nations agencies represented in Liberia. In Africa Humanitarian Action the context of the integrated UN Mission American Refugee Committee approach, UNHCR will also work under the leader- CARITAS (Liberia) ship of the Deputy Special Representative of the Christian Assistance Programme Secretary-General in charge of humanitarian Christian Children Fund coordination. Given the need to create an envi- Community Action Programme (Liberia) ronment conducive to sustainable reintegration, Community Empowerment Programme (Liberia) UNHCR will continue to participate actively in the Concerned Christian Community “4Rs” Core Group in order to ensure that needs of Danish Refugee Council the returning populations are factored into Development Education Network (Liberia) long-term reconstruction programmes. Environmental Foundation for Africa Foundation for African Development Aid As outlined in the Regional Multi-Year Operation Plan Foundation for International Dignity for the Repatriation and Reintegration of Liberian refugees International Medical Corps International Rescue Committee and Internally Displaced Persons (2004-2007), UNHCR Liberia Islamic Reconstruction and Development was entrusted with the regional coordination of Liberia National Red Cross Society this extensive and complex operation. This will Liberians United to Serve Humanity preclude unnecessary duplication and waste of Medical Emergency Relief Cooperative International resources. UNHCR Representatives in the sub- Medical Emergency Relief International region will meet periodically; other meetings, with Norwegian Refugee Council WFP, UNICEF, UNDP and the Humanitarian Peace Winds Japan Coordinator’s Office, as well as with Tripartite Search for Common Ground -Talking Drums Studio Repatriation Commissions, will be maintained. Smile Africa Liberia Special Emergency Life Food Programme United Methodist Committee on Relief Women in Progress for Community Services World Vision-Liberia ZOA Refugee Care

UNHCR Global Appeal 2006 192 Others FAO Deutsche Gesellschaft für Technische Zusammenarbeit ICRC ILO IOM UN-Habitat UNDP UNFPA UNICEF

UNIFEM Liberia UNMIL WFP

Budget (USD)

Activities and services Annual Programme Budget

Protection, monitoring 12,247,955 and coordination

Community services 2,120,000

Crop production 450,000

Domestic needs 1,920,000

Education 910,000

Health 1,720,000

Income generation 80,000

Legal assistance 2,890,000

Livestock 205,000

Operational support (to 2,845,000 agencies)

Sanitation 440,000

Shelter/other 3,155,000 infrastructure

Transport/logistics 4,325,000

Water 440.000

Total operations 33,747,955

Programme support 5,337,035

Total 39,084,990

193 UNHCR Global Appeal 2006 Sierra Leone

Main objectives Planning figures Population Jan 2006 Dec 2006

• Promote and accelerate the sustainable volun- Returnees 271,000 271,000 tary repatriation of Liberian refugees. Liberia (refugees) 51,200 30,100 • Promote durable solutions for urban refugees Total 322,200 301,100 and asylum-seekers whilst improving their access to basic rights. • Provide continuing care and protection Total requirements: USD 17,281,205 through self-reliance for refugees still in camps. • Identify future local integration prospects for potential residual populations. Working environment • Support the development of national protec- tion capacity in the Government and civil Recent developments society. • Ensure that the operation is driven by accurate Significant progress has been achieved by UNHCR and up-to-date registration data. on the sustainable return of more than 270,000 • Rationalize resources whenever possible by returnees, representing four years of reintegration consolidating services, camps and offices. efforts between 2001 and 2004. Viable communi- ties were rebuilt within the Kailahun, Kambia, Kono and Pujehun Districts, the main areas of

UNHCR Global Appeal 2006 194 return. Local government structures have been deterioration in security. Youth unemployment re-established and the process of devolution of and illiteracy rates are high, roads are poor, and power from key line ministries to local authorities health services inadequate. Despite the commu- has begun. Although they still suffer from low nity empowerment programmes, the local capac- capacity, isolation, lack of transport and chroni- ity to sustain reintegration will remain low in both cally poor infrastructure, the newly elected coun- human and financial terms. cils and their few line ministry counterparts in the main returnee districts have formulated develop- ment plans, for which various sources of develop- Strategy ment funding are now becoming available. While UNHCR plans to discontinue its reintegration programmes to returnees by the end of 2005, a Protection and solutions Sierra Leone comprehensive Poverty Reduction Strategy Paper for Sierra Leone has been submitted by the UN After UNHCR has disengaged from reintegration Country Team (UNCT) to the World Bank with a programmes for Sierra Leonean returnees, its view to sustaining long-term development in main focus will be on repatriation or local integra- areas of return. tion for Liberian refugees. Despite the planned voluntary repatriation of 20,000 Liberians, includ- The country is preparing for the departure of ing 2,500 from urban areas, there will still be over United Nations Mission in Sierra Leone (UNAMSIL) 30,000 urban and camp-based refugees country- peacekeeping forces by the end of 2005 and the wide in need of continued protection and establishment of the United Nations Integrated assistance throughout 2006. Office in Sierra Leone (UNIOSIL), approved through UN Security Council Resolution 1620 For those Liberian refugees opting to stay in Sierra (2005). It is hoped that UNIOSIL will further con- Leone, the search for long-term local integration solidate peace by enhancing political and eco- solutions will become a priority. Urban integration nomic governance, building national capacity for and rural settlement options will be explored conflict prevention and preparing for elections in through intensified dialogue with government, 2007. The economy has been slow to take off and local and refugee communities. government revenues remain far lower than planned, though there has been progress in Many of the urban refugees who arrived in the attracting mining investment and in curbing illegal country in the late 1980s have been unwilling to diamond exports. repatriate to Liberia and have pursued resettle- ment or local integration options whenever pos- With the restoration of peace in Liberia the out- sible. They continue to live in precarious look for 2006 is for significant progress towards circumstances, and UNHCR will continue to achieving durable solutions for Liberian refugees advocate for their basic rights, including access to in Sierra Leone. The prospects of voluntary repa- health care and education, and the prevention of triation to Liberia should further improve after sexual and other forms of exploitation or abuse. the presidential elections in October 2005, and The process of dialogue, profiling and counselling with the continued efforts of the United Nations of urban refugees began in 2005, and the imple- Mission in Liberia (UNMIL) to promote recon- mentation of the new proGres registration data- struction, and disarm and demobilize ex-fighters. base will deepen UNHCR’s understanding of individual cases and planning for durable solu- tions. At the same time, the National Commission Constraints for Social Action (NaCSA) will be financially sup- ported and encouraged in its efforts to build the Community needs in Sierra Leone remain daunt- country’s protection capacities. When the draft ingly extensive, and civil unrest could yet result if Refugee Protection Act passes into law, it will pro- the general standard of living fails to improve, or vide a basis for clarification of the legal status of the departure of UNAMSIL leads to a the various urban refugee groups. A limited

195 UNHCR Global Appeal 2006 iraLeone Sierra

Liberian refugees waiting at Kenema camp to board the truck that will take them back home. UNHCR / R. Goldstein-Rodriguez

number may become eligible for naturalization. levels of service provision after several years of UNHCR will help to guide them through that assistance. process. Desired impact Assistance The programme in Sierra Leone is designed to If the repatriation of Liberian refugees takes facilitate the most appropriate durable solutions place as planned, UNHCR will close four of the for refugees and to increase their self-reliance eight refugee settlements and transfer up to wherever possible. It is assumed that the situation 12,000 refugees to the consolidated sites. The in Liberia will prove conducive to an accelerated number of implementing partners will decrease facilitation of voluntary repatriation for Liberian and UNHCR field offices in Zimmi and Kailahun will refugees. Economic recovery and stabilization be downsized. will be achieved through an effective transition from humanitarian aid to development. The Basic services for the remaining camp population Government of Sierra Leone will assume will be rationalized in coordination with the greater responsibility for the determination of European Commission’s Linking Relief, Rehabilitation asylum applications and the handling of refugee and Development project, started in 2005. Targeted matters when the Refugee Protection Act is self-reliance support will be needed to help passed. remaining camp-based refugees adapt to reduced

UNHCR Global Appeal 2006 196 Organization and NGOs Action contre la faim implementation African Development and Emergency Organization American Refugee Committee Arch-Diocesan Development Office Management structure Bo Pujehun Development Associates Caritas Kenema Office In 2006, UNHCR will have a total of 177 staff, com- Catholic Relief Service prising 124 national, 26 international, one JPO, 11 Christian Children’s Fund UNVs and 15 secondees. Country operations will International Rescue Committee be implemented through the office in Freetown, a Lutheran World Federation sub-office in Kenema and three field offices Network Movement for Justice and Development Sierra Leone respectively in Bo, Kailahun and Zimmi. Peace Winds Japan Sierra Leone Red Cross Society Coordination Talking Drums Studio

As in previous years, UNHCR’s main operational Others government counterpart will be NaCSA. Fourteen Deutsche Gesellschaft für Technische NGOs will be implementing UNHCR projects and Zusammenarbeit an inter-agency Transitional Support Team active Coopération française in the major areas of return will oversee the WFP continuation of the reintegration programmes ini- tiated by UNHCR. The Poverty Reduction Strategy Paper and the United Nations Development Assis- Budget (USD) tance Framework will be the key instruments Activities and services Annual Programme guiding donor support to Sierra Leone in 2006. Budget UNHCR will continue its active partnership with UNDP, the World Bank, UNICEF, UNFPA, UNIDO, Protection, monitoring 5,760,373 and coordination WHO and FAO within the context of a joint effort to consolidate peace in areas of return. Community services 964,504 Domestic needs 314,769 Offices Education 464,787

Freetown Food 136,128 Bo Health 697,733 Kailahun Kenema Income generation 97,046 Zimmi Legal assistance 190,004

Operational support (to 2,040,557 agencies) Partners Sanitation 121,985 Government agency Shelter/other 342,592 National Commission for Social Action (NACSA) infrastructure

Transport/logistics 2,776,331

Water 353,564

Total operations 14,260,373

Programme support 3,020,832

Total 17,281,205

197 UNHCR Global Appeal 2006 Southern Africa

Recent developments

he organized repatriation of Angolan refugees Tis drawing to a close. Over a three-year period, UNHCR and its partners have assisted the return of more than 200,000 refugees. In 2005, the Government of Angola, supported by Angola UNHCR, launched the Sustainable Reintegration Initiative targeting key districts of return. Detailed Botswana assessments have already been completed in Comoros each district highlighting major gaps in social ser- vices, transport infrastructure and economic Lesotho opportunities, and identifying key development Madagascar priorities, in line with existing national and provincial development plans. At the same time, UNHCR is Malawi working with national authorities in the countries Mauritius of asylum to identify durable solutions for the remaining Angolan refugees. In Zambia, the corner- Mozambique stone of local integration is the Zambia Initiative, Namibia under which substantial progress has been made in 2005, including a significant increase in school Seychelles enrolment, the repair of rural feeder roads and the South Africa implementation of a comprehensive agricultural credit scheme. Swaziland Zambia With the improving situation in the Democratic Republic of the Congo (DRC), refugees have begun Zimbabwe returning spontaneously from Zambia to Katanga Southern Africa

province. At the same time, preparatory work for Africa faces a backlog of more than 115,000 the organized voluntary repatriation of DRC pending asylum applications. Other countries face refugees is under way in north-eastern Zambia, similar problems, albeit on a smaller scale. Neverthe- where more than 60,000 DRC refugees reside, with less, South Africa, Malawi and Mozambique have all the first movements expected early in 2006. In launched aggressive efforts, with the assistance of Angola, UNHCR has already facilitated one UNHCR, to remedy the deficiencies in their RSD movement to Katanga. Elsewhere in the region, systems. similar activities are under way in countries hosting DRC refugees. Out of a total population of some In 2005, UNHCR and its implementing partners 100,000 DRC refugees, roughly 25,000 are made substantial strides towards strengthening expected to repatriate, assuming stable conditions programmes on HIV/AIDS for refugees in a region in Katanga and the Kivus, the main areas of return. grappling with the highest rates of HIV prevalence in the world. Voluntary counselling and testing New registration systems have been launched in (VCT) programmes were initiated in a number of Botswana, Malawi and Mozambique. In all three camps, and urban-based refugees in many areas countries, a credible database of refugees and gained access to national HIV/AIDS prevention, asylum-seekers now exists, enabling the issuance care and treatment programmes, including of documentation compliant with international antiretroviral therapy. HIV/AIDS prevention mess- standards and facilitating a more targeted ages were integrated into refugee youth and approach in the provision of protection and assist- women’s activities, and information materials on ance and the identification of durable solutions. HIV/AIDS were developed and provided in several languages spoken by refugees. The refugee status determination (RSD) system in many countries in the region continues to be extremely cumbersome. Most notably, South

199 UNHCR Global Appeal 2006 An overarching principle in the Southern Africa Strategic objectives operation is to ensure gender equality and the rights of refugees of all ages and all backgrounds. 2006 will be a crucial year for the region. This will The application of the gender, age and diversity entail starting the facilitated repatriation of mainstreaming approach will continue. Four exist- Congolese refugees from DRC, the consolidation ing multifunctional teams (MFTs) will be sup- of the remaining camps housing Angolan refugee ported by headquarters and regional staff, and populations, and a further stage of sustainable new teams will be trained for the remaining coun- otenAfrica Southern reintegration of Angolans into their communities, tries of the region. A participatory assessment, in close partnership with developmental agencies developed by the MFTs through consultation with and financial institutions. At the same time, UNHCR refugees, will form the basis for all protection and will focus on creating a legal environment conducive programme planning. Throughout the region, the to sustainable local integration of refugees who MFTs will meet with refugees of different age may opt to remain indefinitely in their countries of groups to identify their specific protection needs. asylum. Furthermore, innovative strategies will be Two areas of major focus will be supporting refugee, adopted to encourage more Rwandan refugees to national and regional capacities to prevent and repatriate voluntarily. respond to sexual and gender-based violence and developing strategies to encourage community- The Office will continue working closely with host based support of older refugees, many of whom countries to harmonize their refugee and asylum have been forced to care for their grandchildren. legislation. Particular emphasis will be placed on helping relevant governmental institutions to acquire the capacity to handle asylum Operations applications more effectively and efficiently. UNHCR will also work to consolidate the success Operations in the region encompass 14 countries. of the refugee registration initiative, ensuring that The country programmes in ngola , Sout governments have the capacity to manage the rica and Zambia are presented in separate newly established systems. chapters. UNHCR also has operations in Botswana, Malawi, Mozambique, Namibia and Zimbabwe. The In order to keep pace with rapidly developing region also includes Swaziland, Lesotho and the national HIV/AIDS programmes in Southern Indian Ocean Island States of Comoros, Mauritius, Africa, UNHCR will need to continue focusing on Madagascar and Seychelles. building partner capacity to implement HIV/AIDS programmes, to mobilize the funds needed to In otswana , the population of concern deliver services of a high quality, and to under- decreased during 2005 to approximately 3,000 take inter-agency advocacy efforts for the cover- with the ongoing repatriation of Angolan refugees. age of refugees by national and regional In 2006, UNHCR will focus on finding durable solutions initiatives. The Office will continue to build up for the remaining Angolans, as well as the other HIV/AIDS-related skills among refugee commun- two main groups of refugees in Botswana – ity members. These skills, invaluable upon return Namibians and Somalis. For those Angolans who to countries of origin such as Angola and the did not repatriate in 2005, the emphasis will be on DRC, will involve activities to combat stigma local integration – both the legal framework and and discrimination, and to promote acceptance economic self-sufficiency. and support for refugees living with HIV/AIDS. As voluntary counselling and testing continues Repatriation will continue to be promoted for the to be the critical entry point for access to approximately 1,200 Namibian refugees originat- antiretroviral treatment, further expansion of ing from the Caprivi region. For the small Somali VCT services will target pregnant women and refugee population, cases will be examined on an other key groups such as youth. individual basis to identify the most durable solu- tion. Moreover, UNHCR will work with the

UNHCR Global Appeal 2006 200 Southern Africa

A repatriation convoy sets off from Kiowa reception centre, in northern Angola, which has been used to house transiting returnees from the DRC. UNHCR / M. Benevides

Government of Botswana to review the status of other key entities. UNHCR will also work with the some 480 rejected asylum-seekers, primarily Botswana authorities to strengthen the refugee Somali, who are currently still living in Dukwi status determination process in line with interna- camp. The infrastructure in one sector of Dukwi tional standards. camp will be upgraded in line with UNHCR’s minimum standards in anticipation of a consolida- In the Indian Ocean Island States, UNHCR will tion of the remaining population and an eventual continue its efforts to persuade Comoros and handover of the settlement to the Government of Mauritius to accede to the main international Botswana. refugee instruments. Assistance to the small num- ber of refugees and asylum-seekers in Comoros UNHCR will prioritize the strengthening of the new and Madagascar will continue to be provided registration system introduced in 2005. The through UNDP. emphasis will be on ensuring that the Government has the capacity to fully manage the database and UNHCR operations in Malawi will continue to ensure that standard operating procedures for assist an estimated 7,000 refugees, the majority of registration are consistent with international them from the Great Lakes region. The refugees standards, and that identity documents issued started to arrive in early 2001 (reaching a peak in are fully recognized by authorities, banks and late 2002 and early 2003) following the conflict in

201 UNHCR Global Appeal 2006 that region and the application of the cessation cases when other durable solutions are not clause for Rwandan refugees in the United feasible. Republic of Tanzania in 2002. The majority live in Dzaleka camp. In Mozambique, the population of concern con- tinues to grow slowly, with a steady flow of new Programme activities will be put in place to meet arrivals from the Great Lakes region, reaching some and sustain the minimum standards of humanitarian 6,000 by the end of 2005. In 2006, the Office will assistance across the sectors of health and nutri- focus on building the capacity of the Government otenAfrica Southern tion, shelter, water and sanitation, and commun- of Mozambique to conduct RSD in accordance ity social services. UNHCR will shift its budget with its international obligations. Currently, the allocation towards meeting infrastructural needs country is faced with a backlog of well over 4,000 to improve the road network, construction of a pending asylum claims, with asylum-seekers often footbridge to shorten the distance to the camp having to wait years for a decision. UNHCR will and possible provision of electricity to the camp. also support the Government in the maintenance Furthermore, there will be a need to drill addi- of the registration database established in 2005. tional boreholes for the anticipated increase of the camp population. An irrigation scheme, Refugees and asylum-seekers will continue to be started in 2005, will continue to be funded to sup- assisted in Marratane settlement in northern port the economic and social empowerment of Mozambique. However, UNHCR will focus its refugees and asylum-seekers, but also to improve efforts on implementing a comprehensive conditions for Malawians in the Luwani area. self-reliance strategy, given that the Government UNHCR will strengthen activities geared towards allows refugees and asylum-seekers to live out- local integration of refugees in Luwani camp and side Marratane if they are self-sufficient. During at the same time direct a slow phase-out of assist- the year, UNHCR anticipates that the implemen- ance to Dzaleka camp. Refugees who may choose tation of a number of activities in Marratane will to remain in Dzaleka camp will be supported to be handed over to local NGOs and line ministries, attain some level of self-sufficiency prior to in anticipation of an eventual handover of the UNHCR’s complete withdrawal. Those who settlement to the Mozambican Government. choose to transfer to Luwani will be supported UNHCR will also advocate for a legal framework with adequate farmland. The Government of Malawi for local integration, permitting refugees to settle will continue to provide additional land for cultiva- permanently in the country, if voluntary repatria- tion in Luwani in the event of large movement. tion is not an alternative. UNHCR will also ensure the full operation of the irrigation scheme and its continued use and With improving conditions in the Great Lakes maintenance through ownership by the refugees region, UNHCR will facilitate the return of those and the surrounding local population. persons wishing to repatriate, particularly to DRC and Burundi. Resettlement will continue to be In 2006, UNHCR’s strategy will include the pro- pursued on an individual basis, building on the motion of local integration in Luwani, to increase success of efforts in 2005 in which 330 cases were self-sufficiency amongst those refugees who wish approved by the United States and Canada. to stay in Malawi. Another important element of the strategy is to strengthen the Government’s In 2006, Namibia will host a registered protection capacity in order to speed up the event- camp-based refugee population of almost 6,400 ual phase-out of UNHCR from Malawi. This will individuals, of whom 5,200 are Angolans. Others entail training in refugee status determination, originate mainly from the Great Lakes region. refugee law and various aspects of management. There are also another estimated 6,000 persons UNHCR will press for the expeditious amendment of concern who registered in the camp as refugees of the refugee law to create an enabling environ- but subsequently decided to live elsewhere. ment that will promote the process of local inte- gration. Resettlement will also be pursued in a few

UNHCR Global Appeal 2006 202 In 2006, UNHCR operations in Namibia will focus In Swaziland, UNHCR has phased out assist- on long-term solutions – including local integra- ance to refugees in Malindza camp who are tion and resettlement – for those refugees from self-sufficient. In 2006, the programme will be the Great Lakes region who are unable to return reorientated along the lines of the South Africa due to unfavourable conditions in their home urban-based operation with a focus on self- countries. reliance activities and short-term assistance only for the most vulnerable people. Namibia continues to receive new refugees from various countries in small numbers. The main In 2005, Zimbabwe hosted 10,800 refugees, entry points for new arrivals into Namibia are in more than 1,500 in Tongogara camp and the the north-eastern regions of Kavango and Caprivi. majority in urban areas. In July 2005, a government Despite the closure of the UNHCR's office in operation called Operation Restore Order caused the Rundu, in 2005, UNHCR will directly monitor the destruction of shelters and shacks occupied by Southern Africa situation of the new arrivals together with the both refugees and nationals living in the urban authorities. areas and displaced thousands of refugees. An estimated 1,000 were relocated to Tongogara Gender mainstreaming in all sectors of protection camp, causing overcrowding and overstretching and assistance will be strengthened. Refugee the camp’s resources. WFP made an emergency women’s empowerment will be pursued and donation of three months’ food supply for an esti- women will be encouraged to take an active part mated 4,500 people. in camp management and in the distribution of food and other items. Sanitary materials will con- The main protection and operational goals for the tinue to be provided to all refugee women of Zimbabwe programme in 2006 will be as follows: reproductive age. Awareness campaigns on ensure the integrity of the institution of asylum in sexual and gender-based violence (SGBV) and Zimbabwe, promote voluntary repatriation of HIV/AIDS will also be undertaken for the benefit Rwandan refugees, strengthen identification of of groups with special needs like the elderly resettlement cases and self-reliance activities. and disabled.

Budget (USD)

Country Annual Programme Budget Supplementary Programme Total Budget2

Angola 23,568,521 497,500 24,066,021

Botswana 2,295,356 0 2,295,356

Malawi 2,581,443 0 2,581,443

Mozambique 2,847,320 0 2,847,320

Namibia 2,243,872 0 2,243,872

South Africa 5,181,084 0 5,181,084

Zambia 11,836,159 2,825,365 14,661,524

Zimbabwe 2,303,349 0 2,303,349

1 Regional activities 3,300,000 2,630,000 5,930,000

Total 56,157,104 5,952,865 62,109,969

1 Includes external relations and public awareness activities, local integration and resettlement of refugees, registration of persons of concerns in Southern Africa, scholarships for refugee students and strengthening emergency response capacity in Southern African countries. 2 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 416,700) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

203 UNHCR Global Appeal 2006 Angola

Main objectives

• Support the implementation of a comprehensive reintegration initiative in the main areas of return. • Facilitate the voluntary repa- triation of Angolan refugees from the Democratic Republic of the Congo (DRC), Zambia and Namibia and organize the voluntary repatriation of Angolan refugees from the Republic of the Congo (RoC) and South Africa. • Consolidate local integration for DRC refugees.

Planning figures Working environment Population Jan 2006 Dec 2006

Returnees1 361,940 371,940 Recent developments

DRC (refugees) 13,450 11,840 Some four million internally displaced persons Asylum-seekers 900 790 (IDPs) and more than 350,000 refugees are esti- Various refugees 460 460 mated to have returned home following the April 2002 peace accord between the Government of Total 376,766 385,028 Angola and the National Union for the Total

1 These figures reflect the number of returnees since the beginning of the Independence of Angola (UNITA). UNHCR and its operation in 2002. In 2006, the number of new arrivals is estimated at 10,000. partners have assisted the return of more than Total requirements: USD 24,066,021 200,000 refugees, with approximately 60 per cent returning in land convoys and airlifts through 17 repatriation corridors linking Angola with DRC, Zambia, Namibia, Botswana and RoC. The rest have returned on their own but received assistance from UNHCR upon their arrival in Angola. The last two corridors from DRC opened in October 2005, after two years of preparations to repair roads and clear landmines. The organized repatriation operation from the main asylum countries – Zambia, DRC and

UNHCR Global Appeal 2006 204 Namibia – is now drawing to a close, with the clo- elsewhere: on the more densely populated and sure of all corridors planned by December 2005. easily accessible highlands and greater Luanda Nevertheless, refugees returning spontaneously in area. The Government has very little capacity to 2006 will continue to be assisted upon their arrival manage reconstruction, and this weakness is in Angola. compounded by a severe paucity of effective Angolan NGOs and landmines that remain In 2005, the Government of Angola, supported by extremely prevalent. UNHCR, launched the Sustainable Reintegration Initiative (SRI) targeting key districts of return in While refugees started to return to Angola’s Moxico, Uige and Zaire provinces. Detailed oil-rich Cabinda enclave in 2005, it has not yet assessments have already been compiled in each been possible to organize movements to all parts district to highlight major gaps in social services, of the province due to the ongoing conflict Angola transport infrastructure and economic between the Angolan armed forces and rebels opportunities, and to identify key development calling for an independent state. priorities, in line with existing national and provincial development plans. These district For refugees in Angola, the most significant con- assessments were prepared in collaboration with straint to achieving a durable solution is the lack provincial and local authorities, traditional leaders, of a functioning mechanism to grant permanent UN agencies, NGOs, returnee representatives and residence or citizenship for the large majority of other key actors. Project planning for 2006 is the population who wish to settle permanently in under way, with the participation of the World the country. Bank and a number of UN development agencies. The United Nations has also made an inter-agency submission to the Human Security Trust Fund for Strategy development activities in a key district of return.

Legislative and presidential elections are planned Protection and solutions for the second half of 2006, representing a major step in the consolidation of peace in Angola. The During 2006, organized repatriation will be limited Government of Angola recently launched a to an estimated 5,000 refugees from RoC and nationwide documentation campaign to ensure South Africa, as well as a possible short extension that the entire electorate is able to go to the polls. of movements from DRC and Zambia due to logis- tical delays. Measures are in place to assist, upon arrival, an additional 5,000 refugees returning on Constraints their own. The estimate of 5,000 was intended to cover all those residing outside camps in DRC and Social and economic conditions are improving in Zambia, but registration currently under way in Angola but the situation remains extremely DRC and Zambia suggests that further numbers difficult, particularly in the isolated rural areas to may wish to return. This will require the allocation which most refugees have returned. More than of additional resources. three years after the cessation of hostilities, access to basic services remains severely restricted and The long-term success of the Angola voluntary mortality rates are among the highest in the world. repatriation operation rests on the comprehensive For example, the average life expectancy is 41 and sustained development of areas of return, a years, only 30 per cent of children are enrolled in complex task that clearly outstrips UNHCR’s man- school and 50 per cent of the population lacks a date and resources. UNHCR will focus its efforts in supply of clean drinking water. 2006 on building support for the SRI in areas of return. This will include assisting the Angolan In the areas of return, the restoration of peace has Government in the design and implementation of not undone the effects of 30 years of neglect and a sustainable reintegration strategy, building up war. Most development initiatives remain focused local government and NGO capacities in return

205 UNHCR Global Appeal 2006 Angola

Macumba Massoge was one of the 273 Angolan refugees who arrived home from the DRC in the first convoy that UNHCR has been able to organize along the re-opened road to this city in north-east Angola. UNHCR / M. Benevides

regions, and advocating for bilateral and multilateral infrastructure and the revitalization of economic agencies, as well as NGOs, to implement develop- opportunities (such as micro-credit, vocational ment programming consistent with the priorities training and crop production). identified for the key districts of return. UNHCR will actively pursue partnerships with At the same time, UNHCR will make a substantial other UN agencies, such as WHO, UNICEF and direct contribution towards the implementation FAO. Meanwhile, UNHCR and ILO plan to of projects assessed as critical to reintegration. continue the women’s economic empowerment This is intended to bridge transitional gaps as project which is now under way in four return government and development agency plans come communities, and expand the ILO Local on line. Initiatives will be focused on the Economic Development initiative in Angola. improvement of basic services (water, education and health), the rehabilitation of key transport

UNHCR Global Appeal 2006 206 will involve visits to border crossings through which spontaneous movements are taking place, the delivery of training on returnee rights to immi- gration officials, police and local authorities, and intervention in individual cases where rights are not respected. Using as a baseline the district assessments, most returnee monitoring work will be integrated into the regular assessment of conditions under the SRI.

Most of the 14,000 mainly DRC refugees in Angola have been in the country for more than 20 years. Angola UNHCR will facilitate repatriation for the small number wishing to return home. However, UNHCR’s focus in 2006 will be squarely on local integration, particularly on the establishment of a functioning mechanism for the granting of permanent residency for the vast majority of refugees who wish to remain permanently in Angola. At the same time, to facilitate economic integration, a revamped micro-credit initiative will be launched intheLuandaarea,wherenearlyhalfofallthe refugees are located. For those in border provinces, UNHCR will undertake to include refugees in the SRI.

In light of the ongoing revision of the Refugee Act, a key priority for the Office in 2006 will be to pro- vide input to ensure that both the Act and new domestic immigration legislation adhere to inter- national standards. At the same time, UNHCR will continue its support of the Comité de Reconhecimento do Direito de Asilo (COREDA, asylum committee) and immigration authorities to accelerate the pro- cessing of asylum applications, building on the significant advances already made in 2005. UNHCR will also maintain its training of authorities, especially in the border provinces, on national and international refugee law and procedures. A key aspect of reintegration is the availability of documentation, which in the case of Angola is a prerequisite for access to basic services and Assistance formal employment. Consequently, UNHCR will be working to ensure that areas of return, UNHCR’s network of reception centres is planned including the isolated communities in which many to be handed over to the Government of Angola in former refugees are living, are fully incorporated early 2006. Angolan refugees wishing to return into the government documentation campaign home will be given a voluntary repatriation form at currently under way in the country. the point of departure, as well as material assist- ance upon arrival at one of the reception centres As part of its core protection functions, UNHCR administered by the Government of Angola. will continue to monitor the return process. This Assistance will include a two-month food ration

207 UNHCR Global Appeal 2006 from WFP, plastic sheeting, a tool kit and con- Government to receive spontaneously returning struction materials. Except for returnees from RoC refugees. In light of the decentralization of and South Africa, transport will only be provided government decision-making to the provincial for those with specific needs. level, the two existing sub-offices will be maintained at their current staffing levels but with For refugees in Angola, assistance will be restricted a mandate to focus on reintegration, with to those assessed as the most vulnerable, as well repatriation playing only a relatively minor role. as recently arrived asylum-seekers. UNHCR’s work for refugees will be based in Luanda. Angola Desired impact Coordination While recognizing that reconstruction is a long-term process, UNHCR expects by the end of UNHCR’s operations will be implemented in close 2006 to see measurable improvements in social cooperation with the Ministry of Assistance and and economic conditions in the areas targeted Social Reintegration (MINARS) and other relevant under the Sustainable Reintegration Initiative. The national, provincial and local institutions. UNHCR Office expects to see areas of return integrated into will vigorously pursue partnerships with the the programming of government line ministries government, bilateral and multilateral development such as the Ministries of Agriculture, Planning agencies and NGOs, in support of the SRI. and Health and Education, as well as multilateral Moreover, UNHCR will actively participate in the institutions with a development mandate, such as UN Development Assistance Framework (UNDAF) UNICEF, FAO, ILO and the World Bank, and bilat- and Poverty Reduction Strategy forums, as well as eral aid agencies. the relevant provincial commissions, to ensure that returnee areas are fully incorporated into UNHCR expects that refugees will begin to receive national and provincial development plans. permanent residency or citizenship before the end of 2006. UNHCR also expects that the number Offices of refugees requiring assistance will further Luanda decrease as self-reliance becomes more prevalent. Camaxilo Cazombo Luau Organization and Luena implementation Lumbala N’guimbo Maquela do Zombo M’banza Congo Management structure Saurimo

In 2006, UNHCR will have a total of 92 staff: 25 international, including two JPOs, and 67 national staff. Overall management of all operations in Angola will lie with the UNHCR Representation in Luanda, which will have a key role at the national level in catalyzing the involvement of other actors in reintegration. UNHCR’s structure will be substantially revised to reflect the change in focus from repatriation to reintegration in 2006. Most importantly, field offices will be downsized to field units, administered by a national staff member with a mandate to monitor the implementation of the reintegration programme and assist the

UNHCR Global Appeal 2006 208 Partners Others FAO Government agencies UNHCHR Comité de reconhecimento do Direito do Asilo UNDP Ministry of Education UNICEF Ministry of Family Promotion and Women UNV Ministry of Health WFP Ministry of Social Assistance and Reintegration World Bank

NGOs Caritas

Development Workshop Angola Halo Trust Intersos Jesuit Refugee Services Lutheran World Federation Medair Mines Advisory Group Norwegian People’s Aid Oxfam

Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 6,211,077 60,000 6,271,077 coordination

Community services 1,162,866 20,000 1,182,866

Crop production 780,160 0 780,160

Domestic needs 110,000 0 110,000

Education 2,030,000 0 2,030,000

Health 2,367,950 0 2,367,950

Income generation 785,644 0 785,644

Legal assistance 1,263,280 40,000 1,303,280

Operational support (to 1,724,361 40,000 1,764,361 agencies)

Sanitation 250,000 0 250,000

Shelter/other 702,000 0 702,000 infrastructure

Transport/logistics 821,698 337,500 1,159,198

Total operations 19,211,036 497,500 19,708,536

Programme support 4,357,485 0 4,357,485

Total 23,568,521 497,500 24,066,021

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 34,825) that is recovered from each contribution received to meet indirect costs in UNHCR (headquarters and field).

209 UNHCR Global Appeal 2006 South Africa

Main objectives Planning figures Population Jan 2006 Dec 2006

• Support the Government of South Africa in Various 59,000 22,000 (asylum-seekers) clearing the backlog of pending asylum applications and ensuring a more rapid review DRC 23,000 23,000 of new claims. (asylum-seekers) • Build the capacity of the Government and civil DRC (refugees) 12,000 17,000 society to provide protection and assistance to Various (refugees) 10,300 15,000 refugees and asylum-seekers according to international minimum standards. Somalia 10,000 10,000 (asylum-seekers) • Facilitate self-reliance for refugees through promoting access to health, education and Somalia (refugees) 9,000 12,000 other government social services. Angola 6,000 3,000 • Facilitate durable solutions for refugees, (asylum-seekers) including voluntary repatriation and Angola (refugees) 5,700 5,000 resettlement. • Conduct a follow-up national refugee baseline Total 135,000 107,000 survey on the socio-economic and legal situ- ation of refugees and asylum-seekers. Total requirements: USD 5,181,084

UNHCR Global Appeal 2006 210 Working environment Constraints The growing backlog of asylum claims means that Recent developments it takes much longer for those with a genuine refugee claim to find protection and durable solutions in a The refugee population continues to grow slowly in timely manner. As many government services are South Africa with just over 28,000 recognized available only to recognized refugees, asylum- refugees in July 2005, primarily from the Great Lakes seekers are relatively unlikely to attain self-reliance. region, Somalia and Angola. The refugee population This in turn has major resource implications for is concentrated in the main urban centres of South UNHCR and its partners, who are forced to fill the Africa, namely Johannesburg, Pretoria, Durban and gap in the interim. Moreover, in spite of recent Cape Town. Asylum-seekers continue to arrive on a advances, more than half of all refugees remain daily basis in South Africa, with approximately without documentation, and are therefore unable Southern Africa 35,000 applications since January 2004. The backlog to access meaningful employment or social of more than 117,000 pending asylum claims in July services. 2005 represents the most substantial asylum- related challenge for South Africa. The growing These challenges are compounded by the difficult backlog is caused primarily by the large number of employment situation in South Africa and economic migrants who abuse the asylum widespread xenophobia towards refugees, in the procedure to legalize their stay, coupled with business community, which tends to favour South inadequate processing capacity at the severely African job applicants, and among local author- under-resourced responsible government body, the ities, who often block the permits required for Department of Home Affairs (DHA). establishing a small business. In recognition of the latter problem, DHA is planning to establish DHA is now implementing an ambitious plan to an anti-xenophobia unit by the end of 2005. resolve the backlog and ensure that asylum claims are processed in a timely manner, which will bring Despite reduced funding, a professionalization of down the number of asylum-seekers, while increasing NGO services has allowed for a tripling of the the number of refugees. As part of a reorganization number of assisted refugees and asylum-seekers of its immigration services, the Government since 2003. However, available UNHCR funding established a Directorate for Refugees under the remains far too modest to meet all the needs, newly-created National Immigration Branch (NIB) many of them very acute, of the beneficiary popu- of DHA. NIB subsequently overhauled the lation. The Office is therefore obliged to maintain management of its refugee reception centres and extremely restrictive criteria in the provision of promulgated new immigration regulations. At the assistance. The increasing impact of HIV/AIDS on same time, DHA has acquired a new refugee refugees and asylum-seekers further compounds registration system which it is using to build up a the situation. refugee database. Early results of DHA’s efforts are positive, with 630 applications granted refugee status in the first two months of 2005, compared Strategy with 1,125 for all of 2004.

Recently, South Africa has started to recognize Protection and solutions refugee rights in areas such as health, education and social welfare, following sustained advocacy by UNHCR will continue to provide policy advice, UNHCR and its partners. While refugees now have training and material assistance in support of improved access to local health services, including DHA’s effort to clear the backlog of pending cases HIV/AIDS-related assistance, and primary and review new claims in a more timely manner. education, access to many other government Of particular importance will be training on inter- services, particularly social grants for foster children national and national refugee law, as DHA recruits and the disabled, remains elusive. a large number of new eligibility and immigration

211 UNHCR Global Appeal 2006 ot Africa South

A Rwandan refugee who worked as a guard in Durban for several years and was awarded a DAFI scholarship to study medicine. She passed her exams suma cum laude and is now working as a "Sister" at Durban City Hospital. UNHCR / P. Rulashe

officers. With the development of a DHA refugee Government, UNHCR and its other partners in database, the Office will work closely with the identifying progress, as well as setting operational statistician newly appointed by DHA to ensure a priorities to meet remaining gaps. clear and consistent approach to refugee and asylum-seeker statistics. The repatriation of Rwandan and Angolan refugees will be promoted in 2006 within the framework of The Office will continue its support of legal coun- the respective tripartite agreements. However, selling and advocacy by its NGO partners to interest among both nationalities is expected to be ensure that refugees and asylum-seekers have full limited. Resettlement will continue to be pursued access to asylum procedures and social services. on a case-by-case basis. To combat xenophobia, UNHCR will work in close cooperation with the new anti-xenophobia unit in UNHCR will also undertake capacity building of its DHA. implementing partners on programme and pro- tection issues to ensure a consistent and high UNHCR will conduct a follow-up to the 2003 quality delivery of services to refugees and National Refugee Baseline Survey on the asylum-seekers. socio-economic and legal situation of refugees and asylum-seekers. These data will assist the

UNHCR Global Appeal 2006 212 Assistance Rwanda, Burundi and Sudan, and possibly to other countries as well. Resettlement is also UNHCR will continue to focus on advocating for expected to increase with the deployment of a the coverage of refugees in existing government specialist staff member to Pretoria. programmes. UNHCR is discussing with the Government the reactivation of the government- sponsored Refugee Relief Fund, aimed specifically Organization and at the most vulnerable asylum-seekers, who are implementation unable to access the regular government programmes until their asylum claim is processed. Management structure For those needy refugees and asylum-seekers who cannot access government services, UNHCR For 2006, UNHCR will have a total of 32 staff: 13 Southern Africa will deliver critical assistance through its network international, including two JPOs, and 19 national of national NGO partners. Key activities include staff. English language and vocational training, job placement, small business loans, grants for pri- The Pretoria office is directly responsible for mary school education and home-based care for administering the Swaziland country programme, the most infirm. In 2006, UNHCR will expand its provides support to the UNHCR offices in pilot initiative to support refugee NGOs in delivering Botswana and Namibia and cooperates with UNDP services to their communities. in the provision of protection and assistance to refugees and asylum-seekers in the Indian Ocean Desired impact Island States of Madagascar and Comoros. The office also gives administrative assistance to five regional technical posts (registration, HIV/AIDS, In 2006, UNHCR expects that there will be a dra- public information, refugee women and children matic decrease in the number of pending asylum and procurement). applications, which will in turn enable refugees to find protection and durable solutions more quickly. It is also anticipated that by the end of Coordination 2006 all refugees will receive identification cards, thereby facilitating access to employment, public The 2006 priorities for the refugee programme in services and application for permanent residence South Africa have been identified in a series of in South Africa. Moreover, it is assumed that the participatory strategic planning workshops with refugee and asylum-seeker database will be fully all relevant stakeholders, including implementing operational by the end of the year. partners, representatives of the Government, the Red Cross, academic institutions, churches and During the course of the year, UNHCR foresees refugee organizations. All these parties will be that the Government will open a number of addi- involved in one form or another in the implemen- tional public services to refugees, and will tation of the 2006 programme. re-establish the Refugee Relief Fund to provide rapid assistance to asylum-seekers. These devel- UNHCR will continue to fully participate in the opments will be important markers on the path development of the 2006-2011 UN Development towards UNHCR’s long-term objective of delivery Assistance Framework (UNDAF) and ensure the of all assistance to refugees by the South African consistency of its programming with UNDAF. authorities. UNHCR will also maintain its active role in the UN Thematic Group on HIV/AIDS and the UN Regional Repatriation is predicted to increase slightly in Inter-Agency Coordination and Support Office 2006 with the consolidation of peace in a number (RIACSO) in Johannesburg. of countries in Africa. Movements are expected to Angola, the Democratic Republic of the Congo,

213 UNHCR Global Appeal 2006 Offices Budget (USD)

Pretoria Activities and services Annual Programme Budget

Protection, monitoring 744,036 Partners and coordination Transport / logistics 1,000,000 Government agencies Department of Education Total operations 1,744,036 otenAfrica Southern Department of Health Programme support 3,437,048 Department of Home Affairs Department of Social Development Total 5,181,084 Ministry of Home Affairs (Swaziland)

NGOs Bonne Espérance Cape Town Refugee Centre Caritas (Swaziland) Jesuit Refugee Services Lawyers for Human Rights Mennonite Central Committee National Consortium for Refugee Affairs

Others IOM UN Regional Inter-Agency Coordination and Support Office UN Thematic Group on HIV/AIDS UNDP (Madagascar and Comoros) University of Cape Town, Legal Aid Clinic

UNHCR Global Appeal 2006 214 Zambia

Main objectives Planning figures Population Jan 2006 Dec 2006

• Assist the voluntary repatriation of Angolan DRC (refugees) 70,800 64,700 refugees. Angola 48,800 18,800 • Work with the Government of Zambia to facili- (refugees) tate local integration of those Angolan refugees Various 13,100 13,200 who do not opt for voluntary repatriation in (refugees) 2006, creating conditions in Zambia’s refugee- Rwanda 5,750 5,560 hosting areas that favour socio-economic (refugees) development for both refugees and locals. Asylum-seekers 360 300 • Continue to explore durable solutions, such as local integration and voluntary repatriation, for Total 138,810 102,560 Rwandan refugees. • Pursue voluntary repatriation to the safe areas Total requirements: USD 14,661,524 of Burundi and the Democratic Republic of the Congo (DRC). • Pursue resettlement as a durable solution for a limited number of refugees.

215 UNHCR Global Appeal 2006 provide international protection and assistance Working environment to Congolese refugees from this area. Rwandan and Burundian refugees are often reluctant to Recent developments return home, citing unstable security conditions and lack of land in their densely populated In 2005, UNHCR continued to assist the voluntary countries. repatriation of Angolan refugees in Zambia. By October 2005, more than 20,000 Angolan refugees had repatriated, one third of whom spontaneously. Strategy Zambia This repatriation was accelerated by the opening of the Mongu airport, which allowed for air transport Protection and solutions to remote areas of Angola. The Government of Angola has indicated that organized repatriation UNHCR provides international protection and will end on 31 December 2005. The situation will assistance to some 102,000 refugees mainly be reviewed in January 2006 to assess if any originating from Angola and the Great Lakes Angolan refugees in Zambia wishing to repatriate region. The refugees reside in five camps or settle- still remain. ments and urban areas (mainly in Lusaka). According to the Government of Zambia, there are Despite the formation of a Government of also a large number of spontaneously settled National Unity in the DRC, security remains pre- refugees, of whom 65 per cent are Angolans. In carious and Congolese refugees have continued 2006, UNHCR will focus on finding durable solutions to seek asylum in Zambia. In the case of Rwandan for the refugee population. The option to return refugees, UNHCR and the Government of Zambia will remain open for Angolan refugees who stay in have continued to promote repatriation through Zambia and those who decide to repatriate will be awareness-raising campaigns and “go and see” assisted to do so. At the same time, UNHCR will visits. work with the Government of Zambia to facilitate local integration of those refugees who do not Constraints wish to return. As the number of Angolans in camps diminishes, UNHCR will push for better The main constraint for urban refugees and asylum- access to services provided by the Government of seekers in Lusaka is the lack of legal residency Zambia. The consolidation of camps will con- documents. Those who have received legal status tinue, with Nangweshi camp scheduled for closure are usually self-reliant or have been allowed to by early 2006 and the remaining population stay for medical or other special protection reasons. moved to Mayukwayukwa settlement where Another problem for urban, camp-based and access to land and services favour self-reliance. settlement-based refugees is their inability, due to financial constraints, to access advanced medical The situation in the Great Lakes region is more treatment which only exists in South Africa or other complex. For Burundian and Congolese refugees, neighbouring countries with more specialized the security situation in the areas of origin is medical facilities. expected to improve gradually, enabling voluntary repatriation in 2006. For Rwandan refugees In 2006, a gradual improvement is expected in the UNHCR will continue the search for alternative security conditions in DRC’s Katanga Province. solutions, such as local integration. Resettlement This justifies a planning figure of 20,000 voluntary to third countries is a realistic durable solution returns to the DRC, but difficulty of access to only for a limited number of refugees. areas of return, due to remoteness and poor infra- structure, will be the main challenge during this Through the Zambia Initiative, UNHCR aims to repatriation operation. The Kivu area in the DRC is hasten socio-economic development for both another challenge and unless relative stability refugees and locals in Zambia’s refugee-hosting prevails, Zambia will continue to receive and areas. This will facilitate local integration of those

UNHCR Global Appeal 2006 216 Zambia

A Congolese refugee grinding grain in Kala camp, Kawambwa. UNHCR / N. Behring

217 UNHCR Global Appeal 2006 refugees who cannot or do not wish to repatriate to their countries of origin. Activities include the Organization and promotion of irrigation to upgrade farming practices implementation and generate more reliable income. The initiative is currently benefiting 456,000 beneficiaries, of whom Management structure 77,300 are camp-based and spontaneous refugees settled in the Western Province of Zambia. In 2006, this will be extended to the North-Western In 2006, UNHCR will have 97 staff: 20 international Province and is expected to benefit some 70,000 staff, one JPO, 13 UNVs and 63 national staff.

Zambia people of whom 11,500 are refugees in the Meheba refugee settlement. Coordination

Assistance UNHCR will coordinate with governmental and non-governmental partners, as well as with other In 2006, assistance will focus on self-reliance UN agencies and the donor community in Zambia. activities for refugees and integration into local host communities, with a special emphasis on Offices groups with special needs. To achieve this objec- Lusaka tive, the Office will continue to strengthen the role Kawambwa of the Government, NGOs and self-help groups Mongu through training. In addition, UNHCR will facilitate Kaoma environmentally beneficial income-generating Mporokoso activities and the provision of water, sanitation, Nangweshi (to be closed in early 2006) health care and education. Solwezi

Desired impact

In 2006, UNHCR will ensure that the Government of Zambia and the humanitarian actors in the field assume their responsibility for providing international protection and assistance for asylum- seekers and refugees. Continued provision of humanitarian assistance will allow UNHCR to live up to its obligation to maintain minimum stan- dards in the refugee camps and settlements. Increased participation by refugee women and opportunities for education and training will better equip the refugee communities to become self-reliant. Effective environmental management and awareness raising will mitigate damage in and around the refugee camps and prevent further environmental degradation. The integration of refugees into local host communities will help to reduce poverty through increased food produc- tion and improve access to school and health ser- vices, coupled with environmental rehabilitation. When it is completed, the Zambia Initiative will contribute to greater self-reliance and improved market access for a larger number of both refugees and locals.

UNHCR Global Appeal 2006 218 Partners Others FAO Government agencies IFRC Department of Water Affairs IOM Ministry of Health UN Ministry of Home Affairs UNESCO UNFPA NGOs UNICEF Africa Aktion Hilfe WFP Africa Humanitarian Action Africare

Christian Outreach Relief and Development Zambia Hodi Lutheran World Federation World Vision International Young Men’s Christian Association Zambia Red Cross Society

Budget (USD)

Activities and services Annual Programme Budget Supplementary Programme Total Budget1

Protection, monitoring and 3,812,818 1,035,365 4,848,183 coordination

Community services 272,902 30,000 302,902

Crop production 146,955 0 146,955

Domestic needs 309,075 60,000 369,075

Education 287,051 20,000 307,051

Forestry 73,632 60,000 133,632

Health 670,464 0 670,464

Income generation 17,094 0 17,094

Legal assistance 601,837 40,000 641,837

Operational support (to 1,752,248 380,000 2,132,248 agencies)

Sanitation 46,317 0 46,317

Shelter/other 226,293 0 226,293 infrastructure

Transport/logistics 1,176,112 1,200,000 2,376,112

Water 120,020 0 120,020

Total operations 9,512,818 2,825,365 12,338,183

Programme support 2,323,341 0 2,323,341

Total 11,836,159 2,825,365 14,661,524

1 The figures refer to the supplementary programme for the repatriation and reintegration of Congolese (DRC) refugees. Note: The Supplementary Programme Budget does not include a 7% support cost (USD 197,776) that is recovered from each contribution received to meet indirect costs in UNHCR (field and headquarters).

219 UNHCR Global Appeal 2006 CASWANAME North Africa The Middle East South-West Asia Central Asia

NHCR will remain focused on seeking durable Usolutions for refugees in protracted situations (Global Strategic Objectives 2 and 3). In 2006, in parallel with ongoing return and reintegration efforts, UNHCR will work with governments in the region to open opportunities for some groups of refugees who cannot return home or be resettled, to remain in the countries of asylum for a longer period under a different framework that ensures their protection. In some countries, renewable temporary arrangements may be more appropriate while, in others, naturalization is a realistic option. UNHCR will also strive to enlarge the pro- tection space in the region by supporting national asylum structures, working with governments to ensure the proper management of the asylum dimension in mixed migratory flows, as well as increasing its capacity to provide protection in countries where asylum structures do not yet exist (Global Strategic Objective 1). North Africa

Recent developments

he dialogue UNHCR initiated in 2004 with TNorth African States and the European Union on the issue of illegal smuggling of people across the Mediterranean into Europe has resulted in a European Union-funded framework of assistance to strengthen the asylum institutions in North Africa. In 2005, UNHCR has worked on capacity building of State authorities and non-governmental entities to deal with asylum issues. The main objec- tive of such efforts is to identify genuine asylum- seekers and refugees amongst the populations that transit through North Africa en route for Europe, while addressing the legitimate concerns of gov- ernments to manage their borders. Progress is hampered in some countries by the refusal to allow UNHCR to gain access to migrant sites.

Following the success of the pilot phase of the Algeria programme of Confidence Building Measures (CBMs) for Saharawi refugees in 2004, UNHCR, in Libyan Arab Jamahiriya close cooperation with the Office of the Special Mauritania Representative of the Secretary-General and MINURSO, submitted a Plan of Action for the con- Morocco tinuation of the programme in 2005. The Tunisia programme facilitates person-to-person contact between the Saharawi refugees living in camps in Western Sahara the Tindouf Governorate in Algeria and their communities of origin in Western Sahara. It entails project will be used to determine how best to North Africa the exchange of family visits, the organization of influence the management of the migration- seminars involving Saharawis from both sides and asylum nexus, ensuring respect for key protection telephone connections. The resumption of the principles, and to stimulate closer cooperation CBMs has been temporarily suspended pending between the European Union, the countries of final approval of the Plan of Action for 2005, North Africa and other partners. although the telephone service remains operational. In pursuit of these objectives, UNHCR will raise awareness and develop partnerships through As of September 2005, UNHCR in coordination regional institutions such as the League of Arab with WFP, has reoriented the humanitarian assis- States, the Organization of the Islamic Conference, tance programme to the most vulnerable the Arab Parliamentarians’ Union and the Arab Saharawi refugees in Tindouf estimated at 90,000 Lawyer's Union. people (according to the Government of Algeria, there are some 165,000 Saharawi refugees in The Office will also be actively engaged in the Tindouf camps). global launch of the age, gender and diversity mainstreaming strategy. A number of training ini- tiatives will be organized to this effect in the region. Individual country assessments will be Strategic objectives conducted to detect potential weaknesses and introduce corrective measures as required. In 2006, UNHCR aims to enhance the institution UNHCR will strive to mainstream gender equality of asylum in North Africa through the promotion in all aspects of protection and assistance, as well of national refugee legislation, advocating for the as in the implementation of durable solutions. establishment of national refugee determination The Office will regularly monitor women’s access procedures, and through the reinforcement of to resources and services. UNHCR will increase both governmental and non-governmental struc- the number of training sessions and workshops tures dealing with refugees and asylum-seekers. for its staff and partners on gender, age and The outcome of the European Union-funded diversity issues.

223 UNHCR Global Report 2006 ot Africa North

Western Sahara. UNHCR-sponsored home visits allow Saharawi refugees living in camps near Tindouf in western Algeria to visit family members: many have not seen their family for more than 30 years. UNHCR / S. Hopper

psychological pressures generated by extended Operations exile in a very difficult environment. UNHCR will also continue to support the UN efforts to find a In Algeria, UNHCR will continue to provide political solution to the Western Sahara issue and international protection and multisectoral assis- create conditions conducive to the voluntary tance to the 90,000 most vulnerable refugees in repatriation of Saharawi refugees. An adequate the camps in Tindouf. A special focus will be put level of preparedness will be maintained in case on children and young people to alleviate the voluntary repatriation becomes possible.

UNHCR Global Appeal 2006 224 Some 4,000 urban refugees living in the vicinity determination procedure and recommend deci- of Algiers, most of whom are Palestinian, are sions to the Ministry of the Interior. The Office will well integrated into Algerian society. Some 30 continue to look for durable solutions for refugees vulnerable refugees will continue to receive regu- assisted by UNHCR in Mauritania. Nearly 500 lar assistance from UNHCR. vulnerable urban refugees and some 200 new asylum-seekers will be registered and their rights The Office remains concerned about the flow of monitored. Most vulnerable beneficiaries will be migrants and asylum-seekers transiting through provided with basic humanitarian assistance, in Algeria. UNHCR will research and analyse the situ- cooperation with one international and several ation and actively promote international refugee national NGO partners. law principles through the provision of technical support to Government institutions and other In Morocco, UNHCR will strengthen its own partners. protection capacity, in order to undertake the reception, registration and refugee status deter- In the Libyan Arab Jamahiriya (Libya), mination of asylum-seekers in a timely manner. In UNHCR will continue its efforts to promote the 2006, the Office will undertake skills-training pro- conclusion of a Memorandum of Understanding jects to facilitate the socio-economic integration with the Libyan Government in respect of its of refugees, while continuing to identify durable presence and activities in the country. It will also solutions for them. The Office will also intensify continue to address the issue of the growing its capacity-building activities by supporting mixed flows of migrants and asylum-seekers. legal assistance activities of non-governmental

The Office will intensify its lobbying for Libya to agencies and raising awareness among authori- North Africa sign the 1951 Refugee Convention and the 1967 ties through the organization of workshops on Protocol and to develop and adopt national legis- international refugee law. lation on asylum-seekers and refugees. An impor- tant part of UNHCR’s programme in Libya will In Tunisia, UNHCR will continue to advocate for involve local capacity building geared towards the the respect of the rights of refugees and asylum- Government and non-governmental partners, as seekers and will further improve its protection well as refugee committees. The Office will capacity. In Tunis, the Office assists some 100 endeavour to bring about closer cooperation refugees originating mainly from Algeria, Burundi among all relevant parties. and Iraq. The Office will look into possible durable solutions for these persons while protecting them Additionally, the Office will continue to provide against refoulement and providing documentation protection and humanitarian assistance to some as well as basic financial and medical assistance. 12,000 refugees who are registered with UNHCR, with a special focus on self-reliance activities such Budget (USD) as micro-credit initiatives, vocational training, job Country Annual Programme placements and other income-generating Budget activities. Algeria 4,889,412

UNHCR has welcomed the adoption by Mauritania, Libyan Arab Jamahiriya 1,096,200 in March 2005, of a refugee decree in accordance Mauritania 605,017 with its obligations under the 1951 Refugee Convention. The Office will support the authorities Morocco 535,609 with regard to the implementation of this decree. Tunisia 358,859 In consultation with UNHCR, the newly estab- Total 7,485,097 lished inter-ministerial Commission consultative nationale will launch a national refugee status

225 UNHCR Global Report 2006 The Middle East

Recent developments

our situations shape UNHCR’s programme in Fthe Middle East: the unabated flow of asylum- seekers and migrants from the Horn of Africa to Yemen; the Sudan situation and its impact on Egypt, the Syrian Arab Republic (Syria) and Jordan; the Iraq situation and its impact on surrounding Bahrain countries hosting Iraqis; and the impact on host countries of the exceptionally protracted situation Egypt of Palestinian refugees. Iraq The Middle East has been a generous host to Israel refugees for decades, yet national security con- Jordan cerns in the region are testing States’ tradition- ally tolerant attitude towards refugees and Kuwait asylum-seekers. At the same time, there has been Lebanon some reluctance on the part of resettlement countries, since the events of 11 September 2001, Oman to accept refugees for resettlement from the Middle Qatar East.

Saudi Arabia Voluntary repatriation is a limited option for the Syrian Arab Republic major refugee groups in the Middle East until a political solution is achieved in the countries of United Arab Emirates origin, involving sufficient stability to allow for a Yemen secure and dignified return. The Middle East

Meanwhile, the Middle East is continuing to other persons of concern in the region. Where receive more asylum-seekers. Since the 2003 Iraq States have acceded to the 1951 Refugee Con- war, Jordan, Lebanon and Syria have received a vention and its 1967 Protocol, efforts now need to steady flow of Iraqis who are currently covered be directed at improving the practical implemen- under the temporary protection regime. Week by tation of the Convention, through the establish- week, as more Somali asylum-seekers and ment of national legislation and structures to migrants risk the dangerous sea crossing to manage refugee and asylum issues. UNHCR will Yemen at the hands of people smugglers, many continue to advocate for other States to accede deaths at sea go unreported. Yemen continues to to the 1951 Refugee Convention and Protocol. accept generously approximately 1,000 Somali UNHCR will also gradually strengthen its own pro- and Ethiopian asylum-seekers per month. tection capacity in the region to better support Governments and civil society institutions. UNHCR will seek to address the refugee situation in the Middle East with an increase in funding for Working in close cooperation with the United assistance programmes in Yemen to meet the Nations Relief and Works Agency (UNRWA) and all needs of the most vulnerable, and an increase in concerned stakeholders in the Middle East, protection staffing in the region to bolster internal UNHCR will strive to further address the protection and external protection work, as well as capacity- problems faced by Palestinians living outside building efforts. UNRWA’s areas of operations.

Progress towards political solutions will in time Strategic objectives open up humanitarian solutions for refugees in the Middle East. UNHCR will support durable solutions for Somali refugees in Yemen through UNHCR will support States to strengthen the pro- the framework of the Comprehensive Plan of tection space for refugees, asylum-seekers and Action. The Office will continue to support the

227 UNHCR Global Appeal 2006 TheMiddleEast

Jordan: A UNHCR community services staff member with an Iraqi family living in Ruwaished camp. UNHCR / M. Cierna

reintegration of Iraqis who have chosen to return problem preclude substantive discussion of such to Iraq through the establishment of community- issues. based projects in returnee areas, recognizing that obstacles to return are significant and that some Iraqis may be returning to a situation of further Operations internal displacement. Legal work on resolving the status of stateless persons, documentation and property issues, will support sustainable solutions It is 25 years since Egypt ratified the 1951 Refugee for returnees and displaced persons in Iraq and Convention and its 1967 Protocol. While its obser- the region. vance of the principle of non-refoulement has been admirable over the years, Egypt has maintained UNHCR cannot achieve results alone; the Office important reservations to the Convention and will work to strengthen complementary partner- these affect the situation of refugees (personal ships with governmental and established civil status, access to primary education, public relief society partners such as the League of Arab and assistance, social security and labour legis- States and the Organization of the Islamic lation). UNHCR will continue working with the Conference, as well as reaching out to new part- Government of Egypt towards withdrawing the ners such as universities and important public fig- reservations and adopting domestic refugee leg- ures. There will be a renewed focus on public islation and structures to support national refugee information and external relations activities to status determination in accordance with its raise awareness amongst governments and civil obligations as a signatory to the 1951 Refugee society institutions on refugee issues and the role Convention. It has been over 50 years since of UNHCR. It is a challenge in the subregion to try UNHCR established an office in Egypt, but to put asylum issues firmly on the agenda when UNHCR still registers asylum-seekers and conducts national security concerns and the Palestinian refugee status determination, and would like to

UNHCR Global Appeal 2006 228 encourage and support the authorities to gradu- refugees will be in need of resettlement). UNHCR ally take over these activities. Egypt is host to is planning self-reliance programmes for urban around 70,000 Palestinian refugees and over refugees (these are designed to benefit host com- 20,000 refugees from Sudan and Somalia, mainly munities so as to ease tensions). Activities for in urban areas. UNHCR will continue to provide camp-based refugees are also planned, to ease assistance only to the most vulnerable refugees, the effects of confinement, although opportuni- including refugees with HIV/AIDS, targeting assis- ties for self-reliance are limited. A regional tance through the new UNHCR multifunctional approach is required to achieve comprehensive gender and age teams established in 2005 in partner- solutions for Iraqis in Jordan and other countries ship with NGOs. The main beneficiaries of UNHCR’s in the region as they face common obstacles to resettlement programme will remain refugee return. A comprehensive approach is also women-at-risk, survivors of torture, disabled or required for Iranian Kurdish refugees who for traumatized refugees for whom treatment is unavail- many years were in Al Tash camp in central Iraq able in Egypt, and separated children for whom but fled during and after the war due to insecu- resettlement is found to be in their best interest. In rity. Some of the group are now in Ruwayshed view of political progress in Sudan, refugee status camp in Jordan. UNHCR will continue working determination for Sudanese asylum-seekers has with the Government of Jordan in 2006 to pro- been suspended, although all Sudanese asylum- mote accession to the 1951 Refugee Convention seekers are provided with identity documentation and the 1967 Protocol, exploring the possibility of with an entitlement to apply for a six-month support for the creation of a national registration renewable residence permit. UNHCR will support system for refugees, and supporting relevant the voluntary repatriation of refugees from south- ministries’ practical efforts to protect and assist ern Sudan. refugees and other persons of concern in Jordan. The Middle East

UNHCR has an Honorary Representation in Israel The law in Lebanon does not ignore refugee to support the Government with the registration issues but it still lacks a legal definition of a refugee. and status determination of asylum-seekers in UNHCR will continue to carry out activities to the absence of national refugee legislation. The enhance awareness of international refugee law Office will explore the possibility, through train- and asylum procedures among the authorities and ing sessions and workshops, of involving the civil society institutions. Lebanon is host to over authorities in the practical application of asylum 400,000 Palestinian refugees (covered by the man- procedures, presently dealt with by UNHCR. It will date of UNRWA), and efforts to encourage Lebanon also explore areas of legislation to enhance the to accede to the 1951 Refugee Convention are protection of asylum-seekers and refugees (such constrained by this situation. Lebanon does not as asylum-seeker visas, border procedures, and wish to be regarded as a country of asylum nor to amendments to social security legislation) in the promote the integration of refugees in view of absence of fully-fledged national refugee the implications for the Palestinian situation. legislation. Lebanon is also host to Iraqi refugees covered by the temporary protection regime and to Sudanese Jordan has demonstrated a high level of toler- refugees. Iraqi and Sudanese asylum-seekers ance towards Iraqi refugees and migrants on its registered with UNHCR reside mostly in urban territory, and currently hosts some 250,000 Iraqis, areas, have no right to work and are largely most of whom arrived before the war in 2003 and dependent on the Office’s assistance. For most are now covered by the temporary protection regime. refugees in Lebanon, local integration is not an Jordan is also host to over 1.7 million Palestinian option and until conditions improve in Iraq and refugees (covered by the mandate of UNRWA). allow for voluntary repatriation, resettlement is Most Iraqis in Jordan are in urban areas, putting the most realistic durable solution. pressure on social infrastructure, yet return is a limited option for many, and opportunities for Neither Saudi Arabia, Bahrain, Kuwait, Qatar, resettlement are also limited (in 2006, it is Oman nor the United Arab Emirates are signa- expected that 1,700 Iraqi and 185 non-Iraqi tories to the 1951 Refugee Convention or its 1967

229 UNHCR Global Appeal 2006 Protocol. UNHCR will therefore continue to work Convention, following positive signals in 2005. on strengthening the Gulf countries’ adherence to There are an estimated several hundred thousand practical refugee law principles. There has been Iraqis in Syria, presently covered by the temporary increasing understanding of international refugee protection regime; many of them arrived in Syria law principles among government counterparts from 2004 onwards due to the deteriorating and NGO partners, which has resulted in conditions in Iraq. Syria is also host to over improved access for UNHCR to asylum-seekers in 420,000 Palestinian refugees (covered under the the Gulf States. UNHCR will continue awareness- mandate of UNRWA) as well as asylum-seekers raising work with civil society partners and from Sudan, Somalia, Afghanistan and some North through the media. In Saudi Arabia UNHCR has African countries. More restrictive immigration invited the authorities to consider alternative resi- regulations have been introduced and UNHCR will dence arrangements for the 440 Iraqi refugees seek to ensure that asylum-seekers are not nega- who remain in Rafha camp after the repatriation of tively affected. Legal aid is provided to asylum- 4,800 refugees between 2002 and 2003. The pres- seekers and refugees in detention and assistance is ence of refugees is temporarily tolerated pending provided to vulnerable groups of asylum-seekers a solution, and there are limited opportunities for who approach UNHCR, for example with housing local integration. Saudi Arabia is already host to for single women and income-generating activities over 240,000 Palestinian refugees, who fall out- for female-headed households. TheMiddleEast side UNRWA’s remit. Kuwait and Saudi Arabia are also host to large numbers of stateless Bedouins Budget (USD) whose situation is precarious due to their lack of Country Annual Programme legal status. Neither Saudi Arabia nor the Gulf Budget States are party to the 1954 Convention relating to the Status of Stateless Persons or the 1961 Egypt 4,569,179 Convention on the Reduction of Statelessness. Iraq 2,151,057

Israel 93,200 The Syrian Arab Republic is not a signatory to the 1951 Refugee Convention or the 1967 Protocol Jordan 2,098,883 and does not officially recognize refugees under Lebanon 3,204,282 UNHCR’s mandate. Yet the authorities do gener- Saudi Arabia 2,348,944 ally respect attestations issued to asylum-seekers registered with UNHCR and show considerable Syrian Arab Republic 1,885,381 tolerance towards persons of concern to the Yemen 5,168,295 Office. UNHCR will continue awareness-raising Total 21,519,221 and capacity-building activities with a view to encouraging Syria to accede to the 1951 Refugee

UNHCR Global Appeal 2006 230 Iraq

Main objectives • Provide protection and assistance to refugees in Iraq and pursue durable solutions through registration, refugee status determination and • Support building institutional and legal capac- assessment of potential solutions for different ity of governmental and local institutions, persons of concern to UNHCR. particularly the Ministry of Displacement and • Guided by the UN Strategic Plan on Assistance Migration (MoDM), the Iraqi Property Claims and Durable Solutions for internally displaced Commission and local NGOs, through manage- persons (IDPs) in Iraq, coordinate orderly return ment and technical programmes tailored to and reintegration programmes where condi- enhance protection and assistance of refugees tions permit. Identify alternative solutions for and other persons of concern. those unable or unwilling to return. • Coordinate and facilitate, where feasible, the • Strengthen the authorities’ emergency pre- voluntary, safe and orderly return of Iraqi refu- paredness and response capacity. gees and asylum-seekers, advising on conditions in areas of return and addressing UNHCR’s requirements for the Iraq situation are obstacles to return. Contribute to sustainable currently under review. It is envisaged that the reintegration through a community-based total requirements for the 2006 Iraq Supplemen- approach. tary Budget will not exceed the 2005 level of USD • Promote the creation of a national protection 42 million, including operations to assist Iraqis in regime in accordance with international law, Jordan, Syria, Lebanon, Turkey and the Islamic including accession to the 1951 Convention Republic of Iran. Relating to the Status of Refugees and its 1967 Protocol.

231 UNHCR Global Appeal 2006 In the absence of accurate figures, it is estimated As in previous years, the experience of Iraqi that there are approximately one million Iraqis in returnees highlights the central importance of the region (including more than 90,000 registered housing and property issues to sustainable return. refugees) in addition to more than 300,000 The Iraqi Government has approved the extension refugees and persons under complementary pro- to the end of June 2007 of the deadline for sub- tection further afield. In Iraq, there are some 1.2 mission of property claims to the Iraqi Property million IDPs, more than 400,000 IDP returnees, Claims Commission. This is a major step, which some 250,000 returnees from abroad and 46,000 will now allow those who were not previously refugees (Palestinian, Turkish, Iranian and Syrian). aware of their options to seek redress for losses. The number of stateless persons is thought to be anywhere between half a million and two million. In order to improve the legal framework relative to refugees and other displaced populations, UNHCR has started to assist the MoDM to review Working environment its mandate and to draft the Law on the Ministry of Migration and Refugee Affairs. The Transitional National Assembly has presented the draft Law to Recent developments the State Advisory Council for consideration.

Although 2005 saw several significant political developments, such as National Assembly elec- Constraints Iraq tions, the formation of a new Transitional Govern- ment and the drafting of a constitution, as The security situation continues to hinder opera- outlined in the Transitional Administrative Law, tional access to populations of concern in Iraq. the situation remains precarious, with the risk that UNHCR will, however, maintain remote manage- further instability could swiftly cause renewed ment, whereby its national staff and NGO imple- internal and external displacement. menting partners are able to keep most essential activities up and running for populations of Despite ongoing efforts, basic services are often concern. in a rudimentary state, with infrastructure lacking or in urgent need of upgrading or replacement. This situation seriously hampers the reintegration of Iraqi returnees from abroad. Internally Strategy displaced people, returnees and refugees are particularly affected by the difficult economic and Protection and solutions humanitarian conditions, especially since their traditional support networks have been UNHCR will provide essential protection and destroyed. Protection problems are mounting, assistance and seek to implement durable solutions with increasing reports of harassment, arrest and for the Palestinian, Turkish, Iranian and Syrian detention of refugees in Iraq. refugees. The Office will further support the establishment of a framework securing refugee UNHCR will continue to support populations of rights and advocate for the creation of national concern through the facilitation of return from protection structures. For instance, the relevant abroad, reintegration projects for returnees and national and local authorities have approved a development of a durable solutions strategy for plan to relocate Iranian refugees remaining in the different refugee groups inside Iraq. However, Al-Tash camp to safer locations in northern continued fighting and localized ethnic and reli- Iraq, where UNHCR and local authorities will gious tensions are resulting in new population dis- provide initial assistance to support their placements. In addition, new groups of people are self-reliance. the target of persecution and are fleeing to safer areas within Iraq or abroad. Through the IDP Working Group, UNHCR will address policy issues, provide operational

UNHCR Global Appeal 2006 232 Iraq

A local NGO is helping Iranian Kurd refugees to build houses in Barika in Sulaymaniya, northern Iraq. UNHCR / A. Eriksson

guidance, undertake contingency planning and UNHCR will also provide assistance in drafting a assist the Iraqi authorities to develop and imple- new nationality law in accordance with interna- ment a national strategy on displacement and tional human rights standards. durable solutions. UNHCR will further assist the authorities to create conditions conducive to the return of refugees and internally displaced peo- Assistance ple. Wherever security conditions allow it, UNHCR and its NGO partners will monitor the sit- Despite security and logistical constraints, uation of returnees and IDPs more widely. The UNHCR will continue to provide essential humani- data collected will be used to advise returnees on tarian assistance for vulnerable groups. Housing conditions in return areas, address return obsta- assistance will include the establishment of set- cles and prioritize reintegration assistance. tlements as well as tents and rental subsidies. The UNHCR will employ the “4Rs” concept, incorpo- Office will also provide medicines, kerosene and rating key elements such as facilitating access to household items such as blankets and jerry cans. social services, promoting employment-generat- ing activities, community-based reconciliation, UNHCR offices in the region will continue to col- awareness raising and establishing an adequate laborate on updating the profile of uprooted Iraqi legislative framework for return, relocation and populations, in order to survey their intentions, to reintegration. provide protection and assistance and to formu- late comprehensive voluntary repatriation and UNHCR will promote accession to the two reintegration programmes. For voluntary repatria- Statelessness Conventions and support MoDM tion, UNHCR will continue to register and issue to enable it to discharge its responsibility to assist identity cards to returnees and provide transport, stateless persons to recover their nationality.

233 UNHCR Global Appeal 2006 transit facilities, basic health care services and Coordination household items. Under the overall coordination by the UN Country Returnee monitoring and technical studies will be Team and the UN Assistance Mission for Iraq expanded to areas particularly impacted by the (UNAMI), UNHCR is contributing to the develop- presence of refugees, returnees and internally dis- ment of a National Strategy on Displacement placed people to assess conditions of return and Challenges and Durable Solutions. UNHCR is one guide interventions, where possible, to ease of the participating organizations of the Iraq obstacles to successful reintegration of returnees. Reconstruction Fund Facility for Iraq (IRFFI) which Governorate Assessment Reports will be updated is administered by UNDG/UNDP. The UNHCR based on the results of UNHCR’s returnee moni- Chief of Mission is the Task Manager of Cluster F toring projects, with additional input from Gov- (refugees, internally displaced people and durable ernment and NGO partners. solutions) and UNHCR also chairs the IDP Working Group and actively participates in the UN Emergency Working Group. Desired impact

Over 20 NGO partners participate in regular While UNHCR assists the local authorities to review and planning exercises in Amman (for develop a national strategy on displacement and central and northern Iraq) and Kuwait City (for durable solutions for returnees and internally dis-

Iraq southern Iraq). Main government partners include placed people, as well as national protection the Ministry of Displacement and Migration, the structures for refugees, only a limited number of Kurdish Regional Government (Ministry of vulnerable groups will enjoy access to humanitarian Humanitarian Assistance and Cooperation, and reintegration assistance. Voluntary repatria- Ministry of Human Rights) and the Iraqi Property tion will be facilitated and registration and issu- Claims Commission. ance of identity cards will strengthen the protection of returnees.

Organization and implementation

Management structure

UNHCR has offices in Baghdad, Al Basrah, Dahuk, Erbil, Kirkuk, Mosul, An Nasiriya and Sulaymaniyah. The UNHCR Iraq Operations Unit is based in Amman, whereas the Cross-Border Base is situated in Kuwait City. Under the prevailing security conditions, the remote management structure, put in place in 2003, has proved viable and will remain the best option under the circum- stances, with a strong emphasis on partnership.

UNHCR Global Appeal 2006 234 Yemen

Main objectives • Seek to empower the refugee camp commu- nity, particularly refugee women, as partners in planning and managing programmes through • Ensure effective protection for all refugees, participatory community development activi- asylum-seekers and other persons of concern. ties and a multi-sectoral approach. • Work with the Government to strengthen the legal framework and institutional capacities for Planning figures refugee protection and assistance in order to Population Jan 2006 Dec 2006 limit irregular movement of refugees. • Regularly review and assess the refugee situa- Somalia (refugees) 70,000 70,000 tion and evaluate prospects for durable Ethiopia (refugees) 2,000 2,000 solutions within the framework of the Compre- Various (asylum-seekers) 990 990 hensive Plan of Action for Somalia. • Provide basic humanitarian assistance and ser- Various (refugees) 880 920 vices to refugees and asylum-seekers in the Ethiopia (asylum-seekers) 300 300 refugee camp and urban areas. Yemen (others of concern) 680 680 • Support education for refugees both formally and through training followed by income- Total 74,850 74,890 generating opportunities. Total requirements: USD 5,168,295

235 UNHCR Global Appeal 2006 Yemen

Somali refugee children at a day care centre for preschoolers in Al Kharaz refugee camp. UNHCR / N. Jbour

centres to register refugees and issue identity Working environment documents. This will resolve problems such as arrest and detention due to lack of identity cards. Recent developments Refugee registration will also advance their access to certain rights such as registration of UNHCR has recently signed a Memorandum of births and marriage, freedom of movement, Understanding with the Government of the access to education and access to courts. Republic of Yemen to establish six permanent

UNHCR Global Appeal 2006 236 However, many from the Horn of Africa continue to try to cross the Gulf of Aden to reach Yemen; including considerable numbers of asylum-seekers from Somalia. UNHCR is deeply concerned about the tragic loss of life during this perilous journey as many attempt to cross in unseaworthy boats in the hands of unscrupulous people smugglers. New Somali arrivals have prima facie refugee status and are transferred to a UNHCR reception centre where they receive basic humanitarian assistance.

Constraints

During the first half of 2005, there were over 7,500 new arrivals, mainly Somalis, and it is anticipated that this number will continue to rise, putting more pressure on limited resources in Yemen. The increased proportion of foreign residents in Yemen has given rise to xenophobia within certain quarters of the press and the public. This is having

a damaging effect on broader public attitudes Yemen towards refugees and on the prospects for integration.

Strategy

Protection and solutions

UNHCR works closely with the Yemeni Government to strengthen the legal framework and institu- tional capacity and to establish a national refugee law. Technical workshops held with government officials will continue for this purpose. UNHCR will also continue to support the Government’s efforts in registering all refugees and asylum- seekers in Yemen.

Furthermore, UNHCR will continue to provide protection to all refugees, asylum-seekers and persons of concern by conducting refugee status determination for non-Somali asylum-seekers, While the election of a provisional government until a governmental refugee institution is estab- in Somalia is a welcome development, the gen- lished. UNHCR will also provide essential humani- eral situation has yet to prove conducive to the tarian assistance and services at the Mayfa'ah promotion of mass return. Assistance has been reception centre, Bir Ali area in Shabwa provided to some families to facilitate their Governorate, as well as in Al Kharaz refugee return to a limited number of safe areas in camp. Somalia.

237 UNHCR Global Appeal 2006 Due to the transitory movement of refugees and Refugees will be allocated garden plots and asylum-seekers in Yemen, UNHCR has a limited receive seeds and tools as well as livestock. resettlement programme which applies mainly to refugees with special needs. The Office has only a UNHCR and its implementing partners will provide limited voluntary repatriation programme. The refugees in Al Kharaz camp with essential goods fragile and unstable situation in Somalia from and services including access to adequate water, where most refugees in Yemen originate, does not sanitation, shelter, household items and medical render repatriation feasible. care. WFP will continue to provide food rations in the camp. UNHCR held consultations with the Yemeni Government regarding the proposed Compre- UNHCR-funded community centres will offer a hensive Plan of Action for Somalia, aimed at safe environment for refugees. They will provide ensuring further protection for Somali refugees social and legal counselling, language and com- and creating opportunities for durable solutions. puter training, daycare for children, as well as rec- reational, social and cultural activities. Assistance The Office will provide protection and assistance to urban refugees settled mostly in Sana’a and The UNHCR multifunctional gender, age and Aden (Basateen) and new arrivals at the Mayfa'ah

Yemen diversity team, established in Yemen in May 2005, reception centre. Financial and material assis- conducted participatory assessments with refu- tance will be provided to vulnerable individuals as gee women, men and children. Findings revealed a matter of priority. several protection risks and possible solutions to the occurrence of sexual and gender-based vio- lence (SGBV), the low level of attendance and Refugee health clinics will offer preventive and retention at schools, as well as instances of curative treatment and will refer more serious psychosocial problems due to unemployment cases to local hospitals. Reproductive health and and lack of livelihood opportunities. As a result, HIV/AIDS related services will also be made avail- UNHCR plans to increase support to the Yemen able. More emphasis will be placed on health and programme in 2006. nutrition education in community outreach programmes in the refugee camp and the urban areas. A major goal for 2006 is to improve access to edu- cation and long-term school attendance in the refugee camp and urban areas and also expand Desired impact vocational training opportunities for refugee youths to reduce poverty and achieve greater Refugees and asylum-seekers in Yemen will be self-reliance. Primary education offered in the adequately protected and assisted according to camp will place emphasis on the retention of girls international human rights standards. Public in schools, through appropriate extra-curricular awareness and outreach efforts should also result activities. Further education will be made avail- in increased awareness of the plight of refugees able through vocational training and computer and a more tolerant attitude towards refugees by and language courses so that adult refugees can the Yemeni Government and the public. Through acquire marketable skills. Literacy courses, par- collaboration between the Government of Yemen ticularly for refugee women, will continue to and UNHCR, the legal status of many undocu- play an important role in local integration and mented refugees will be regularized. There will be the refugees’ education. a greater focus on refugees’ self-reliance, educa- tion and their participation in community-based There will be a stronger emphasis on income- activities. generating projects. Agricultural activities will pro- vide a profitable source of income for refugees.

UNHCR Global Appeal 2006 238 Organization and Partners Government agency implementation Ministry of Foreign Affairs

Management structure NGOs Charitable Society for Social Welfare The UNHCR Office in Yemen will continue to be Cooperazione Internazionale headed by a Representative and will include 11 Interaction in Health and Development international staff, 32 local staff and four interna- Marie Stopes International (Yemen) tional UNVs. Due to the increase in the number of Save the Children (Sweden) Somali refugees, UNHCR has requested the cre- Society for Humanitarian Solidarity ation of new posts in 2006, including one interna- Triangle génération humanitaire tional and four national staff, in order to assist and reinforce the existing team to respond effi- ciently to the operation’s demands. Budget (USD)

Activities and services Annual Programme Coordination Budget

Protection, monitoring 1,952,070 UNHCR activities are implemented in collabora- and coordination tion with the Government of Yemen and with the Community services 189,885 Yemen support of national and international NGOs as well as UN agencies. WFP supplies a basic food Crop production 13,640 ration for all refugees living in Al Kharaz camp. Domestic needs 100,750 Discussions with UNFPA for reproductive health activities are under way. Efforts to address the Education 316,051 needs of refugees within the Common Country Food 108,946

Assessment and UN Development Assistance Forestry 5,023 Framework are ongoing. Health 490,194

Offices Legal assistance 280,224

Sana’a Livestock 3,680 Aden Operational support (to 428,668 Al Kharaz agencies)

Sanitation 18,360

Shelter/other 159,615 infrastructure

Transport/logistics 220,882

Water 73,735

Total operations 4,361,723

Programme support 806,572

Total 5,168,295

239 UNHCR Global Appeal 2006 South-West Asia

Recent developments

n a landmark development, Afghanistan Iacceded, in August 2005, to the 1951 Refugee Convention and its 1967 Protocol, paving the way for the establishment of a national legal frame- work for the protection of refugees and persons of concern in Afghanistan.

By September 2005, nearly half a million Afghans had returned to their homes, bringing the total to over four million since 2002. For the fourth con- secutive year, this is the world’s largest repatria- tion movement. No pattern of discrimination against returnees has been observed, although the human rights and security situation in some parts of the country continues to cause concern.

In 2005, return movements from Pakistan have been larger than during the same period last year. This is due in part to the closure on security grounds of camps in the Federally Administered Tribal Areas (FATA). Some Afghans chose to relo- cate within Pakistan; however, the majority chose to return to Afghanistan. In contrast, return move- Afghanistan ments from the Islamic Republic of Iran were smaller than in 2004. It is believed that any Islamic Republic of Iran Afghans able to make a relatively straightforward Pakistan and unencumbered return will already have done South-West Asia

so, and that it will therefore be a challenge in the future to maintain the previously high rates of vol- Strategic objectives untary return. A key objective for UNHCR is to advance under- While voluntary repatriation will remain the pre- standing among concerned States of the need for ferred solution for the majority of the remaining a broader vision and a more comprehensive Afghans, there is an increased understanding that approach to the Afghan situation. Such an solutions other than repatriation may have to be approach would not merely tackle a refugee and identified for some of them. humanitarian problem, but would also address more complex population movements and the In February and October 2005, UNHCR convened important dimensions of poverty and migration. strategic consultations on population movements This more comprehensive approach aims to to and from Afghanistan with Governments in the support Governments to identify and explore a region, key international institutions, interested range of approaches to resolving the protracted States and international organizations. These situation for all Afghans in the region. meetings were hosted jointly by UNHCR and the European Union in Brussels, and by UNHCR and Whilst remaining fully committed to voluntary the United States Government in Geneva respec- repatriation, UNHCR will continue to assess the tively. Their aim has been to build consensus on a political, economic, and security conditions in range of solutions to the protracted situation of parts of Afghanistan. For some Afghans, these Afghans in the region. present serious impediments to return. Monitor- ing the situation of returnees and respect for the voluntariness of return will therefore remain a pri- mary focus. An equally important objective will be to bring more stability to the situation of the

241 UNHCR Global Appeal 2006 ot-etAsia South-West ot-etAsia South-West

Afghanistan: Some 40 displaced families in Zari Dasht camp in Kandahar are moved back to their homes in the north of the country. UNHCR / T. Irwin

remaining Afghan populations in the neighbour- Each country chapter outlines country-level activ- ing countries and to preserve asylum. ities which have been designed to support the comprehensive solutions approach. The Governments of the Islamic Republics of Iran and Pakistan will face the challenge of coping with substantial numbers of Afghans still remaining, Operations not only for economic reasons, but also due to strong cultural ties. An additional challenge will be UNHCR’s operations in Afghanistan, the Islamic the regular movements of many individuals in and are described in both directions, to and from Afghanistan. These Republic of Iran Pakistan separate country chapters. challenges need to be addressed with the sus- tained support of the international community. Overall, population movements are continuing to Budget (USD) normalize. UNHCR stands ready to support the Country Annual Programme concerned Governments in meeting these new Budget challenges and in further reducing the instability Afghanistan 60,978,721 associated with displacement from Afghanistan. Islamic Republic of Iran 16,411,128 UNHCR will not secure progress alone. Building Pakistan 23,327,170 1 strategic and enabling partnerships with a range Regional activities 589,242 of actors in the region will prove vital to advancing the process of finding solutions for Afghans. A Total 101,306,261

broader framework for managing population 1 Includes repatriation of Afghans from various countries and scholarships for movements has yet to be assembled and will be refugee students. the subject of continued reflection.

UNHCR Global Appeal 2006 242 Afghanistan

Main objectives • Ensure that asylum-seekers and refugees have access to fair and efficient refugee status deter- mination (RSD) procedures in Afghanistan and • Support the Government of Afghanistan in the that their needs are addressed and solutions development of strategies that address the facilitated through governmental mechanisms. reasons for displacement of Afghans in the region. Planning figures • Strengthen the capacity of the Afghan Population Jan 2006 Dec 2006 Government to plan, manage and assist the return, reintegration and protection of Afghan Returnees 605,000 605,000 refugees and internally displaced persons Returnee IDPs 55,000 50,000 (IDPs). IDPs 50,000 - • Facilitate the voluntary return of Afghans from Pakistan, the Islamic Republic of Iran and other Asylum-seekers 30 150 host countries; support the reintegration of Refugees 10 140 returnees for an initial period by addressing Others of concern - 5 obstacles to physical, legal and material safety and advocate the inclusion of returnees in all Total 710,040 655,295 major development plans. Total requirements: USD 60,978,721 • Monitor the situation of returnees and IDPs and ensure that their rights are protected. • Facilitate the repatriation of IDPs and provide assistance to support their reintegration.

243 UNHCR Global Appeal 2006 with impunity is addressed. However, confiscation Working environment and occupation of land and property and property disputes remain significant problems. A challenge Recent developments for UNHCR and other actors will be how to improve access to effective remedies for griev- The first Afghan parliamentary elections in over 30 ances or human rights violations. years took place in September 2005 without major incidents, a landmark event in Afghanistan’s The security situation, however, remains a con- political transition. It is anticipated that by 2006 cern in the south and south-east of the country the milestones of Afghanistan’s transition, as out- where anti-government groups are still active; in lined in the Agreement on Provisional Arrange- general, the level of insurgency in the country has ments in Afghanistan Pending the risen. By 2006, capacity building and deployment Re-Establishment of Permanent Government of the new Afghan National Army (ANA) and Institutions, (so-called “Bonn Agreement”), will police are expected to reach a stage where these have been completed with the possible exception forces can increasingly be counted on to inter- of elections for district councils, whose representa- vene and stabilize the security situation in differ- tives constitute one third of the seats of the ent parts of the country. Areas of higher insecurity Meshrano Jirga, the upper house of Parliament. The are expected to persist, with warlords maintaining

Afghanistan completion of the political transition will allow fur- their fiefdoms; however, these will be of limited ther consolidation of the powers of the elected geographical scope. authorities and an expansion into the provinces of the authorities of the Afghanistan. Civil service There are still over 3.3 million Afghans residing in reforms will gradually introduce a system of public Pakistan and the Islamic Republic of Iran. Positive administration based on merit. developments in the political arena, coupled with some policies and measures likely to be pursued Despite gradual improvements in the delivery of vis-à-vis refugees in the neighbouring countries, public services, Afghanistan remains a country could prompt another significant return move- with some of the poorest basic social indicators, ment. The improvement of the security situation including high infant, child and maternal mortal- for minorities in the north of the country and the ity rates and low literacy rates, as well as weak end of the drought in the southern and western structures for the care of extremely vulnerable parts of the country will allow for a discontinua- individuals. Public services, transport infrastruc- tion of assistance and for a proactive approach ture, electricity and water management remain towards durable solutions in 2006. very basic and do not meet the standards familiar to Afghans when they were in exile. While the Constraints effects of drought might be mitigated in many areas, water management in rural areas remains a The increased insecurity has had a direct impact challenge, as is housing and access to land for the on reconstruction, economic development and many returnees who do not own land or property the expansion of state authority, particularly in in Afghanistan. Another significant challenge for the south and east, covering approximately return and reintegration is the high proportion of one-third of the country. Security remains a returnees dependent on seasonal or intermittent problem overall and has seriously deteriorated wage labour (25 per cent) or without any regular in some parts. Attacks have intensified on sources of income (10 per cent). national and international forces and on elec- toral, governmental and humanitarian workers. It is expected that there will be a gradual improve- An increasing number of attacks against mem- ment in the overall human rights situation, in par- bers of the international community have ticular with regard to abuses by local commanders resulted in significant reductions, or even suspen- and their armed supporters, provided that they sion, of activities. In May 2005, Jalalabad expe- are disarmed, disbanded and their ability to act rienced its worst riot and attack since the fall of

UNHCR Global Appeal 2006 244 Afghanistan

IDPs loading their belongings in a truck that will take them to their homes in the north of the country. UNHCR / T. Irwin

the Taliban. UN and international NGO pre- relatively unsafe areas has increased UNHCR’s reli- mises, including UNHCR’s, were systematically ance on national structures and national NGOs. attacked and damaged. UNHCR’s guesthouse was looted and set on fire. Crime is also on the The Government’s capacity remains limited at the increase with threats of kidnapping of interna- central and provincial level. Corruption is report- tional staff, especially in Kabul. edly widespread and the high turnover of officials often makes sustained dialogue with interlocutors There are many complaints about forced eviction difficult. and the illegal occupation of land throughout the country. Many returnees own no property at all. The impact of a new NGO law, which came into Although some have access to land, it is frequently effect in June 2005, remains to be seen. The new insufficient to support their families. Landlessness legislation prohibits NGOs from undertaking any is often cited as an obstacle to return. construction work, and requires the payment of income tax by staff. Further clarification of this law There is also a marked increase in anti-government is needed. activities, seemingly exacerbated by growing dissatisfaction with the lack of socio-economic There has been a marked decrease in traditional development, weak local administration and humanitarian funding, yet development funding resentment towards the Coalition forces. Under has not increased substantially. This is having a such circumstances, remote project monitoring in negative impact on the reintegration of returnees.

245 UNHCR Global Appeal 2006 Strategy Assistance The voluntary repatriation operation will continue Protection and solutions and it is anticipated that some 600,000 refugees will return from Pakistan and the Islamic Republic UNHCR will be supporting the Afghan repatriation of Iran. In the same manner, return and local set- scheme for the fifth year in 2006. The Afghanistan tlement of internally displaced people will prog- operation continues to form an integral part of the ress further, allowing UNHCR to cease its regional operations covering Afghan refugees in assistance activities in the IDP settlements by the Pakistan and the Islamic Republic of Iran. Close end of 2006. The programme will be geared strategic and operational coordination will con- towards helping refugees and internally displaced tinue, especially with the Pakistani and Iranian people make informed decisions on return authorities. The aim will be to support the transi- through efficient mass information activities, “go tion of the refugee problem under international and see” and “come and inform” visits, and cash supervision to a broader framework for managing and transport grants to help those returning to different kinds of population movements. Discus- their area of origin or choice. sions will also be pursued with the concerned Governments in order to promote a dialogue on Since 2002, UNHCR has taken concrete measures

Afghanistan cross-border movements, including migration for to include gender and age considerations in assis- labour purposes, and to address the situation of tance programmes. For example, “safe houses” Afghans who, for a variety of reasons, are not yet have been set up for unaccompanied deportees expected to return. and victims of sexual and gender-based violence (involving domestic violence, the risk of “honour” Security measures will be maintained, permit- killings or forced marriages). Monitoring and refer- ting protection monitoring of both categories ral mechanisms have been established and con- of returnees (former refugees and internally tinue to be operated to identify the most displaced people). Obstacles to safe and digni- vulnerable individuals during the return process fied return and reintegration will continue to be and ensure that they are provided with the nec- identified. The national capacity to monitor, essary immediate support. The shelter pro- document and intervene will be increased gramme will specifically target those with acute through a partnership with the Afghan Human needs, such as families headed by widows or Rights Commission and in cooperation with elderly people, and those with disabled family other human rights and rule of law actors. members. Although in 2005 Afghanistan acceded to the 1951 Refugee Convention and the 1967 Protocol, UNHCR will maintain, in a more structured man- UNHCR will continue to assist the Ministry of ner, its advocacy role vis-à-vis donor govern- Refugees and Repatriation (MORR) in managing ments, financial institutions and development refugee protection in accordance with interna- actors to enlist their support in facilitating the tional standards, as well as in its negotiations with reintegration of the returnees. Simultaneously, asylum countries on new tripartite agreements. the Office will continue its policy of promoting the The Office will ensure that legal instruments such coverage of returnees by major national develop- as tripartite agreements are upheld and enforced. ment programmes. It is also expected that durable solutions will be found by the end of the year for the remaining Desired impact internally displaced people, either through volun- tary return to their places of origin or through Returning refugees and internally displaced peo- local settlement. ple will have access to the necessary information to make informed decisions for voluntary and safe returns. Refugees and internally displaced people will also have access to national protection and

UNHCR Global Appeal 2006 246 durable solutions. The situation in areas of return Offices will be monitored to ensure that the rights of Kabul (Field office and the Office of the returning internally displaced people and refugees Representative) are protected regardless of their gender, ethnic or Bamiyan tribal affiliation. Asylum-seekers will have access to Gardez UNHCR protection, including refugee status deter- Herat mination procedures and assistance when Islam Qala required. Jalalabad Kandahar Khost Organization and Kunduz implementation Maimana Mazar-i-Sharif Nilli Management structure Pul-i-Khumri Shiberghan UNHCR will maintain 16 offices in Afghanistan: a Zaranj Rrepresentation in Kabul, four sub-offices, three field offices and eight field units employing 504 staff members (38 international and 466 national Partners staff). Government agencies Afghanistan Counter-Narcotics Department Coordination Ministry of Public Health Ministry of Refugees and Repatriation It is expected that the Government of Afghanistan Ministry of Rural Rehabilitation and Development will maintain its Consultative Group process to facilitate the coordination of aid, as part of its NGOs National Development Strategy. UNHCR partici- Abu Muslim Khorasany Rehabilitation Unit pates in the Consultative Group for Refugees and Afghan Bureau for Reconstruction Social Protection and advocates the main- Afghan Construction and Rehabilitation Unit streaming of reintegration issues into the design Afghan Health Development Services and implementation of national development and Afghan Planning Agency reconstruction programmes. The inter-agency Afghan Public Welfare Organisation cooperation in Afghanistan has developed Afghan Women’s Skills Development Centre steadily, and UNHCR will increasingly aim to link Afghan/German Help Coordination Office up with less traditional partners so as to benefit Agency for Rehabilitation of Engineering, Education, from their expertise and programmes. UNHCR Culture and Agriculture works in close cooperation with UNAMA, other Agency for Technical Cooperation and Development UN agencies, bilateral agencies and a large num- Central Asia Development Group ber of national and international NGOs. It also Christian Children's Fund/Child Fund Afghanistan supports the Ministry of Refugees and Repatriation Coordination of Humanitarian Assistance in its coordination role, and works closely with Falhat Welfare and Construction Organization the Ministries of Rural Rehabilitation and Develop- Ghor Rehabilitation and Construction Organization ment, and of Urban Housing and Development, as Hewad Reconstruction Service well as with the Afghan Independent Human Human Dignity Society Rights Commission. Humanitarian Action for People of Afghanistan Humanitarian Aid for Women and Children Humanitarian Assistance Society Independent Humanitarian Service Association

247 UNHCR Global Appeal 2006 Japan Emergency NGO Budget (USD) Javed Rehabilitation Organization for Afghanistan Activities and services Annual Programme Malteser Hilfsdienst Budget Masood Akbar Construction Agency Protection, monitoring Medica Mondiale 13,182,154 and coordination Narcotic Control and Rehabilitation of Afghanistan Norwegian Refugee Council Community services 180,000 Organization for Humanitarian Assistance Domestic needs 7,575,777 Organizzazione Internazionale Umanitaria per l'Emergenza Health 277,440 Reconstruction and Employment Unit for Afghan Income generation 4,766,000 Refugees Rural Capacities Development Committee Legal assistance 3,392,000 Samaritan's Purse Operational support (to 2,749,618 Sanayee Development Foundation agencies) Save the Children Japan Shelter/other 12,420,698 Sina Association Rehabilitation Service infrastructure Society for Health and Education Transport/logistics 10,435,096 Tribal Liaison Office

Afghanistan Urozgan Construction Agency Water 1,000,000 Vocational and Relief Organization for Afghan Total operations 55,978,783 Widows, Orphans and Disabled People Voluntary Association for the Reconstruction of Programme support 4,999,938 Afghanistan Total 60,978,721 Watan Social and Technical Services Association Welfare and Development Society for Social Services Women's and Reconstruction Organization of Yasir for Afghanistan Youth Assembly for Afghanistan Rehabilitation ZOA Refugee Care Afghanistan

Others Afghan Independent Human Rights Commission British Broadcasting Corporation German Technical Corporation ILO United Nations Human Settlements Programme UNV

UNHCR Global Appeal 2006 248 Islamic Republic of Iran

Main objectives • Provide refugees with access to free legal advice and opportunities to submit outstanding claims to efficient Dispute Settlement Committees. • Develop a comprehensive solutions framework which responds to the profile and needs of the Planning figures residual populations of Afghan and Iraqi refu- Population Jan 2006 Dec 2006 gees; seek agreement on it and support for its gradual implementation. Afghanistan (refugees) 713,000 473,000 • Facilitate the voluntary, safe and sustainable Iraq (refugees) 58,000 38,000 repatriation of Afghan and Iraqi refugees, sup- Total 771,000 511,000 ported by mass information activities and careful monitoring to ensure the voluntary Total requirements: USD 16,411,128 character of return movements. • Enhance the protection of asylum-seekers and refugees by monitoring and promoting respect for refugee rights, using resettlement as a tool for protection and by supporting the development of an effective national asylum system.

249 UNHCR Global Appeal 2006 Afghan refugees, at the transit centre in the border town of Dogharon, wait for the trucks that will take them back to Afghanistan. UNHCR / Z. Soleimani

28,000 Afghan refugees living in Zabol district in sai eulco Iran of Republic Islamic Working environment Sistan-Baluchistan Province for reasons of national security. A repatriation and relocation Recent developments operation is under way at the time of writing.

The continuing insecurity in Iraq remains an In June 2005, the Islamic Republic of Iran, obstacle to return for many Iraqis in the Islamic Afghanistan and UNHCR agreed to extend until Republic of Iran. In the first eight months of 2005, March 2006 the tripartite agreement regulating 3,000 Iraqis requested UNHCR’s assistance for the voluntary repatriation operation for Afghan their voluntary repatriation. UNHCR is aware that refugees in the Islamic Republic of Iran. spontaneous returns are taking place from the Islamic Republic of Iran to Iraq but there are no During the first eight months of 2005, more than reliable figures on the Iraqis remaining in the 160,000 Afghans returned to Afghanistan from country. the Islamic Republic of Iran, 40,000 of whom were assisted by UNHCR. This is significantly fewer No policy changes have been observed following than the previous year, when over 350,000 the election of new President Mahmood Afghan refugees opted for voluntary repatriation Ahmadinejad and the nomination of the new with the assistance of UNHCR. This decline is Government. The new Cabinet is expected to linked to the changing profile of the population undertake a review of the situation of refugees in of Afghan refugees in the country. More than 60 the country, and UNHCR is looking forward to per cent have been living there for over 15 years. contributing to that review. Having settled and developed strong links with the communities which generously received them upon their arrival, their links to Afghanistan have Constraints weakened. Many who are reluctant to return have experienced a profound social change in the The Government of the Islamic Republic of Iran Islamic Republic of Iran. Furthermore, they har- has so far maintained its policy of calling on all bour doubts about access to land, shelter, Afghans to return to Afghanistan. A number of employment, health and education facilities in recently introduced measures have exerted con- Afghanistan at present. siderable economic pressure on Afghans. These include the recently announced imposition of a In August 2005, the Iranian Government municipal tax on all Afghan refugees. UNHCR requested UNHCR’s assistance to facilitate the maintains that a punitive and discriminatory voluntary repatriation or relocation of up to imposition of taxes on refugees – who have no

UNHCR Global Appeal 2006 250 legal right to engage in wage-earning employment identify those with protection concerns and pre- – is in violation of article 29 of the 1951 Refugee vent forced return of registered refugees. UNHCR Convention that was signed by the Islamic will also continue to carry out refugee status Republic of Iran. determination under its Mandate for a small num- ber of non-Afghan asylum-seekers. UNHCR continues to face difficulties of access to Afghan refugees. Authorizations are not always UNHCR will work with the Iranian Government and granted and access to deportees in Dogharoun other international organizations such as ILO and remains severely curtailed by the authorities. IOM to assist in developing the Government’s The authorities have also continued to object to capacity to manage migration issues in the future. the start-up of a screening operation in UNHCR’s role will focus on developing a national Sistan-Baluchistan which would allow UNHCR asylum system, reviewing legislation and providing to confirm the absence of refugees amongst the opportunities for skills development for officials sizeable number of Afghan migrants deported through training programmes and twinning arrange- through that province. ments. The Office will also engage in public aware- ness activities to garner greater public support for UNHCR’s programmes continue to be implemented the protection of asylum-seekers and refugees. by governmental organizations, with the participa- tion of only a few authorized local NGOs. The lack of international and national NGOs authorized to Assistance implement UNHCR’s assistance and repatriation programme reduces the presence of humanitarian Assistance to Afghan and Iraqi returnees remains field workers and consequently affects the efficient the main component of the programme. Free implementation of programmes. transport of returnees with their belongings and Islamic Republic of Iran mass information will be organized and medical personnel will ensure that sick and vulnerable Strategy refugees are provided with necessary support during their journey. Refugees will be issued with documentation and assisted with all border for- Protection and solutions malities. Reception arrangements and support for onward movement to their final destination will be UNHCR aims to bring this protracted refugee situ- coordinated with UNHCR's offices in Afghanistan ation to a close through the identification of an and Iraq. Refugees will be assisted in solving legal appropriate set of durable solutions, while uphold- problems by accessing free legal advice services ing basic protection standards for the residual refu- established in seven provinces to facilitate their gee population until such time as solutions are departure to Afghanistan. found. UNHCR also seeks to nurture cooperation around the development of a new asylum system UNHCR’s direct assistance to refugees will be con- and refugee management capacities. fined to providing medical and social support to a very limited number of the most vulnerable persons, The Office will continue to monitor the voluntary in particular female-headed families. The Office will character of the joint repatriation programme to provide some support to community development Afghanistan and Iraq. This includes addressing initiatives aimed at improving refugee management issues relating to documentation, and access to of camp affairs and services. UNHCR will provide health and education services. The presence of a limited support to Iraqi camp refugees. large number of Afghan migrant workers is expected to persist in 2006. In its discussions with the authorities UNHCR will insist that any measure Desired impact to address the presence of undocumented migrants must not impinge upon registered refugees. The The implementation of activities will incorporate Office will continue to screen deportees to the age, gender and diversity mainstreaming

251 UNHCR Global Appeal 2006 methodology. Multifunctional teams in each Partners sub-office will complete local participatory Government agency assessments in order to provide appropriate pro- Ministry of the Interior/Bureau for Aliens and Foreign tection to women, men, girls, and boys and to tar- Immigrants Affairs (MOI/BAFIA) get the most vulnerable people within each group.

NGOs Assisting Marsh Arabs and Refugees Organization and Educational Research Society implementation Iranian Red Crescent Society Iraqi Refugees Aid Council Médecins Sans Frontières Management structure Society for Protection of Children Suffering from Cancer The Office of the UNHCR Representative for the Islamic Republic of Iran oversees the activities of Others seven offices and 11 voluntary repatriation centres, Employees’ Cooperative of the Ministry of Interior

sai eulco Iran of Republic Islamic with a total of 164 staff (21 internationals, 142 Global Partners nationals and one JPO, excluding the posts IFRC funded under the Iraq Special Budget). NICCO

Coordination Budget (USD)

UNHCR’s main interlocutors on refugee issues are Activities and services Annual Programme the Ministry of the Interior through the Bureau of Budget Aliens and Foreign Affairs (BAFIA). All discussions Protection, monitoring 5,835,434 with other line Ministries and with national NGOs, and coordination including the very small number of implementing Community services 1,000,000 partners, are coordinated by BAFIA, which also serves as the Secretariat for the National Council Domestic needs 126,000 of Foreigners Policy. Through the CCA and UNDAF Food 75,068 process, UNHCR prevails upon other UN agencies Health 1,626,002 to consider the refugee dimension in the planning and implementation of their programmes. WHO, Legal assistance 509,156 UNICEF and UNFPA could play a greater role in Operational support (to 370,000 supporting refugee communities who remain in agencies) the country. Shelter/other 50,000 infrastructure Offices Transport/logistics 4,158,960 Tehran Total operations 13,750,620 Ahwaz Dogharoun Programme support 2,660,508 Kermanshah Total 16,411,128 Mashad Orumiyeh Zabol Zahedan

Eleven voluntary repatriation centres in provincial capitals

UNHCR Global Appeal 2006 252 Pakistan

Main objectives

• Convince the Government of Pakistan that not all Afghans may be willing or able to repa- triate in the near future and may require solutions other than repatriation. • Facilitate the repatriation of Afghans from rural and urban areas. • Provide international protec- tion and assistance to Afghan refugees and non-Afghan refugees and asylum-seekers. • Ensure progressive dialogue on a broader legal framework for temporary migration and population movements to and from Pakistan. • Promote the coverage by national and provincial devel- opment programmes of areas currently or recently hosting refugees, and elicit the support of donors and the UN Country Team. • Ensure a cost-effective use of resources and Planning figures management of assets without compromising Population Jan 2006 Dec 2006 the security or welfare of staff. Afghanistan (refugees) 1,123,600 832,000

Afghanistan 8,600 8,600 (asylum-seekers)

Various 750 750 (asylum-seekers)

Nigeria (asylum-seekers) 430 430

Somalia (refugees) 360 360

Various (refugees) 330 330

Total 1,134,070 842,470

Total requirements: USD 23,327,170

253 UNHCR Global Appeal 2006 UNHCR has been actively engaged in discussions Working environment on the future of the Afghan population in Pakistan through a series of strategic consultations and Recent developments dialogue with the Government and key stake- holders. A Federal Government task force, includ- ing relevant government actors and selected Pakistan is not a party to the 1951 Refugee international organizations, has been established Convention or to the 1967 Protocol and regulates to coordinate future policy developments regard- all stay, entry and movement of foreigners ing Afghans. Exchanges on these occasions have through the Foreigners’ Act of 1946. Therefore, in reaffirmed the continued pre-eminence of repa- the absence of national asylum laws and proce- triation as the preferred solution but recognized dures, UNHCR carries out refugee status determi- that many Afghans will remain in Pakistan for a nation under its mandate for non-Afghans in need long time to come. The Government of Pakistan of international protection. From UNHCR’s per- has requested international support for refugee- spective this is an unsatisfactory operational envi- affected and hosting areas. UNHCR has pro- ronment. However, it should be noted that vided some initial technical support to assist although no Afghans and only a limited number of the Government to assess needs and programme non-Afghans possess official documentation options. issued by the Government, very few asylum-

Pakistan seekers or refugees have been arrested, detained or deported recently. The large magnitude earthquake which hit south Asia in October 2005 caused enormous loss of life and major damage in parts of northern Following the signing of a Memorandum of Afghanistan, Pakistan and India. In the case of Understanding (MoU) between UNHCR and the Pakistan, some 880,000 Afghan refugees live in Government of Pakistan in 2004, a census of the North-West Frontier Province (NWFP), an area Afghans in Pakistan was undertaken in early 2005, which has been severely affected by the disaster. confirming the presence of some three million In response to the request by the Government of Afghans in Pakistan. As agreed in the MoU, not all Pakistan to the Secretary-General for assistance, Afghans are of concern to UNHCR. United Nations acted immediately on launching an emergency operation for the victims of the By September 2005, some 391,000 Afghans had earthquake. The Office coordinated the overall returned to Afghanistan, two thirds of them from camp management response primarily in the the North-West Frontier Province (NWFP) in 2005. areas where refugee and local populations are This brings the total number of returnees from located together and provided multi-sectoral Pakistan to more than 2.6 million. Almost half this assistance to the most needy, together with its year’s returnees are from camps (a greater propor- partners. tion than in 2004).

The camp closure and consolidation exercise Constraints continued through 2005. In April, the Government stated its intention to close two camps in Despite the positive progress achieved in Baluchistan to which humanitarian agencies have resolving many aspects of Pakistan’s long- only limited access. Subsequent to the closure of standing refugee situation, implementation of refugee villages in South Waziristan in mid-2004, operations continues to face some constraints. all camps in North Waziristan were closed on Frequent changes in state personnel responsible national security grounds by the Government. In for refugee affairs, both at provincial and federal addition, 31 camps in the Federally Administrated level, have caused delays in policy implementa- Tribal Areas (Bajaur and Kurran Agencies) are tion and inadequate consultation on various being closed, as well as a settlement in Islamabad. matters. The majority of those in the selected camps have now returned to Afghanistan.

UNHCR Global Appeal 2006 254 Pakistan

Census of Afghans in the town of Lahore. Most of the thousands of Afghan refugees there work as rubbish collectors and live in a slum by the Ravi river. UNHCR / J. Redden

impact on areas where refugees had lived pre- Strategy viously and improving the living conditions of both Pakistani and Afghan communities. UNHCR Protection and solutions will work with the existing poverty alleviation programmes of the Government of Pakistan UNHCR will intensify its efforts to find compre- and within the framework of the Millennium hensive durable solutions for Afghans in Pakistan. Development Goals. The census results will facilitate the design of a registration exercise planned for implementation The preferred durable solution for Afghans in in early 2006, subject to the availability of funds. It Pakistan will remain voluntary repatriation. The is expected that the resulting documentation will Tripartite Agreement that terminates in March offer the Government the basis upon which to 2006 will be renegotiated for a possible extension organize the future management of the Afghan until the end of 2006. Much depends on the population. state-building process in Afghanistan. Efforts will be made to identify the mechanisms which would Field protection and interventions to address allow future repatriation to take place under a bonded labour and the issuance of birth certifi- bilateral arrangement between the two countries. cates for refugee children will continue. Legal In addition, UNHCR, in partnership with ILO and advice and counselling through partners operating IOM, is encouraging dialogue and cooperation on advice and legal aid centres in the provinces will managing cross-border population movements. also continue. Resettlement has remained a durable solution for The programme for assisting refugee-affected and certain categories of Afghan and non-Afghan refu- hosting areas envisages addressing the adverse gees, particularly women-at-risk or refugees with

255 UNHCR Global Appeal 2006 security problems. When they identify those in grammes. Although not all Afghans who will need of resettlement, UNHCR and its partners will remain in Pakistan are of concern to UNHCR, the bear in mind the strategic objective of developing Office will maintain its international protection and enhancing a burden-sharing approach to pro- function and focus on the most vulnerable tection. Furthermore, UNHCR will maintain its persons. advocacy efforts as part of the search for solutions. Organization and Assistance implementation

There will be a shift from direct material assis- Management structure tance to a more dynamic protection regime involving an intensive outreach approach directed UNHCR will continue to operate from the branch at Afghan and non-Afghan persons deemed to be office in Islamabad, sub-offices in Peshawar and of concern to UNHCR. A more field-oriented pro- Quetta and a field office in Karachi with a total of tection presence, including community services, 215 staff (32 internationals, 174 nationals, one is required to identify issues affecting groups in JPO and eight UNVs/secondments). need of special assistance, such as female-

Pakistan headed households, victims of sexual and gender- based violence and children under bonded Coordination labour. UNHCR’s activities will continue to be carried out Refugee villages are settlements where UNHCR in collaboration with the Ministry of States and and its operational partners are providing limited Frontier Regions (SAFRON) and with the support humanitarian assistance such as potable water, of national and international NGOs and UN primary education and basic health services. The agencies. In the context of its comprehensive degree of dependence and assistance will vary solutions strategy, UNHCR will continue its coop- from settlement to settlement, according to eco- eration with different government ministries and nomic opportunities in the surrounding area. It is develop new interlocutors within the develop- expected that a number of refugee villages, and ment assistance community. the assistance provided to them, will be consoli- dated as the number of residents decreases. Offices

Islamabad Desired impact Abbottabad Dalbandin It is expected that in future the broad range of Karachi approaches now deployed by UNHCR, some of Kohat them relatively recent, will take root. These Loralai approaches include voluntary repatriation, regis- Mohammad Kheil tration, identification of temporary alternatives to Peshawar return, bilateral cooperation on population move- Quetta ments, the development of interventions for areas Timergara currently or recently hosting refugees, and the rationalization of traditional assistance pro-

UNHCR Global Appeal 2006 256 Partners Budget (USD)

Government agency Activities and services Annual Programme Ministry of Kashmir and Northern Areas and States Budget and Frontier Region Protection, monitoring 8,906,090 and coordination

NGOs Community services 583,043 Afghan Medical Welfare Association Domestic needs 201,130 American Refugee Council Association for Medical Doctors of Asia Education 3,333,038 Basic Education and Employable Skills Training Health 3,653,507 Basic Education for Afghan Refugees Caritas Pakistan Income generation 150,000 Church World Service Legal assistance 1,807,449 Danish Committee for Afghan Refugees Operational support (to 1,310,271 Frontier Primary Health Care agencies) Health Net International Sanitation 86,007 International Rescue Committee Kuwait Joint Relief Committee Shelter/other 77,157 Ockenden International infrastructure Pakistan Red Crescent Society Transport/logistics 151,261 Save the Children Federation (USA) Water 459,758 Pakistan SAVERA Counselling Service Society for Community Support for Primary Education Total operations 20,718,711 Society for Human Rights and Prisoners Aid Programme support 2,608,459 Struggle for Change Sayyed Jamal-Ud-Din Afghani Welfare Organization Total 23,327,170 Taraqee Foundation Union Aid for Afghan Refugees Water Environmental and Sanitation Society

Others Lawyers for Human Rights and Legal Aid-ALACs services in Karachi UNV

257 UNHCR Global Appeal 2006 Central Asia

Recent developments

n May 2005, several hundred Uzbek asylum- Iseekers fled to southern Kyrgyzstan following violence in Andijan, Uzbekistan. UNHCR pro- vided humanitarian assistance to some 500 Uzbek asylum-seekers registered by the Kyrgyz Government and monitored the refugee status determination process conducted by the local authorities. The situation in Kyrgyzstan after the revolution of March 2005, and the high profile of the group of asylum-seekers, created a difficult environment for the Government of Kyrgyzstan to protect the asylum-seekers in accordance with its international obligations as a signatory to the 1951 Refugee Convention. The mounting uncer- tainties surrounding the provision of international protection to the asylum-seekers in Kyrgyzstan and the repeated calls by the Kyrgyzstan authori- ties to support a solution for the group led to the humanitarian transfer of the group of 439 Uzbek asylum-seekers from southern Kyrgyzstan to Kazakhstan Romania to assure their protection. Kyrgyzstan These developments have changed the opera- Tajikistan tional environment for UNHCR in Central Asia. It is Turkmenistan a complex situation with new protection chal- lenges for 2006 that will require an increased Uzbekistan effort to build the capacities of civil society and a Central Asia strengthened partnership approach in order to maintain and enhance the protection of UNHCR’s Strategic objectives persons of concern in the region. UNHCR will support governments in the region to However, progress towards durable solutions strengthen their respective national protection continues. In August 2005, the President of regimes in light of recent developments and with Turkmenistan issued a decree granting citizenship reference to the protection gaps analysis carried and residence permits to over 12,000 registered out in 2005. Targeted capacity-building work Tajik refugees in Turkmenistan, a remarkable and will therefore continue, such as training on far-reaching solution for Tajik refugees. This fol- national refugee legislation and development of lowed the completion of the registration of all training modules on refugee law for universities prima facie Tajik refugees, jointly conducted by the and schools. The Office will organize awareness- Turkmen authorities and UNHCR, and subsequent raising workshops with the authorities and civil advocacy for durable solutions for this group. society institutions to support Governments in UNHCR will submit individual applications for citi- the region to gradually assume the primary role in zenship or residence permits for the remaining management and delivery of protection and assis- refugee population not covered by this decision. tance for refugees and other persons of concern. The Strengthening Protection Capacity project A successful resettlement programme has been will support the Central Asian Governments to implemented in Tajikistan for Afghan refugees. assume greater ownership in identifying solutions Over 1,300 Afghan refugees have been accepted to refugee and displacement issues and help these for resettlement to Canada, accounting for more governments to find the means to implement such than half the refugee population in Tajikistan. A solutions through focused national and subre- similar programme was launched in Uzbekistan for gional processes. the resettlement of Afghan refugees and some 230 Afghan refugees and their families have been In 2006, UNHCR will continue efforts to promote accepted for resettlement. durable solutions for refugees and persons of concern in the region. This includes support for

259 UNHCR Global Appeal 2006 eta Asia Central

Kyrgyzstan: Uzbek refugees in Barash camp, shortly before their departure for Romania, from where they would be resettled to other countries. UNHCR / C. Zaccagnini

the integration of refugees, including the granting In 2006 UNHCR will seek to strengthen partner- of citizenship or residence rights. Preparatory ships within the region and with international insti- work for the implementation of the cessation tutions and donors to support the achievement of clause is underway to ensure that meaningful UNHCR’s protection mandate in Central Asia. solutions for Tajik refugees in neighbouring coun- tries (as well as returnees) will be attained, and The situation in the Ferghana Valley and political that any remaining protection needs of Tajiks can developments in the region increase the need to be identified. The Office will continue to support regularly update contingency plans and prepare the voluntary repatriation of Afghans and other for different scenarios. UNHCR will actively par- refugee groups in the region with the strategic use ticipate in the efforts undertaken by the United of resettlement as a durable solution for Nations to increase the level of emergency pre- applicable cases. paredness at national and regional levels in Central Asia. Assistance will be provided to groups with special needs among refugees and other persons of concern in the region, in view of limited resources Operations available to UNHCR. Gender and age consider- ations as well as other special needs will guide the targeting and management of community ser- In Kazakhstan, UNHCR will promote the estab- vices, healthcare, education and income genera- lishment of national refugee legislation work and tion assistance programmes. will endeavour to reach an agreement with the

UNHCR Global Appeal 2006 260 authorities to adhere to refugee-related provi- Tajik returnees will be implemented, also benefit- sions in existing laws and thereby provide mini- ing returnee communities. mum standards of protection. The Office will seek to strengthen national asylum mechanisms by In Turkmenistan, advocacy on refugee protection supporting the national refugee status determina- principles will remain a priority. Further to the tion procedure and increase awareness on refu- recent passage of a law that stipulates that the gee protection issues among Government implementation of refugee status determination officials and the academic community. In addi- be carried out by a government entity, UNHCR will tion, UNHCR will provide refugees with legal aid train government officials and gradually hand over and assistance to the most vulnerable to cover eligibility activities. Following the landmark deci- basic health care, including reproductive health, sion of the Turkmen Government to grant citizen- education and income-generating activities. ship and residence permits to the majority of the prima facie Tajik refugees, the Office will increase The revolution in Kyrgyzstan in March 2005 assistance for local integration activities. Activi- shifted the regional geopolitical context of ties will include income-generation schemes and UNHCR’s operations in Central Asia. In reinforcing existing government structures in the Kyrgyzstan, the revolution led to structural and areas of education and health. Special attention staffing changes in key national agencies. After will be paid to the needs of women and children, the Uzbek refugee crisis, UNHCR renewed its especially for the establishment and maintenance efforts to maintain the national asylum structures of community-based mechanisms for the preven- and procedures that have been built over the last tion and response to sexual and gender-based

years. The Office will support migration, law violence, reproductive healthcare and vocational Central Asia enforcement and judicial authorities and provide classes. technical expertise for forthcoming legislative changes in migration management and citizen- In Uzbekistan, the Office will maintain activities ship. UNHCR will continue to support the local to provide international protection and assis- integration of Tajik and Afghan refugees. The new tance to those in need. Uzbekistan has not Kyrgyz authorities have demonstrated their com- acceded to the 1951 Refugee Convention and its mitment to the naturalization of Tajik refugees, a 1967 Protocol and has no national refugee legisla- process which will be assisted by the Office. tion in place. Although mandate refugees enjoy a degree of protection from arrest, detention and UNHCR will continue support for the Government of refoulement in Uzbekistan, local integration is gen- Tajikistan to implement the planned amendments erally not an option. Following a successful reset- to the national refugee law to bring it in line with tlement programme in 2005, the Office will international standards and make the national continue to support resettlement and voluntary refugee status determination procedure more repatriation in a few individual cases. transparent and rigorously adherent to legal fun- damentals. UNHCR will also be actively involved Budget (USD) in the EU-funded Border-Management in Central Country Annual Programme Asia (BOMCA) programme for training Tajik border Budget guards following the handover of border control from Russian troops to the Tajik authorities. With Kazakhstan 1,834,526 the successful implementation of the resettle- Kyrgyzstan 1,291,566 ment programme to Canada and ongoing resettle- Tajikistan 1,319,032 ment to the United States, UNHCR will encourage local integration of the remaining Afghans, Turkmenistan 1,020,770 although the Government does not consider nat- Uzbekistan 1,277,649 uralization to be an option for Afghans in Total 6,743,543 Tajikistan. With the support of development part- ners and the ILO, reintegration programmes for

261 UNHCR Global Appeal 2006 ASIA South Asia East Asia and the Pacific

he main objectives for 2006 are to enhance Tthe relevance and effectiveness of UNHCR’s protection activities (Global Strategic Objective 1) by initiating a strategic review of state and subregional protection priorities, and incorporat- ing new strategies into national protection work plans. Additionally, UNHCR is strengthening its strategic partnerships within the United Nations system and with NGOs, government authorities and civil society (Global Strategic Objectives 6 and 7) through increased engagement in regional fora such as the Asia-Pacific Consultations (APC) and the Bali Process. A strong focus will be main- tained on finding durable solutions for protracted situations in the region (Global Strategic Objec- tives 2 and 3), as well as on appropriate engage- ment in new areas such as statelessness and internally displaced people (Global Strategic Objective 5). Finally, the Office is broadening its focus on increasing the level and diversity of fund- ing from traditional and non-traditional donors. South Asia

Recent developments

ecurity concerns in the region, particularly in SNepal, Bangladesh and Sri Lanka, increased in the first half of 2005, affecting refugee and dis- placed populations and the delivery of UNHCR operations in all three countries. An increasing factor is the possibility of further displacement within the countries and throughout the region.

Following nine years of internal conflict in Nepal, which has led to the massive displacement of between 100,000 and 200,000 people scattered throughout the country, an inter-agency response was discussed, and an appeal prepared through the Consolidated Appeals Process (CAP). The UN collaborative approach to internal displacement is still in the planning phase, but is expected to progress to the operational phase in 2006 follow- ing the UN Joint Needs Assessment and discus- sions with the authorities. UNHCR is expected to chair the protection sub-sector working group, together with OCHA. UNHCR will also chair the Bangladesh inter-agency shelter/non-food items working group. India Nepal There is increasing concern about the political sit- uation in Sri Lanka, with sporadic ceasefire viola- Sri Lanka tions. While recent international mediation to bring the warring parties back to the negotiating Asia-Pacific Consultations, the Bali Process table stands a reasonable chance of success, the and, potentially, with the Association of future outlook for peace will depend, in part, on South-East Asian Nations, may open doors for the outcome of the presidential election in further advocacy and a sharper focus on pend- November 2005. Differences emerged between ing refugee issues. the Government and the Tamil rebels over

post-tsunami aid distribution. Dealing with protracted refugee situations in South Asia innovative ways remains UNHCR’s focus in the region. UNHCR maintains its commitment to reduce the number of refugees in long-term situa- Strategic objectives tions and to adopt a rights-based approach to alleviating their plight. Overall objectives in the region focus on contin- ued efforts to address the protracted stay of large In line with the Office’s participation in the UN numbers of refugees in camps, particularly in system’s response to internal displacement, Nepal and Bangladesh. Rising frustration in the UNHCR’s offices in South Asia are already directly camps, coupled with a continued deterioration of and effectively involved in preparing analyses, security in these countries, urgently calls for fur- participating in needs assessments to identify ther work with relevant UN agencies, regional gov- protection and assistance gaps and providing rec- ernmental partners and the international ommendations on the engagement of relevant community to find durable solutions. UNHCR will actors. In 2006 UNHCR will expand its participa- also continue to adopt a regional approach, tion in this collaborative approach to addressing networking with partners in South Asia, to situations of internal displacement. Finding solu- addressing the need for a legal framework for tions for the 70,000 internally displaced persons refugee protection. Increased engagement and (IDPs) in the government welfare centres in Sri involvement in regional forums such as the Lanka will remain a priority in 2006.

265 UNHCR Global Appeal 2006 While it is expected that the age, gender and rejected UNHCR's proposals. With only 90 refu- diversity mainstreaming project will be launched gees having voluntarily repatriated in the first in Bangladesh and Nepal at the end of 2005, eight months of 2005, it is increasingly clear that implementation will begin in Sri Lanka in 2006. repatriation is unlikely to be the solution of prefer- UNHCR will continue to advocate measures to ence for the refugee population in the near future. combat sexual and gender-based violence (SGBV) The deteriorating situation in the two camps in in 2006. It will support activities oriented towards Cox's Bazaar remains a grave concern, and under- increased self-reliance for women through sup- lines the urgent need to resolve this protracted port groups and the establishment of outreach situation. To address this, UNHCR has been networks. Bringing about a change in perception actively engaged with UN agencies and donor and attitudes among the refugee population is a embassies in identifying opportunities for durable key factor in reducing the number of SGBV inci- solutions for the remaining camp population. dents within the camps. UNHCR will promote Assistance to the population surrounding the respect for women and give them opportunities to camps is a priority, as attention to the larger play a role in decision-making not only in camp development needs in the area could also ulti- management but also in their own lives as a mately benefit the refugees. long-term goal. In India, progress has been made in discussions Based on a thorough social survey of the various with the authorities regarding the practicalities of Bihari populations throughout Bangladesh, naturalization for 8,500 Afghan ethnic Hindu UNHCR, in close cooperation with relevant UN Sikhs. UNHCR will pursue resettlement and lim- Agencies and NGOs, will assist the Government in ited voluntary repatriation for the remaining 1,200 its effort to integrate the stateless Biharis into the Afghans in India. UNHCR India continues to local community and thereby find durable solu- emphasize participatory assessments with refugee tions to a long-standing issue. groups as an outreach tool to better assist and protect vulnerable refugees. A study of the In India, UNHCR conducted a comparative survey Myanmar community in India was carried out in of the difficult living conditions of the Myanmar 2005 to assess the consequences of terminating

ot Asia South refugees in New Delhi in 2005. This led to mea- direct financial assistance from UNHCR. This sures to alleviate their social needs. study was prompted by the fact that the majority of refugees from Myanmar had become ineligible for such assistance, but were unable to attain Operations self-reliance and also faced assorted protection problems. A plan of action has since been put in place, though its implementation will depend on UNHCR’s operations in Nepal and Sri Lanka are available resources for 2006. UNHCR will continue covered in separate country chapters. to facilitate the return by air of Sri Lankan Tamil refugees from camps in southern India, until such UNHCR aims to improve the consistency of its time as conditions are conducive to large-scale protection presence in the two refugee camps in government-assisted voluntary repatriation by Cox’s Bazaar in Bangladesh, and will continue to boat. By June 2005, a total of 830 refugees had meet the basic humanitarian needs of the remain- been helped by UNHCR to return to Sri Lanka by ing 20,000 Rohingyas until a solution for their air. plight is identified. To that end, the Office under- took a profiling exercise in the camps in November UNHCR began to expand HIV/AIDS activities to 2005 in order to collect basic data, verify existing the Asia region in 2005 with the appointment of a records and identify those who are not of concern Regional HIV/AIDS Coordinator. Initial activities to UNHCR. The Government maintains its posi- have focused on an assessment of the HIV/AIDS tion that repatriation is the only durable solution situation for refugees and other persons of for the remaining refugee population in the concern with missions undertaken in Nepal, south-east of the country, and thus far has Bangladesh and Thailand; the provision of technical

UNHCR Global Appeal 2006 266 Bangladesh: Achieving gender equality in education is one of UNHCR's policy priorities. Here, Rohingya refugee girls and boys from Myanmar receive primary education in Burmese in a camp. UNHCR / J. Pagonis

support; and the allocation of limited funds to HIV/AIDS services that are appropriate to the South Asia address identified gaps. A strategy to address phase of the HIV/AIDS epidemic. Particular atten- HIV/AIDS among refugees in Asia has been devel- tion will be paid to the situation of refugee women oped and will be guided by UNHCR’s Strategic and children and their vulnerability to HIV/AIDS. Plan for 2005-2007 and lessons learned from the Office’s HIV/AIDS activities in Africa. In 2006, Budget (USD) UNHCR will aim to address several key areas that Country Annual Programme characterize the HIV/AIDS situation for refugees in Budget Asia. UNHCR will pay greater attention to identify- ing and reaching those groups that are at greatest Bangladesh 3,090,368 risk with preventive interventions and services. India 3,858,589 UNHCR – especially through the UN thematic Nepal 6,865,442 groups on HIV/AIDS – will also advocate for the inclusion of refugees in regional and national Sri Lanka 8,827,990 HIV/AIDS programming at all levels. Similarly, the Total 22,642,389 Office will ensure that minimum standards are met and will work with its implementing and oper- ational partners to provide comprehensive

267 UNHCR Global Appeal 2006 Nepal

Main objectives Planning figures Population Jan 2006 Dec 2006

1 • Provide legal and physical protection to refugees, IDPs 200,000 200,000 asylum-seekers and others of concern while Camp population 105,000 105,300 pursuing durable, comprehensive solutions Tibetan refugees 20,000 20,000 with relevant governments. Populations of con- (settled) cern include newly arrived Tibetans and individual mandate refugees. Tibetans (in transit) 3,000 3,000 • Actively participate in the inter-agency Mandate urban response to internal displacement; assist and refugees/asylum- 675 190 seekers protect internally displaced persons (IDPs) and seek to identify solutions within a collaborative Total 328,675 328,490 approach. 1 The number of IDPs in Nepal is an estimate, as currently there is no formal or • Promote harmonious relationships between comprehensive system for identifying or registering Nepalese IDPs. refugees and surrounding communities, by means of joint development projects and Total requirements: USD 6,865,442 environmental protection.

UNHCR Global Appeal 2006 268 for further treatment for an ageing and anxious Working environment population; there are more chronically ill and psychiatric patients than ever. The camp space Recent developments has become overpopulated and the average area per person is sub-standard. In February 2005, the King dismissed the Government and assumed direct executive While UNHCR remains committed to the compre- powers. National protection has been severely hensive solutions approach to resolving this pro- weakened by the resulting impasse – involving the tracted situation – and there has been growing Government, political parties, and rebels – as well interest among the international community to as military clashes and civil unrest. In the rural support these efforts – much depends on the areas, basic health, education, social and legal extent to which the two governments will be services are on the point of collapse. Tens of willing to broaden their approach within the thousands of Nepalese have moved from their framework of the bilateral process. To ensure villages for protection and basic survival. As a adequate protection of the beneficiaries, result, the favourable protection environment UNHCR has recommended the implementation towards refugees and asylum-seekers that of its new registration system and standards in prevailed in the past is being jeopardized. Nepal. The Office is still awaiting the approval of the Government to initiate this important and The opening of an office by the UN High long overdue task. Commissioner for Human Rights (OHCHR) to monitor, investigate and report on escalating The global increase in oil prices has reduced the human rights violations reflects a deteriorating already limited resources available for the refugees. humanitarian and human rights situation. A In 2006, UNHCR will begin to introduce viable concerted international effort is required to alternative energy sources to replace the kero- prevent the country from heading towards a sene used for cooking. serious complex emergency. UN and other international organizations are therefore putting forward a consolidated response plan, Strategy appealing for a total of USD 64.5 million.

Protection and solutions Nepal Constraints Promoting protection and the identification of Volatile political and security conditions hinder durable solutions for refugees, asylum-seekers progress in the search for durable solutions and and internally displaced people will be coordi- continue to threaten the protection environment nated with the Government, UN agencies, donors, for persons of concern to UNHCR. General strikes displaced populations and NGO partners. The have restricted UNHCR’s ability to access and Office will pursue the improvement of the quality monitor the camps on a daily basis and have ham- of asylum, emphasizing registration and individual pered the timely delivery of relief items. The lack documentation. It will also advocate for the right of police presence in the camps is a cause for to work, access to education and health facilities serious concern, as insurgents’ activities have and provide direct legal support, counselling and increased in the vicinity of the camps. referrals. A similar approach will be adopted for IDPs, as many lack the basic but vital documents For the camp population, the protracted stay, lack necessary to access public services within Nepal. of meaningful work opportunities and no apparent prospect of solutions fuel frustration and alter While respecting the bilateral process involving social and political attitudes within the refugee the Governments of Nepal and Bhutan in regard community. Pressure on primary health centres to repatriation, the Office will, in the interim, pro- grows, with increased prescriptions and referrals mote the resettlement of vulnerable refugees for

269 UNHCR Global Appeal 2006 Bhutanese refugee boys in Khudunabari camp take a little respite from the monsoon rains. UNHCR / J. Pagonis Nepal Nepal whom repatriation is clearly not an option. Local Prevention of sexual and gender-based violence integration opportunities will be explored within (SGBV) in the camps and among displaced groups the context of the comprehensive approach. is a high priority activity. The Office will maintain the current comprehensive and effective mecha- In 2005, the Government restarted individual nism for response to SGBV survivors and their status determination processes for asylum- families and will further increase awareness seekers and new arrivals. With UNHCR supervision, among the community and local authorities. case processing continues, in an effort to address Problems such as early and forced marriages and the backlog of pending applications and appeals. the trafficking of women and girls will be In the camps, the Government has recently addressed though mass information campaigns recognized 500 children who were not previously and educational and skills training activities. In recognized as refugees, and has started providing order to carry out the same work for IDPs, intensi- temporary rations for them. UNHCR will work fied cooperation with UN agencies is required. with the Government to build on this positive development. Due to the absence of local integration prospects for mandate refugees in Nepal, this population will To maintain peace and stability within the refugee be proposed for resettlement as soon as they are camps, UNHCR will further enhance the role and formally recognized as refugees. responsibilities of community-based mechanisms in the camps requiring significant capacity UNHCR will continue to conduct mandate indi- building and close supervision. vidual status determination of asylum-seekers in

UNHCR Global Appeal 2006 270 Kathmandu. Due to prevailing conditions of inse- who are transiting through Nepal en route to a curity, no substantial increase in the number of third country and will assist them with food, new asylum-seekers is expected, but the temporary shelter and medical care. day-to-day protection concerns of those already in Nepal have increased. The Office will work to Within the context of the inter-agency humanitarian ensure that the detention of refugees and asylum- response in Nepal, UNHCR will provide protection, seekers is minimized. shelter and non-food assistance to needy IDPs. In addition to direct legal services, registration and UNHCR will continue to assist Tibetans transiting documentation for IDPs, UNHCR will establish through Nepal to a third country by ensuring safe open information centres and mobile teams for passage through Nepal and appropriate assistance displaced and vulnerable persons. en route, provided minimum security standards are met. The Office will increase missions to bor- UNHCR will also continue to provide protection ders and other areas to ensure that the access of assistance to the pre-1991 Tibetan arrivals, espe- Tibetans to transit through Nepal is upheld. cially regarding the issuance of identity cards, birth certificates for children born in Nepal and travel documents to those departing for family Assistance reunification abroad.

The assistance programme for the refugee popu- lation covers all aspects of their needs including Desired impact food, health, education, shelter, water, sanitation, prevention and response to SGBV, as well as legal The camp populations, while receiving adequate counselling and representation. The assistance protection and assistance pending durable solutions, component will be constantly reviewed and modi- will play an active role in managing their own com- fied, focusing on durable solutions and self-reliance munities, ensuring order in the camps and identi- of the refugee population as well as protecting the fying and prioritizing their needs. Sexual and environment and promoting coexistence between gender-based violence and trafficking incidents the refugees and host population. Female refugees will decrease, with greater awareness and appro- will be given priority for skills training and leadership priate follow-up including legal action. training activities. The refugee community will be encouraged and empowered to identify vulnerable The mixed urban refugee groups’ applications will Nepal families and design the appropriate safety net for be adjudicated by UNHCR protection staff within each family. Increased self-reliance will continue a reasonable period of time and according to with a particular emphasis on involving greater num- procedural standards. Those recognized will be bers of women in income-generating projects. In considered for resettlement. anticipation of a potential outbreak of avian flu or other threats to public health, a contingency The situation of IDPs in Nepal will be properly response capacity will be built up in the areas of assessed on the basis of the Guiding Principles on Inter- the camps. nal Displacement. Registration and documentation will be provided according to international standards. The urban asylum-seeker and refugee populations IDPs in need of shelter and basic domestic items are also heavily dependent on external support as will be identified and provided with material assis- they lack opportunities for self-reliance. The tance as appropriate. changing demographics of this group and their growing educational and psychosocial needs will be addressed through local partners. UNHCR will continue to provide urban refugees with protection, legal counselling and subsistence allowances. The Office will also continue to facilitate the passage of Tibetans who are of concern to UNHCR and

271 UNHCR Global Appeal 2006 Organization and Offices Kathmandu implementation Damak

Management structure Partners UNHCR will operate with 59 staff (17 internation- als, including JPOs and UNVs, and 42 nationals, Government agency including national UNVs). The Office of the Repre- Ministry of Home Affairs / National Unit for the Coordination of Refugee Affairs sentative in Kathmandu is responsible for overall management of the country operations, as well as for liaising with the Government, diplomatic NGOs missions, NGOs and other interested parties. Association of Medical Doctors of Asia Operations in eastern Nepal are coordinated by CARITAS (Nepal) the sub-office in Damak. Lutheran World Federation Nepal Bar Association Norwegian Refugee Council Coordination ProPublic

UNHCR will lead standard setting for protection and assistance for refugees, asylum-seekers and Others others of concern, working closely with the Ministry WFP of Home Affairs. UNHCR will also coordinate the OCHA inter-agency response to shelter needs of IDPs in OHCHR Nepal, and, together with OHCHR and OCHA, help set standards and responses to the protection needs of IDPs. Budget (USD)

Refugees, asylum-seekers and IDPs will be involved Activities and services Annual Programme Budget in the planning, implementation and evaluation of Nepal Protection, monitoring the activities relevant to their protection and 1,663,725 and coordination well-being, including the participation of refugee women in camp management. Community services 92,859 Domestic needs 2,054,683 In order for refugees to be included in national programmes for health and education, coordination Education 488,336 will continue with concerned government ministries, Food 114,193 sister UN agencies, refugee organizations and Health 677,360 international and national NGOs. Legal assistance 114,817 UNHCR will be actively involved in the UN Country Operational support (to 297,160 Team (UNCT) on the Consolidated Appeal Process agencies) (CAP), the Common Country Assessment (CCA) and the UN Development Assistance Framework Sanitation 30,093 Shelter/other (UNDAF) processes. UNHCR continues to be an 159,186 active member of the UN Security Management infrastructure Team and Disaster Management Team. UNHCR Transport/logistics 170,542 coordinates or is represented on inter-agency Water 61,771 groups focused on IDPs and matters related to sexual exploitation and abuse, trafficking of Total operations 5,924,725 women and girls and the promotion of birth regis- Programme support 940,717 tration and certification. Total 6,865,442

UNHCR Global Appeal 2006 272 Sri Lanka

Main objectives

• Promote durable solutions for the remaining conflict-related inter- nally displaced persons (IDPs) through targeted return and relo- cation projects. • Monitor the overall protection and security situation of vulnera- ble IDPs, especially women and children, with special emphasis on addressing issues of sexual and gender-based violence (SGBV). • Provide protection and legal advice to individuals in recovering lost documents, including birth and death certificates, national identity documentation and land and property documentation. • Assist the Government of Sri Lanka and the Government of India to implement a voluntary repatriation Planning figures programme for those refugees residing in Population Jan 2006 Dec 2006 camps in southern India. • Continue to lobby for accession to the 1951 IDPs 337,000 317,000 Convention Relating to the Status of Refugees Returnee IDPs 49,000 35,000 and its 1967 Protocol, the 1954 Convention Returnees 15,000 20,000 Relating to the Status of Stateless Persons and the 1961 Convention on the Reduction of Asylum-seekers 100 250 Statelessness. Other refugees 100 120 • Assist in the UN-wide effort to mitigate the Total 435,120 320,330 effects of the tsunami in line with the UN Transitional Strategy for Sri Lanka with an emphasis on parity of treatment for conflict- Total requirements: USD 8,827,990 displaced and tsunami-displaced people. Working environment

Recent developments

Sri Lanka stands at a crucial juncture, with signs of increasing political and military turbulence ahead of the November 2005 presidential election.

273 UNHCR Global Appeal 2006 Military clashes and targeted political assassina- Constraints tions contributed to a generalized climate of fear. These developments, as well as the devastating Although the ceasefire has held, small-scale vio- effects of the Indian Ocean tsunami disaster on 26 lence has continued throughout 2005, especially December 2004, are serious setbacks and are in the east. The very fragile state of peace, unsta- proving detrimental to the country’s early recov- ble and frequently interrupted, makes the plan- ery. The international community has conse- ning of programme interventions for Sri Lanka a quently intensified its efforts to inject renewed demanding process. Major obstacles impeding energy into the peace process, and a proposal to solutions for those who remain internally dis- resume peace talks has been negotiated. placed related to continuing security concerns; landlessness and general poverty; the lack of ade- UNHCR immediately responded to the tsunami quate investment in restoring basic infrastructure disaster by opening up its local supplies for distri- in war-torn areas; the lack of opportunities for bution to affected areas. This intervention was local integration, especially income generation; largely in response to humanitarian needs that the need for property restitution; and the continu- emerged in areas where UNHCR was operating, ing presences of landmines. and was part of the UN response to the Secretary- General's call to all agencies to assist regional In late 2004, the Indian Ocean tsunami caused governments to effectively address immediate further devastation. It is expected that UNHCR’s needs. Given the history of UNHCR’s work in pro- involvement in all tsunami-relief sectors except tecting and assisting IDPs affected by the conflict, protection will have ceased by the beginning of the Office advocated for equitable treatment of 2006. UNHCR will continue to advocate for a par- both those displaced by the conflict and the ity of efforts for those displaced by the conflict tsunami. and those displaced by the tsunami.

When the tsunami struck, there were already some 353,000 persons displaced by the conflict who Strategy were still in need of a dignified and durable solu- tion. Amongst these, over 70,000 persons resided r Lanka Sri in government-run welfare centres and were con- Protection and solutions sidered to have the most acute needs. The natural disaster further displaced over 570,000 persons; It is reasonable to assume that the majority of the many sought refuge with family and friends, while people displaced by conflict who are willing and the rest were sheltered in public buildings and col- able to return to their place of origin should have lective accommodation. It was recognized that done so by the end of 2005. In 2006, the focus will such structures would only provide a temporary be on finding alternative solutions, such as relo- solution and that reconstruction will take several cation and local integration, for those remaining. years. Consequently, the concept of the transi- Therefore, UNHCR has initiated a profiling exer- tional shelter was developed by UNHCR, which cise in the conflict-affected IDP communities to played a key role in assisting the Government to identify those individuals who need assistance to coordinate international aid to the affected areas. find a permanent solution. In 2006, UNHCR will By September 2005, all those in need of a transi- concentrate on intervention to mitigate obstacles tional shelter had been provided with one, and of to return. This will include advocacy for the alloca- the 55,000 transitional shelters built for the tsu- tion of land, jungle clearance, building of shelters, nami victims, 4,000 were provided by UNHCR. water and sanitation facilities, and addressing protection and security concerns. In addition, an estimated 130,000 Sri Lankan refu- gees were living abroad at the beginning of 2005, Restitution of documentation, such as birth, of whom approximately 70,000 were housed in death and marriage certificates, and land and camps in Tamil Nadu, India. property deeds lost either due to the conflict or the tsunami will be part of the protection

UNHCR Global Appeal 2006 274 Sri Lanka

UNHCR has been assisting people displaced by the internal conflict in Sri Lanka for more than a decade. In January 2005, UNHCR established Manatkadu camp for 210 IDP families displaced as a result of the tsunami disaster. Here, a family in Jaffna who survived the tsunami but lost all their belongings receiving new fishing nets. UNHCR / H. J. Davies intervention. In addition, the Office will explore change of status for those who have found alter- means to empower communities to become native durable solutions. self-reliant and make informed, independent choices about their preferred durable solution. Since 2002, UNHCR has operated a small-scale There will be increased focus on promoting local programme of facilitated return from India, which integration, and advising the Government on the was designed as a safety valve to prevent

275 UNHCR Global Appeal 2006 repatriating refugees from resorting to dangerous and illegal travel routes when returning home. As Organization and part of its mandate, UNHCR will continue to moni- implementation tor the protection conditions and reintegration possibilities for those refugees returning from Management structure India.

In 2006, UNHCR will operate with a total of 18 Assistance international staff, including JPOs and UNVs, and 67 national staff. By December 2005, UNHCR’s engagement in shel- ter coordination and the provision of relief items The UNHCR Representation in Colombo is to tsunami-displaced people will have been com- responsible for the overall management of the pleted. For those displaced by conflict, UNHCR programme and for liaison with the Government, will focus on assistance activities that anchor embassies and NGOs. To ensure adequate pres- returnees in their original communities or in their ence in affected regions, UNHCR will maintain six chosen place of relocation. This includes the field-based offices, including sub-office Vavuniya upgrading of infrastructure and advocacy for (covering field offices in Mannar, Kilinochchi and small-scale income-generating projects. These Jaffna), and sub-office Trincomalee (covering field efforts will be coordinated with the longer-term office Batticaloa). permanent rehabilitation/reconstruction projects. Through its presence and material support, Coordination UNHCR will monitor the general welfare of returnees and those who remain displaced. Immediate humanitarian assistance will be given The Repatriation, Reintegration, Rehabilitation to returnees and to extremely vulnerable IDPs. and Reconstruction initiative (“4Rs”) is the basis Given the focus on finding durable solutions, of UNHCR’s approach to transitional issues. The there will be an added emphasis on targeted Office will actively promote joint planning and assistance to communities who are willing to relo- cooperation among Multilateral Group actors – r Lanka Sri cate or reintegrate. This assistance will take the such as the World Bank and the Asian Development form of shelter, small-scale rehabilitation of infra- Bank – and various UN agencies. Furthermore, the structure, community mobilization, and income- programme strategy includes a joint UNDP, ILO, generating activities. UNICEF and UNHCR “4Rs” project in the north and east of Sri Lanka.

Desired impact UNHCR coordinates its protection and assistance programme directly with the Government of Sri The established protection network consisting of Lanka. Through a strategic partnership with the UNHCR field offices and local and international Ministry of Relief, Rehabilitation and Reconcilia- NGOs will continue to monitor the overall human tion (MRRR), UNHCR ensures that programmes rights situation and respond to the needs of the accord with Government and national priorities. The vulnerable groups at risk. In addition, the Office MRRR defines and coordinates the Government’s has various transitional arrangements to ensure policy on relief and rehabilitation assistance to that return and reintegration of IDPs and refugees IDPs and returning refugees. are viable and effective. The Office will provide accurate information and immediate assistance to those who want to return, relocate and/or rein- tegrate. In pursuing this, the Office will also seek the support of the UN Country Team and other agencies, including bilateral donors, to help make solutions sustainable.

UNHCR Global Appeal 2006 276 Offices Budget (USD)

Colombo Activities and services Annual Programme Batticaloa Budget Jaffna Protection, monitoring 2,737,229 Kilinochchi and coordination Mannar Community services 712,831 Trincomalee Vavuniya Domestic needs 673,927 Education 12,475

Health 9,980 Partners Legal assistance 2,132,888 Government agencies Operational support (to 463,666 District Government Agents agencies) Ministry of Relief, Rehabilitation, and Reconciliation North East Provincial Council Transport/logistics 165,235 The Census Bureau Total operations 6,908,230 The Ministry of Public Administration and Home Affairs (Registrar General’s Department) Programme support 1,919,760 The Ministry of the Vanni Total 8,827,990

NGOs Association of Women with Disabilities Bridge Asia Japan Campaign for Development and Solidarity (FORUT) Danish Refugee Council Foundation for Co-Existence Jaffna Social Action Centre Lanka Jatika Sarvodaya Shramadana Sangamaya Norwegian Refugee Council Peace and Community Action

Rural Development Foundation Sri Lanka Sri Lanka Red Cross Society Women in Need Women’s Development Centre

Others Asian Development Bank FAO GTZ ILO National Human Rights Commission UNDP UNICEF UNV WFP WHO World Bank

277 UNHCR Global Appeal 2006 East Asia and the Pacific

Australia Recent developments Cambodia China n 15 August 2005, the Government of OIndonesia and the Gerakan Aceh Merdeka Democratic People’s Republic of (Free Aceh Movement) signed a Memorandum of Korea Understanding (MoU) to confirm their commitment to a peaceful, comprehensive and sustainable Indonesia solution to the conflict in the Province of Nanggroe Japan Aceh Darussalam. It is hoped that the implementa- tion of this agreement will enable those Acehnese Lao People’s Democratic Republic currently outside of the country to repatriate in Malaysia safety and dignity, particularly from Malaysia, where some 20,000 Acehnese are presently registered with Mongolia UNHCR. The Office stands ready to assist all parties Myanmar concerned within its responsibilities and expertise.

New Zealand Also in Indonesia, UNHCR participated in the Papua New Guinea multi-agency emergency response to the earth- quake and subsequent tsunami in the Indian Philippines Ocean on 26 December 2004, in the Province of Republic of Korea Nanggroe Aceh Darussalam. UNHCR withdrew from Aceh upon completion of the emergency phase in Singapore March 2005, but returned to the area in June 2005 South Pacific at the invitation of the Indonesian Government. The main efforts will be concentrated on Thailand supporting the rehabilitation and reconstruction in Timor-Leste the Province of Nanggroe Aceh Darussalam and in Nias Island, North Sumatra, where immediate Viet Nam assistance was provided for some 20,000 persons UNHCR continues to work on the Myanmar-Thailand border, although a major government reshuffle in Myanmar, beginning in October 2004, has had an impact on humanitarian assistance in general. Conditions in Myanmar are not conducive to organized voluntary repatriation. UNHCR plans to develop an integrated protection and assistance framework in 2006 in close consultation with the local population as well as local authori- ties. At the same time, in Thailand, UNHCR will increasingly focus on alternative solutions such as reset- tlement. In the Northern Rakhine State of Myanmar, UNHCR will focus its efforts on providing ade- quate protection to the returnees, most of whom are stateless and lack clear legal status.

UNHCR was granted access to the central highlands of Viet Nam in order to monitor the welfare of the Montagnards who returned as a consequence of the MoU signed in January 2005. UNHCR plans to implement micro-projects to assist in the integration of these affected by the 28 March 2005 earthquake. returnees in 2006. UNHCR's renewed involvement is based on a comprehensive inter-agency and community- East Asia and the Pacific based programme, including the construction of houses, municipality and community buildings Strategic objectives and related infrastructure. A pilot project for the construction of 1,022 shelters has started in As recommended in the Agenda for Protection, Krueng Sabee, Aceh Jaya. UNHCR will intensify various promotional and training efforts to support accession to the 1951 Some 6,500 Hmongs from the Lao People’s Refugee Convention, its 1967 Protocol and the Democratic Republic (Laos) living in Pechabun 1954 Statelessness Convention, in order to con- Province in Thailand were evicted from their tem- tribute to further strengthening the protection porary shelter in August 2005. Some of them may environment in the region. Promotional and have only recently arrived from Laos. UNHCR has awareness-raising activities will focus on increasing offered its assistance to the Royal Thai Government understanding of refugee problems among in the review of their claims for asylum. UNHCR governments and the general public and creating hopes to gain access to this group in order to a positive attitude towards asylum-seekers and identify those who may be in need of protection. refugees.

279 UNHCR Global Appeal 2006 New Zealand: Refugee children from different countries play at the newly opened Early Childhood Development Centre, run by a partner in Mangere Refugee Resettlement Centre. UNHCR / I. Earp-Jones

UNHCR will also focus on the pursuit of durable start in Thailand, Malaysia, Papua New Guinea solutions for refugees and asylum-seekers and will and Myanmar at the end of 2005, and will be atAi n h Pacific the and Asia East reinforce emergency preparedness. The Office is extended to Australia, Cambodia and China, maintaining its commitment to support the including Hong Kong Special Administrative Asia-Pacific Consultations. It also intends to Region (SAR), and Japan. strengthen its ties with the Association of South-East Asian Nations (ASEAN) in order to UNHCR maintains its commitment to improve advance the debate on preserving the integrity of mechanisms to identify victims of sexual and asylum in the context of secondary movements, gender-based violence (SGBV) at an early stage mixed flows of people and the legitimate concern during the refugee status determination (RSD) pro- of States in the region to manage migration and cess. This was particularly successful in Malaysia, combat human smuggling and trafficking. The where the reporting of SGBV incidents has Office will ensure follow-up to the Bali Regional improved. It is expected that this best practice will Ministerial Conference on People Smuggling, Traf- be extended to other countries in the region. To ficking in Persons and Related Trans-National this end, standard operating procedures on how to Crime. handle and prioritize SGBV cases will be developed in countries conducting major RSD activities. In partnership with Japan’s International Coopera- tion Agency, the Tokyo-based “eCentre” continues UNHCR will continue to engage NGOs in dialogue to represent a significant regional asset as it pro- on prevention and response in order to identify gaps vides regular training on emergency preparedness and better address the needs of SGBV survivors. and response to NGOs and relief workers in Japan There has been some significant progress in and the Asia-Pacific region. securing justice for SGBV survivors and efforts will be made through legal training to boost the imple- Implementation of UNHCR’s age, gender and mentation of national judiciary systems in SGBV diversity mainstreaming project is expected to cases.

UNHCR Global Appeal 2006 280 legal status which hopefully will lead to naturalization, Operations in recognition of their successful integration over some 25 years. UNHCR continues to call for the issuance of appropriate national refugee regula- The programme in Thailand is described in a tions, and for increased access to North Korean separate chapter. asylum-seekers who may be in need of interna- tional protection. In Hong Kong Special The UNHCR Regional Office in Australia also Administrative Region (SAR), UNHCR will con- covers New Zealand, Papua New Guinea and the tinue to undertake RSD, seek durable solutions South Pacific. The main activities in these countries and provide assistance to refugees and asy- will involve advice and advocacy on behalf of asy- lum-seekers. UNHCR will also urge local authori- lum- seekers on protection-related matters, partic- ties to adopt refugee regulations, building on ularly with regard to selected individual cases in Hong Kong SAR's commitment to respect human need of protection, promotion of refugee law and rights and the rule of law. In Macao SAR, following provision of advisory and technical support to the the adoption of new asylum legislation in 2004, the authorities concerned. UNHCR will advocate for Office will further support the local authorities as maintaining or enlarging the existing resettlement they develop their capacity to address asy- programmes in Australia and New Zealand and for lum-related issues. applying the UNHCR protection criteria. The Office will offer technical support and training, and will In Indonesia, the assistance programme in 2006 will continue to participate in regional forums such as be oriented primarily to provide for the basic needs of the Pacific Immigration Directors’ Conference and individual urban and/or semi-urban refugees, such as the South Pacific Forum Secretariat. Through food, accommodation, education, medical and active dialogue and public awareness campaigns community services, as they suffer from economic UNHCR will continue to urge authorities in the hardship and lack access to employment oppor- region to accede to the 1951 Refugee Convention tunities. The Office will maintain the Temporary Refugee Convention and 1967 Protocol. The Office Protection Scheme for all Iraqi nationals as well as will also encourage Fiji and the Solomon Islands to Afghan asylum-seekers whose claims have been implement legislation incorporating elements rejected, while continuing to facilitate dialogue of the Convention and appropriate procedures to with the persons concerned, the Indonesian admit asylum-seekers, and to conduct formal RSD. authorities, and traditional resettlement countries In Cambodia, the MoU signed in January 2005, with regard to practical solutions for them. Fur- which has providedsolutions forhundreds of ther steps will be undertaken to find durable solu-

Montagnards, will need to be adapted to deal with new tions for recognized refugees through resettlement East Asia and the Pacific arrivals. The Office will also assist the Government in activities. After completion of its involvement in gradually establishing the necessary legal frame- the local settlement and repatriation activities in work for refugee protection and asylum, as well as West Timor by the end of 2005, UNHCR will main- a credible refugee status determination proce- tain its monitoring role in the area. dure, ensuring that gender and age issues are mainstreamed at every stage of activities. In the In Japan, UNHCR will continue to cooperate with meantime, UNHCR will continue to conduct RSD the authorities towards further strengthening the and assist needy refugees, while strengthening asylum procedures following the amendment of the the capacity of the Government and national Immigration Control and Refugee Recognition Act in NGOs to respond more effectively to protection 2004 and its entry into force in June 2005. The Office and humanitarian needs of refugees, asylum- maintains close contact with the Ministry of Justice seekers and stateless persons. and monitors RSD procedures. Another area of cooperation is the identification of durable solu- In China, UNHCR is seeking durable solutions for tions for the last few mandate refugees. The Office individual refugees principally through resettle- will also continue to focus on monitoring and ment and, in the case of Vietnamese refugees in capacity-building activities aimed at promoting fair mainland China, through the granting of a formal asylum procedures, adequate reception

281 UNHCR Global Appeal 2006 arrangements for asylum-seekers, alternatives to the Government in establishing asylum mecha- detention, complementary forms of protection, as nisms and domestic legislation expressive of well as the creation of a resettlement intake the Convention. Meanwhile, UNHCR will help programme. Further exchanges with key establish an interim asylum procedure. The parliamentarians and other influential actors will Office expects to conclude a Country Agreement also be crucial in achieving these goals. with the authorities in 2006.

In the Republic of Korea, UNHCR will continue In Myanmar, UNHCR’s assistance activities in to promote the strengthening of the implementa- Northern Rakhine State will continue to facilitate tion of the 1951 Refugee Convention by provid- the voluntary repatriation of the few refugees in ing further support and inputs to the Bangladesh who may wish to come back to Government in the ongoing efforts to establish Myanmar. The Office aims in particular to ensure a national asylum system. The Office aims to the sustainable reintegration of returnees with address potential areas for overall improvement special needs. UNHCR’s operation will entail regular of asylum matters and refugee protection in close field monitoring, continuous dialogue on general cooperationwithconcernedministries,suchasthe protection issues and intervention on behalf of ministries of Justice, Health and Social Welfare, individual returnees with the local and central Labour, and Education. Similarly, the Office will authorities. The de facto statelessness of the bene- forge effective partnerships with national NGOs in ficiaries further compounds the challenges cre- order to raise public awareness on global refugee ated by the remoteness of this border area, its issues among civic groups and the public, and to geography, harsh weather conditions and the establish a local safety network for groups with position of the Government of Myanmar. As part specific needs. of its protection and advocacy-related interven- tions, UNHCR also offers various assistance UNHCR welcomes positive developments in activities for this population of concern. These Malaysia, where the humanitarian provision include housing cash grants for new returnees as available to various groups of concern to UNHCR well as assistance for registration, Myanmar lan- atAi n h Pacific the and Asia East has widened considerably in the course of 2005. guage training and support to savings and loan Not only has documentation issued by UNHCR in schemes for motivated groups of mostly women effect been recognized by the authorities, but also villagers (with the aim that, in time, they run the efforts are under way to absorb temporarily some schemes by themselves). The operation on the existing refugee populations into the labour Myanmar-Thailand border started in 2004 follow- market. The constructive engagement on the part ing an ad hoc agreement between the Myanmar of the authorities has also resulted in releases Government and UNHCR. While activities on the from detention centres, as well as better access to Myanmar side of the border are carried out in 14 health-care facilities. UNHCR is hopeful that townships in Kayin State, Mon State and some of the remaining issues, such as access to Tanintharyi Division, which are the major areas of education, will be resolved positively in the origin of the refugees in Thailand, the situation is course of 2006. UNHCR will reinforce its efforts to not yet deemed conducive to repatriation. The same provide community services and financial assis- areas are expected to eventually absorb the majority tance for food, emergency shelter, urgent medical of those who choose to return from Thailand, as well attention, transport, basic education, vocational as a possibly larger number of internally displaced training and legal assistance to refugees with spe- people who live in border areas on the Myanmar cific needs, including women and children. side. Community-based projects will help improve local access and basic services for the remaining In Mongolia, UNHCR will closely monitor the population, which in turn will start building well-being and protection of North Koreans. capacity to cope with the impact of a future repa- UNHCR welcomes the significant steps taken by triation to such a remote border area. The major- the authorities towards accession to the 1951 ity of the projects are designed to provide access Refugee Convention, and will continue to assist to clean water, health services at village level, and

UNHCR Global Appeal 2006 282 the construction, repair or extension of primary Montagnard returnee areas in the central highlands schools. of Viet Nam. In addition, UNHCR will coordinate with the host country and resettlement countries In Papua New Guinea, the Office will continue concerned to set up a mechanism to facilitate to ensure that adequate protection is provided to resettlement of refugees from Viet Nam. UNHCR refugees from the Indonesian province of Papua will also seek to build the capacity of government and from elsewhere, including registration with the officials by providing training on international national authorities and documentation of West standards applicable to refugees and on RSD pro- Papuan refugees living in border camps. Targeted cedures. UNHCR’s interventions will also be assistance will continue to be provided to the East designed to expedite the naturalization of 2,360 Awin relocation site. UNHCR will gradually stream- Cambodian refugees (already approved in princi- line its support to the Vanimo group of refugees, ple by the Government). Finally, UNHCR will seek focusing more on their self-reliance and local inte- to agree with the Government on a mechanism to gration while continuing legal and educational assess the number of stateless persons living in support. Viet Nam in order to develop a comprehensive strategy for the reduction of statelessness. In the Philippines, UNHCR will aim at broadening the level of discussion on refugee issues at the Region-wide HIV/AIDS activities covering South national level by reorienting the advocacy frame- East Asia are described in the South Asia chapter. work to wider and relevant processes on issues such as immigration, migration, human trafficking, Budget (USD) gender, development, internal displacement and Country Annual Programme human rights. Capacity-building initiatives will be Budget centred on best practices, full implementation of Australia and New Zealand 1,121,818 the Philippines’ obligations under the Refugee Convention, institutionalization of refugee policy Cambodia 1,391,801 and legislation, and improvement of reception China 4,212,665 standards. The attainment of durable solutions Indonesia 2,659,546 for urban refugees will remain one of the main Japan 3,352,845 objectives (involving naturalization and perma- nent residence or repatriation). Malaysia 3,268,264 Mongolia 111,846 A limited operational presence will be maintained Myanmar 4,845,122 in Singapore through an implementing partner East Asia and the Pacific Papua New Guniea 465,732 agreement. The programme’s focus will be on timely RSD and resettlement activities. Philippines 219,395 Republic of Korea 861,340 With a much reduced presence in Timor-Leste, Singapore 46,000 UNHCR will continue to support the development Thailand 7,665,945 and implementation of asylum law and regulations, the creation of standard operating procedures, Timor-Leste 308,888 and reception and processing facilities. Training Viet Nam 443,937 activities will seek to build the capacity of the 1 Regional activities 230,000 national authorities to carry out refugee reception and status determination functions in accordance Total 31,205,144 with national and international standards. 1 Includes general protection activities, dissemination of refugee law, transport and repatriation-related activities and scholarships for refugee students in East In Viet Nam, the smooth implementation of the Asia and the Pacific. tripartite Memorandum of Understanding will entail UNHCR’s continued access to the

283 UNHCR Global Appeal 2006 Thailand

Main objectives • Further strengthen partnership with donors, governments, UN and intergovernmental agen- cies and NGOs. • Ensure admission, documentation, and recep- • Improve the protection environment through tion of asylum-seekers and refugees and the promotion of international standards on support the establishment of state-owned refugees and stateless persons. asylum procedures. • Undertake measures to improve refugee rights, Planning figures mitigate the consequences of a protracted Population Jan 2006 Dec 2006 refugee situation and better prepare refugees for durable solutions. Myanmar (refugees) 140,000 140,000 • Address security-related concerns more effec- Asylum-seekers 550 600 tively and ensure the physical safety of Other refugees 450 400 refugees. • Ensure age- and gender-based operations Others of concern 5 5 planning and implementation. Total 141,005 141,005 • Consolidate and expand the strategic use of resettlement as a protection and durable solu- Total requirements: USD 7,665,945 tions tool.

UNHCR Global Appeal 2006 284 refugees is now an accepted policy, and has also Working environment agreed to the resettlement of some 5,000 Myanmar urban refugees. This policy shift will Recent developments allow resettlement to become an increasingly dominant feature of this operation. On the other There are an estimated 140,000 refugees from hand, while ceasefire negotiations in Myanmar in Myanmar living in nine camps on the early 2004 led to expectations of an impending Thai-Myanmar border, including some 20,000 voluntary repatriation, it has now become an unregistered people in the camps. A joint re-regis- increasingly elusive prospect. tration exercise took place in 2005 using the soft- ware developed by Project Profile. Besides In 2004, an agreement was reached on the reacti- providing accurate numbers, this exercise will vation of the Provincial Admission Boards (PABs), also yield information on vulnerability as well as which came to a halt at the end of 2001. This protection and resettlement needs. Some of the included an expansion of the admission criteria refugees have been living in the camps for more which had previously been restricted to persons than 20 years. The protracted nature of the prob- “fleeing fighting” to now include those “fleeing lem is compounded by two factors: the prolonged persecution or for other reasons”. This was a very stay in a secluded camp environment and the fact significant improvement on the previous “working that conditions in Myanmar are not yet condu- arrangements”. However, the agreement foresees cive to voluntary repatriation. This static situa- that persons admitted under the new expanded tion is creating a host of social and psychological criteria will have to be resettled. Although the problems, ultimately leading to an erosion of the PABs are yet to start operating, this is an impor- refugees’ coping mechanisms. In addition, there tant step towards the establishment of a national are some 1,000 refugees and asylum-seekers from asylum structure in a non-Convention environment. elsewhere for whom resettlement is the only via- ble durable solution, albeit an increasingly diffi- Another encouraging development was the suc- cult goal to achieve. cessful implementation of the migrant workers’ reg- istration scheme. Some 1.3 million were registered, Thailand is not party to the 1951 Refugee Convention including nearly a million from Myanmar. This paved but has traditionally maintained a generous the way for refugees and those in a refugee-like asylum policy. There is no asylum procedure situation to regularize their status and reduce incorporating the principles of the Convention. pressure on the asylum channel, and is a compel- Thailand The status of refugees in the camps is regulated by ling example of best practice in the region. The ad hoc administrative arrangements whilst refugees policy had a dual purpose: addressing labour outside the camps would fall under the provisions shortages in Thailand and regularizing the situa- of the Immigration Law and are considered illegal tion of illegal migrants whose lack of registration migrants. The re-registration exercise is expected was perceived as creating a security problem. An to regularize this situation and provide all refu- important aspect of this labour management pol- gees with a registration document. icy is the effective way it addresses the interface between migration and asylum. The UNHCR operation for 2006 aims at building upon several positive developments to date. The Recently, the Government has become increas- successful implementation of the resettlement ingly aware of the negative consequences of the programme for 15,500 Hmong Lao refugees who perpetuation of a protracted camp situation and were living in Tham Krabok, Thailand, has paved the limited rights accorded to refugees. Besides the way for the recognition of resettlement as a inactivity and the loss of professional skills, strategic and burden-sharing tool. The Government’s psychosocial problems and domestic violence are openness towards resettlement is a new on the rise in the camps. Malnutrition is consid- development which contrasts with the restrictive ered to be unusually prevalent for a stable refugee approach adopted in the past. The Government situation. This is attributable to the lack of diver- has confirmed that resettlement of camp-based sity in the diet and the lack of resources with

285 UNHCR Global Appeal 2006 Karen refugees learn new skills at the vocational centre funded by UNHCR's Goodwill Ambassador Angelina Jolie in Tham Hin Camp. UNHCR / J. Pagonis which to purchase additional food items. Clearly a Constraints disturbing threshold has been reached, and a change of approach to this protracted refugee UNHCR’s approach is based upon the assumption situation is now needed. The Government has that the PABs will be operational and that the now requested that a sharper focus be placed on Government will follow through on its willingness vocational and language training. to allow resettlement of camp-based refugees and generally expand resettlement opportunities so as to ensure a comprehensive approach to the problem of refugees and asylum-seekers in

UNHCR Global Appeal 2006 286 to resettle complex cases, and issues related to the coordination of protection activities with other partners, such as reporting on protection or incidents of sexual and gender-based violence in the camps.

UNHCR’s approach is also based upon the assumption that the Government will continue to grant temporary asylum to urban refugees and asylum-seekers of nationalities other than Myanmar upon registration with UNHCR. How- ever, due to the absence of refugee-specific legis- lation, UNHCR will intervene in any situation arising in relation to this population. As humani- tarian issues relating to asylum-seekers and refugees might not be a priority concern of the Government, decision making may be pro- tracted. This may have a negative impact on UNHCR’s ability to ensure protection of rights and efficiently meet beneficiary needs. In addi- tion, the Government’s policy that refugees outside of the camps are illegal immigrants sub- ject to Thai immigration law will continue to place limitations on the Office’s capacity to negotiate appropriate protection, including preventing deportations.

Strategy

Protection and solutions Thailand

UNHCR’s strategy is based upon the assumption that conditions in Myanmar will not be conducive to voluntary repatriation in the near future. The operation is also premised upon the expectation that all Myanmar refugees will be housed in the nine camps on the Thai-Myanmar border pending resettlement. At present, this represents the only viable durable solution. Thus, UNHCR will focus on mitigating the effects of this protracted situa- Thailand. Potential constraints lie primarily in a tion, such as advocating for the removal of cur- lack of will on the part of the Government to work rent restrictions on freedom of movement, with UNHCR on these issues, particularly on the freedom to seek employment and access to establishment of the national asylum procedure, higher education opportunities outside the refugees’ enjoyment of rights, the improvement of camps. In addition, a number of protection-based physical security in the camps, and the expanded operational projects will be implemented to use of resettlement. Other risks may arise from an improve the situation in the camps, including the inability of resettlement States to accept suffi- establishment of legal aid centres, the develop- cient numbers for group resettlement, an inability ment of camp protocols to address and prevent

287 UNHCR Global Appeal 2006 sexual and gender-based violence, as well as child protection initiatives. These projects have a Organization and two-fold purpose: not only will they assist refugees implementation in the camps to lead a more normal existence, less constrained by material dependence, but they will Management structure also help prepare them for resettlement in a third country or an eventual return to Myanmar. In 2006, UNHCR will operate with a total of 78 staff members: 26 internationals, including JPOs, Assistance UNVs and secondments from other agencies, and 52 nationals, including one national UNV. Since humanitarian assistance in the camps is pri- marily provided by NGOs with their own funding, The Bangkok office also covers activities in UNHCR’s focus will remain on protection, advo- Cambodia, the Lao People’s Democratic Republic cacy and the search for durable solutions. The and Viet Nam. In Thailand, the UNHCR Represen- Office will thus support limited interventions in tation is responsible for the overall management areas where there is a gap in the assistance frame- of the programme, for liaison with the Government work, for instance in the provision of sanitary nap- and embassies, leadership in inter-agency and kins, and will expand programmes in the areas of partnership coordination, as well as a significant vocational training and income generation activi- segment of the resettlement processing and the ties, to increase the employment opportunities of protection and processing of non-Myanmar asy- refugees within Thailand, upon resettlement or lum cases. The office is supported by field offices upon return to Myanmar. in Kanchanaburi, Mae Hong Son and Mae Sot, covering Myanmar refugees in camps. UNHCR will renew its efforts to expedite resettle- ment for urban refugees and will continue to pro- Coordination vide protection and ensure minimum living standards to those who cannot sustain them- selves until durable solutions are identified. UNHCR closely coordinates its protection and assistance programme with the Government, Thailand NGOs and donors. The Office is an active partici- Desired impact pant in the monthly meetings of the Committee for Coordination of Services to Displaced Persons The situation of Myanmar refugees in Thailand in Thailand, a coordinating mechanism for protec- continues to remain protracted and is expected to tion and humanitarian assistance initiatives, remain so for the foreseeable future. UNHCR which is attended by all NGOs working on the interventions will help mitigate the impact of this Thai-Myanmar border and by several embassies situation on refugees who have been confined to and donor agencies. UNHCR also participates in camps for over 20 years, and will serve to identify various inter-agency working groups which are alternative solutions, building on the Government’s organized by the Government, the UN Resident agreement to expand resettlement opportunities. Coordinator, the UN Country Team and the UNHCR advocacy with the Government will also Security Management Team. aim at improving the situation inside the camps, and bringing about a relaxation of the regulations prohibiting freedom of movement outside the camps and preventing refugees seeking employment.

UNHCR Global Appeal 2006 288 Offices Budget (USD)

Bangkok Activities and services Annual Programme Kanchanaburi Budget Mae Hong Son Protection, monitoring 2,561,490 Mae Sot and coordination

Community services 740,000

Domestic needs 375,000 Partners Education 500,000 Government agencies Ministry of Interior Forestry 120,000 Operations Centre for Displaced Persons Health 90,000

Legal assistance 940,000 NGOs Operational support (to 310,000 Catholic Office for Emergency Relief and Refugees agencies) Handicap International International Rescue Committee Sanitation 50,000 Norwegian Refugee Council Shelter/other 100,000 Shanti Volunteer Association infrastructure Zoa Refugee Care Transport/logistics 25,000

Total operations 5,811,490 Others Programme support 1,854,455 UNDP UNEP Total 7,665,945 UNICEF Thailand

289 UNHCR Global Appeal 2006 Europe Eastern Europe South-Eastern Europe Central Europe and the Baltic States Western Europe

he main objectives of UNHCR in Europe for 2006 are Tthe following: • Continue to support governments in establishing and maintaining national asylum systems (Global Strategic Objective 1) so that: i) persons seeking asylum have access to the territories of European States, including in the Mediterranean Basin; ii) the quality of asylum systems is safeguarded; iii) asylum systems and prac- tices are responsive to issues of gender and age; iv) xenophobia and racism towards refugees and asylum- seekers decrease and the integration of refugees is effectively promoted; v) asylum policies are informed by a spirit of solidarity and burden-sharing; and vi) refugee protection in the European Union is enhanced through the development of a common asylum system that conforms to international standards.

• Promote stability and solutions in South-eastern and Eastern Europe (Global Strategic Objectives 2 and 3), ensuring that the protection and assistance needs of persons displaced in Eastern and South-eastern Europe are met, that durable solutions are imple- mented for refugees and internally displaced populations, and that statelessness is reduced and effective solutions for stateless persons are identified.

• Maintain or establish a permanent presence in European countries on the Mediterranean border facing difficul- ties with the number of new asylum-seekers.

• Ensure that strengthened political and financial sup- port is provided to UNHCR programmes and activities worldwide. Eastern Europe

Recent developments

espite intermittent and spectacular acts of Dviolence affecting almost all republics in the region of the Northern Caucasus (southern Federal District of the Russian Federation), it appears that a consensus is emerging over the need to adopt a multidisciplinary and long-term strategy aimed at providing socio-economic progress for the bene- fit of the entire population. In this context, a High Level Dialogue on Human Security in the Northern Caucasus was convened in Moscow in April 2005. A first successful application to the UN Human Security Trust Fund will allow the launch of a series of pilot projects in North Ossetia and a three-year multi-agency recovery programme. This programme aims primarily to provide durable solutions to Osset refugees from Georgia but it is expected that it will have a wider scope, both ter- Armenia ritorial and sectoral, at a later stage. Through an Azerbaijan increasing presence or at least regular monitoring missions inside the war-torn republic, UNHCR and Belarus its partners continue to assist internally displaced Georgia people from Chechnya who are either seeking local integration in Ingushetia or are willing to Republic of Moldova return to their place of origin in Chechnya. Russian Federation In the Southern Caucasus (Armenia, Azerbaijan Ukraine and Georgia), one of UNHCR’s main objectives is to take stock of the situation and the needs of pilot Regional Protection Programme (RPP) for persons of concern to the Office, in order to 2006. Within the context of this programme, the improve and better target the provision of various Council noted the importance of continuing to services. work closely with UNHCR. The Office provided comments to the RPP and will continue to be Located along the external eastern border of the involved in the dialogue and in the shaping of this expanded European Union, Belarus, the Republic programme at the global and subregional levels. of Moldova and Ukraine face common challenges with regard to establishing comprehensive migra- In Georgia, a revalidation of the registration of tion policies, building national asylum systems in more than 200,000 internally displaced persons line with international standards as well as finding from the provinces of Abkhazia and South Ossetia durable solutions for refugees including local inte- was recently completed. Much-needed attention gration. In these countries, UNHCR has embarked continues to be paid to the population of Chechen on the development of a subregional approach on refugees in Pankisi valley. UNHCR is an important the building of the institution of asylum. The player in the conflict resolution process led by the Office has supported cross-border linkages Special Representative of the Secretary-General both amongst the States of the Western Newly (SRSG) for Abkhazia: the Office has presented stra- Independent States and between them and the tegic considerations focusing on the district of European Union, in particular through the Gali, where spontaneous returns have taken place Söderköping process, which offers an integrated in recent years. Prepared in coordination with key forum for cross-border dialogue on migration and NGO partners, these considerations have been asylum. UNHCR has also supported the efforts of well received by the relevant parties. Eastern Europe the Governments in the subregion to expand their reception capacities, with funding provided by the In Armenia, a survey is being conducted on prog- European Commission. While appreciating that ress towards the Millennium Development Goals there may be certain pressures on governmental as well as a pilot census of the refugee population asylum capacities, UNHCR is concerned that the in one of the eleven Armenian provinces. The structural changes in Ukraine and Belarus may results will offer a picture of the needs and place have affected the asylum capacity. The subregion of residence of all long-term refugees from was selected by the European Commission for a Azerbaijan still in Armenia.

293 UNHCR Global Appeal 2006 In Azerbaijan, UNHCR is participating in a collabo- the identification of a proper durable solution for rative approach with other UN agencies and has recognized refugees and achieve a good level of undertaken an assessment of the situation understanding on and support for the plight of the whereby a sizeable population remains internally refugees in the region; to advocate for the ratifica- displaced as a result of the frozen conflict over tion of statelessness instruments and work with Nagorno-Karabakh. The Office has identified ways the authorities in order to ensure that stateless- to reinvigorate donors’ and other partners’ inter- ness is reduced; and to cooperate closely with the est in ongoing and new assistance projects. European Union, in particular in contributing to the Söderköping process and to the dialogue on UNHCR’s Bureau for Europe is completing a pro- RPP. tection gaps analysis for the entire region in order to harmonize UNHCR activities and tackle issues Activities in the Western Newly Independent that still hinder the development of asylum sys- States will continue to be overseen by the UNHCR tems in line with the highest international norms. Regional Representation in Ukraine supervising national UNHCR Representations in Belarus and the Republic of Moldova. Strategic objectives Operations Building upon an updated assessment of the needs of the populations displaced by as yet unresolved internal conflicts, UNHCR will con- UNHCR’s operations in the Russian Federation tinue to provide durable solutions to the most vul- are described in a separate chapter. The following nerable categories, in particular women and paragraphs cover operations in the rest of Eastern children. The Office and its partners will continue Europe. to advocate the integration of the affected popu- lation into wider development policies and In Armenia, the Office intends to pursue a census programmes in the framework of poverty reduc- exercise started in 2005 to attain a broader statis- tion strategies. UNHCR will endeavour to bring tical database on people of concern to UNHCR. A about the adaptation of emerging national asylum survey on the implementation of the Millennium systems in response to the findings of the Development Goals (MDGs) amongst refugees above-mentioned protection gaps analysis. and the local population is expected to shed more light on the situation in Armenia. The census data With the increased geographical proximity to the and survey findings will enable UNHCR to reorient expanded European Union, Belarus, the Republic of its operations to the specific needs of vulnerable Moldova and Ukraine find themselves on one of the sub-groups wherever necessary. UNHCR remains major migration routes. The main focus of the Office committed to completing its shelter programme in the Western Newly Independent States will be on in the coming two years. Together with one of its atr Europe Eastern the strengthening of the institution of asylum. The partners, the Office will continue to address pro- paramount task will be to ensure that asylum- tection gaps identified during this year’s extensive seekers, within a context of mixed migration analysis. flows, are able to find international protection. UNHCR offices in the region are working towards Although it has dwindling resources at its disposal ensuring that asylum-seekers have access to the in Azerbaijan, UNHCR remains committed to territories of Belarus, the Republic of Moldova and playing an active advocacy role on behalf of the Ukraine and to fair, efficient and effective asylum internally displaced population. Together with procedures. UNHCR will continue to assist gov- governmental and non-governmental actors, the ernments in the drafting of legislation compliant Office will look into renewed ways to provide sup- with international standards of protection; to port to a frustrated population facing a protracted ensure that the concept of subsidiary protection and increasingly untenable situation of displace- is properly reflected and implemented; to promote ment. Depending on the results of ongoing

UNHCR Global Appeal 2006 294 Russian Federation, Republic of Ingushetia: A displaced Chechen and her daughter thank UNHCR for the construction materials they received. UNHCR / V. Soboleva

negotiations led by the Minsk Group under the the reception capacity. With local integration auspices of the Organization for Security and being the most viable solution for the majority of Cooperation in Europe (OSCE), limited returns to refugees in Belarus, UNHCR will focus on the devel- parts of the occupied territories of Azerbaijan opment of activities aiming at the improvement of could be contemplated, triggering the need for integration opportunities. The Office will focus its additional resources. advocacy efforts on promoting access of refugees to national welfare system. UNHCR will also strive At the same time, UNHCR will have to focus its to further develop partnerships with other actors limited resources on its core mandate group of involved in development, such as UNDP. beneficiaries, mostly Chechen refugees in Baku, who are attempting to survive in a harsh urban In Georgia, UNHCR remains involved in one of environment with little expectation of national the most complex operational environments in institutional support beyond life-saving medical Europe, where solutions still need to be found for care and primary education. Prospects for reset- two distinct categories of internally displaced tlement of the most vulnerable amongst this people (from Abkhazia and from South Ossetia) Eastern Europe population are dwindling and there is little likelihood and a population of more than 2,000 Chechen of local integration. refugees. Simultaneously, the building of a national asylum system will be pursued with the In Belarus, UNHCR will continue to offer its competent authorities. expertise to the Government to bring the national legislation in line with international standards UNHCR will whenever possible support limited relating to refugees. The Office will continue to returns to South Ossetia, either from Georgia support the Government in its efforts to increase proper or from the Russian Federation, despite a

295 UNHCR Global Appeal 2006 context of persistent tension. Throughout 2005, In Ukraine, UNHCR will continue to support hopes have emerged regarding the negotiating capacity-building activities targeting the authori- process relating to Abkhazia, with the resumption ties and NGOs dealing with refugee issues. The of fruitful discussions between the parties to the Office’s emphasis will continue to be on develop- conflict, supported by the Group of Friends of the ment of legislation, establishment of a fair and Secretary-General and within the Sochi forum. efficient refugee status determination and adop- UNHCR is regularly invited to participate in these tion of measures aiming at the local integration of roundtables and intends to continue its active refugees. Resettlement will be sought for selected participation. A range of confidence-building beneficiaries. The Office will continue its advocacy activities has been designed under the leadership for the accession of Ukraine to the international of UNHCR in an attempt to facilitate the coexis- statelessness instruments. UNHCR will continue tence of communities separated by the war in building partnerships with actors involved in sus- Abkhazia, specifically in the district of Gali, which tainable development, such as the United Nations used to be populated by a majority of ethnic Development Assistance Framework (UNDAF) Georgians. Those activities constitute new stra- process. Having assumed the regional functions, tegic considerations regarding UNHCR’s involve- UNHCR in Ukraine will continue to take the lead in ment in the Abkhazia situation: while endorsed by developing a coherent subregional approach by all relevant parties to the peace process, they Belarus, the Republic of Moldova and Ukraine on could not be included in the restricted budgetary the development of harmonized asylum systems. envelope for 2006. In order to implement those additional activities, UNHCR in Georgia will need Budget (USD) additional funds. Country Annual Programme Budget In the Republic of Moldova, UNHCR will Armenia 1,535,176 continue to assist the Government in building its asylum system by offering legal advice and capacity- Azerbaijan 3,564,813 building support with a particular emphasis on Belarus 1,054,028 improving and implementing national asylum leg- islation. Capacity-building activities, however, are Georgia 4,304,911 not limited to Government authorities but also Republic of Moldova 624,950 include civil society actors involved with asylum- Russian Federation 15,609,817 seekers and refugees. The Office will continue to support directly a number of destitute urban Ukraine 3,054,883 refugees and to work towards the further devel- Regional activities1 195,000 opment of an integration strategy for refugees. Total 29,943,578 UNHCR will enhance its cooperation with UN

1 agencies in the Republic of Moldova, the OSCE, Includes regional activities in Belarus, Moldova and Ukraine, as well as the European Union and other international scholarships for refugee students. atr Europe Eastern actors.

UNHCR Global Appeal 2006 296 Russian Federation

Main objectives Planning figures Population Jan 2006 Dec 2006

IDPs in the Northern • Support the development of an asylum system 265,000 220,000 Caucasus that meets international standards. • Promote accession to the Convention on Others of concern1 216,900 166,400 Statelessness and acquisition of citizenship by De facto stateless stateless persons; assist in their effective persons (Meskhetians in 7,500 2,000 integration. Krasnodar Krai) • Identify appropriate durable solutions for Refugees 2,120 2,400 refugees and facilitate their integration whenever Asylum-seekers 400 500 appropriate. (pending cases) • Help meet the need for assistance and protec- tion of internally displaced persons (IDPs) in Total 491,920 391,300

the Northern Caucasus. 1 Includes notably forced migrants, asylum-seekers registered by UNHCR but not yet by the Russian authorities, and returned IDPs. Total requirements: USD 15,609,817

297 UNHCR Global Appeal 2006 usa Federation Russian usa Federation Russian A family of Afghan refugees in St. Petersburg. UNHCR / V. Sokolova

are legally documented when they first approach Working environment the migration authorities and throughout the pro- cedure. To ensure a common understanding by all Recent developments stakeholders of the shortcomings of the process, UNHCR has widely shared its own analysis of the The situation of asylum-seekers has not signifi- current asylum system in place including cantly improved in recent months. UNHCR con- identification of the problem areas. UNHCR’s tinues to call for a reduction of the long waiting intention is to reach a consensus with Government period preceding refugee status determination counterparts on priority action required. The Law (RSD) and seeks to ensure that asylum-seekers on Refugees needs to be refined and hopefully

UNHCR Global Appeal 2006 298 UNHCR refugee reception centre. Notable progress was recorded in the field of education, with more places available in local kindergartens, primary schools, evening classes for adolescents and a teacher-training college for school graduates.

In North Ossetia, refugees from Georgia continued to integrate into local society. Together with partners, UNHCR and UNDP have launched a joint integration initiative for (former) refugees in North Ossetia and internally displaced people in Ingushetia, including pilot activities focused on the transition from relief to recovery. As part of this initiative, UNHCR and UNDP have jointly sub- mitted a concept paper to the United Nations Trust Fund for Human Security for a three-year programme of sustainable integration and recov- ery activities in North Ossetia.

In the Northern Caucasus, given the complexity of the humanitarian situation and the level of vio- lence in the region, protection activities remain essential to ensure that the rights of internally dis- placed people are respected. Since 2004, when the tented camps were closed in Ingushetia, the authorities have maintained their commitment to the principle of voluntary return and the concept of alternative shelter for those who do not wish to return to Chechnya.

In Moscow, UNHCR has been providing legal assistance through a local partner to two catego- ries of de facto stateless persons: Baku Armenians (ethnic Armenian refugees from Azerbaijan) who were helped to acquire citizenship or forced migrant status; and those Meskhetians in Krasnodar who will not benefit from the resettle- ment programme to the United States imple- mented by IOM. this will be included in the legislative agenda for Constraints

2006. In the meantime, since asylum-seekers Russian Federation cannot legally work or access public services, the Substantial backlogs have built up, caused by Office will continue to implement a substantial administrative delays and insufficient human multi-sectoral assistance programme, including and financial resources at the Federal Migration cash assistance for the most vulnerable. UNHCR Service of the Russian federation. Refugee has improved its cooperation with the Moscow recognition rates are very low. Protecting City Migration Service, which deals with a large asylum-seekers’ rights through courts remains number of asylum applications. This has resulted the most efficient course of action. Large num- in a regular exchange of information with the bers of asylum-seekers and refugees continue to

299 UNHCR Global Appeal 2006 depend on UNHCR for assistance pending consid- eration of their application under the slow-moving Strategy RSD procedure. In 2005, not one single asylum-seeker was granted access to the Protection, solutions and assistance asylum procedure upon arrival at the interna- tional airport in Moscow. Transfer of the responsi- The asylum system implemented in the Russian bility for the Points of Immigration Control to the Federation is evolving towards meeting interna- Federal Border Guards (reporting to the Federal tional standards. However, there are several areas Security Service) may restrict access for UNHCR that need to be addressed before the system can staff to the airport to ensure protection of arriving be deemed fair and efficient and in full compli- asylum-seekers. Within the migration context, the ance with the 1951 Refugee Convention. These Moscow City government does not prioritize the areas have been more clearly identified as a result implementation of fair and efficient asylum proce- of an analysis of the legal and institutional frame- dures. In St. Petersburg (where the procedure work as well as the practice of the relevant actors. used to be better than in Moscow) the city’s UNHCR will continue to advocate dialogue and authorities are now applying increasingly restric- work with the relevant authorities to address the tive measures to asylum-seekers. Even docu- gaps identified in the legal and institutional frame- mented asylum-seekers and refugees face work on access to the territory and admissibility numerous obstacles (like lack of registration) in to procedures, establishment of reception cen- trying to work legally and integrate into Russian tres, documentation, provision of assistance and society. Although all asylum-seeker children have legal counselling to asylum-seekers, reduction in access to local schools, lack of access to legal the waiting periods for decisions on admission employment and to public health care severely and substance of the case. In addition, the Office constrains the potential for self-reliance. No con- will support the authorities through various train- sensus has been reached with the authorities ing activities (such as translation/interpretation) regarding guardianship of unaccompanied and the provision of information on best practices minors, as stipulated by the law. Xenophobic ten- and refugee law. dencies are still on the rise. UNHCR is concentrating its activities in the In the Northern Caucasus, UNDP implements its regions where the highest numbers of persons of area-based recovery programme in three selected concern reside. Those regions are Moscow City districts of North Ossetia. However, a significant and immediate environs, St. Petersburg and the number of UNHCR’s priority beneficiaries reside Northern Caucasus. outside these three districts, and other partner- ships may be necessary to ensure the success of Asylum-seekers and refugees the integration strategy after UNHCR’s departure. UNHCR will continue to implement a multi- usa Federation Russian The deteriorating situation in Dagestan remains a sectoral assistance programme involving educa- potential threat to security in the region. Protec- tion activities, including intensive Russian tion activities in Chechnya have been constrained language training, short vocational training by lack of access, due primarily to concerns about courses and job placement programmes. Pending staff safety. Following a UN-led joint security handover to the state health care system, UNHCR assessment at the end of 2004, a less restrictive will provide basic medical help through imple- security regime may be implemented and would menting partners. Psychological assistance will allow the re-establishment of a permanent pres- complement these activities. The Refugee ence in Grozny in the near future. Until those new Reception Centre in Moscow and the Refugee measures are implemented, UNHCR can operate Counselling Centre in St. Petersburg will remain inside Chechnya only by “commuting” from the referral points for asylum-seekers and refu- Ingushetia and North Ossetia or indirectly gees. Countrywide, UNHCR will support a network through NGO partners. of legal counselling centres, focusing not only

UNHCR Global Appeal 2006 300 on providing legal advice to persons of con- Internally displaced people in the cern, but also on monitoring the asylum and Northern Caucasus migration situation in their regions, especially in border areas. Training and capacity-building UNHCR will ensure that all returns to Chechnya activities will be implemented for NGOs and are voluntary; that IDPs not willing to return have government officials. Public awareness and a right to remain in Ingushetia or elsewhere in the public information activities will continue in Russian Federation and to integrate there if they Moscow and St. Petersburg and other so choose; and that the rights of internally dis- selected regions. UNHCR protection and placed people and returnees as Russian citizens programme/community services staff will are observed. have to spend considerable time on individual cases, intervening at the airport to prevent UNHCR and its implementing partners will con- refoulement; interviewing asylum-seekers in tinue to monitor the protection situation of the detention centres; expediting resettlements internally displaced in Chechnya, Dagestan and for deportation cases and ensuring that social Ingushetia. Increased protection monitoring of protection issues are handled sensitively by IDPs who have returned to Chechnya will provide implementing partners. more accurate assessments and facilitate inter- vention on individual cases where required. The Although many refugees in North Ossetia have reasonably successful approach to protection inter- acquired Russian citizenship and forced migrant ventions that has been achieved for IDPs in status, these solutions will not be durable unless Ingushetia is expected to be duplicated for returnees their integration is sustainable. UNHCR will be in Chechnya. Shelter and quick impact project activ- working closely with its partners on sustainable ities will support the reintegration of returnees. In integration and recovery programmes. UNHCR Ingushetia, the joint integration initiative will activities will focus on legal counselling of refugees assist internally displaced people who opt to set- and forced migrants. UNHCR will also facilitate tle permanently in the republic. voluntary repatriation for the few refugees who opt for return to Georgia (South Ossetia). All activities are designed in a way that addresses the Five Commitments to Refugee Women. This Stateless persons includes active engagement of women in manage- ment of refugee and IDP communities; proper Most of the activities will require close coordina- documentation of asylum-seekers and refugees tion with the Council of Europe and monitoring of approaching UNHCR; involvement of women in the implementation of citizenship legislation. distribution of food and non-food items and Advocacy and training at the institutional level on access to sanitary supplies. UNHCR in the Russian statelessness and citizenship issues will continue Federation developed and currently implements until progress is made in the accession to the rele- a countrywide strategy to address sexual and vant conventions, and until the implementation gender-based violence. As part of the UN Country of the citizenship law and related regulations does Team, UNHCR is involved in the work of the the- effectively ensure prevention and reduction of matic groups on HIV/AIDS, Human Rights and statelessness. Legal assistance through a local Poverty Eradication. UNHCR’s activities and partner will continue for the remaining citizenship cooperation with other agencies address the

cases of Baku Armenians and for an estimated Millennium Development Goals and in particular Russian Federation 2,000 Meskhetians likely to remain in Krasnodar the following: eradication of extreme poverty and Krai after the United States resettlement hunger, universal primary education, gender programme is completed. Complicated citizen- equality and empowerment of women, and ship cases for other potentially stateless persons combating HIV/AIDS. will be assessed and, if necessary, brought before the courts through contracted or implementing partner lawyers.

301 UNHCR Global Appeal 2006 Desired impact Organization and Together with the authorities, UNHCR aims to implementation tackle systematically the most important pro- tection gaps in the asylum regime in the Russian Management structure Federation. The Office will advance the process through the introduction of additional tools and UNHCR in the Russian Federation will function activities such as the strengthening of legal sup- with 91 staff: 11 international, 53 national, three port, the establishment of a pilot project to pro- JPOs, 22 UNVs (four international and 18 mote local integration and the development of national), one consultant and one secondee. a country of origin information facility, ensuring observation of minimum standards in protec- tion and assistance of asylum-seekers and rec- Coordination ognized refugees. Asylum-seekers and refugees will be able to access the state medical care sys- UNHCR works closely with relevant intergovern- tem. The joint integration initiative for refugees mental organizations and other United Nations and forced migrants in North Ossetia will allow agencies in the Russian Federation. Close liaison gradual disengagement of UNHCR from assis- is maintained with OCHA, the United Nations tance activities, so that it can focus on strength- Department for Safety and Security (UNDSS), ening the asylum system in the Northern ICRC and increasingly with other agencies Caucasus. Potentially stateless people will have engaged in longer-term recovery projects (UNDP, access to legal counselling and will be assisted ILO, FAO and others) in the Northern Caucasus. with acquisition of citizenship. In the Northern There is routine coordination with partners through Caucasus the authorities will remain committed regular multi-sectoral meetings in Moscow and to the concept of alternative shelter; returns to coordination meetings in the Northern Caucasus Chechnya will be voluntary. Public information on protection, shelter and general issues. At the activities will raise awareness of migration and governmental level, regular contacts are main- asylum issues to contribute towards a more tained with the Ministry of Foreign Affairs, the positive attitude towards asylum-seekers and Ministry of the Interior and its Federal Migration refugees. Partner staff and Government coun- Service and the regional migration departments, terparts will continue to benefit from training with the Governments of North Ossetia, and joint planning exercises to enhance their Ingushetia and Chechnya, and with the Moscow knowledge and skills in protection delivery and City Department of Education. strengthening of the asylum system. It is expected that private donors will contribute more towards refugee programmes. usa Federation Russian

UNHCR Global Appeal 2006 302 Offices Budget (USD)

Moscow Activities and services Annual Programme Nazran Budget Vladikavkaz Protection, monitoring 3,720,107 and coordination

Community services 810,417 Partners Domestic needs 778,883 Governmental agencies Education 634,549 Federal Migration Service of the Ministry of the Interior of the Russian Federation Health 1,031,306 Moscow City Education Department Income generation 35,469 Departments of Social Services and Migration of the Governments of Chechnya, Ingushetia and North Legal assistance 3,888,706 Ossetia Operational support (to 963,259 agencies) NGOs Shelter/other 1,267,456 Association of Media Managers infrastructure Caucasian Refugee Council Transport/logistics 376,469 Children’s Fund Civic Assistance Total operations 13,506,621 Danish Refugee Council Programme support 2,103,196 Dobroye Delo Doverie Total 15,609,817 Ethnosphera Centre Faith, Hope and Love Gratis Psychological Support Centre Guild of Russian Filmmakers Magee Woman Care International Memorial Human Rights Legal Centre Nizam Opora Peace to the Caucasus Pomostch Solidarity Stichting Chechnya Justice Initiative St. Petersburg Centre for International Cooperation of the Red Cross St. Petersburg Red Cross Vesta

Others IOM Russian Federation UNV

303 UNHCR Global Appeal 2006 South-Eastern Europe

Recent developments

en years after the Dayton Agreement, durable Tsolutions have been achieved for large numbers of refugees and displaced people in the Balkans. This is illustrated by the substantial decrease in persons of concern to UNHCR from 1.7 million in 1999 in the aftermath of the Kosovo crisis, to some 608,000 in mid-2005. However, the pros- pects of further solutions for the remaining groups of refugees and internally displaced per- sons (IDPs) are varied. Given the ongoing tensions and the uncertainties surrounding the province’s final status, prospects of voluntary repatriation or return remain gloomy for the 248,000 people dis- placed within the province, or living elsewhere in Serbia and Montenegro (SCG - Serbia i Crna Gora) and for some 5,700 refugees originating from the province and living elsewhere in the Balkans region.

Albania Prospects are somewhat better for refugees from Bosnia and Herzegovina (BiH) Croatia living in SCG and Bosnia and Herzegovina (BiH), refugees from BiH living in SCG and Croatia Croatia and IDPs in BiH, all of whom account for the bulk Serbia and Montenegro (SCG) of the so-called “post-Dayton” refugees and IDPs. Totalling roughly 346,000, these people have a The former Yugoslav Republic of real opportunity to repatriate or to integrate Macedonia (FYR Macedonia) locally (at least in SCG where there is a policy to this effect) within a more stable political frame- expressed in the “Sarajevo Declaration”, each work. Nonetheless, there are some legal and Government agreed to prepare an action plan, socio-economic obstacles for some, especially including a comprehensive list of tasks to be for refugees from Croatia who used to hold undertaken, and subsequently unified in a “joint long-term leases in socially-owned flats. However, implementation matrix”. By September 2005, they now do not have the right to return to nor to Croatia adopted its national road map. SCG and dispose of their original apartments (unlike their BiH also issued draft road maps but work is still counterparts from BiH) but only to apply for com- required to make the formats of the three road pensation, none of which has been granted to maps compatible. date. The “3x3” Initiative (see below) provides a framework to map out these obstacles and solve In the Kosovo province of SCG, the situation since them through political commitment and appropri- the violent events of March 2004 has improved to ate policies across the three respective countries, some extent but remains tense and unpredictable. SCG, BiH and Croatia. While the rate and intensity of violent ethnically- motivated crimes has diminished and freedom of The “3x3” Initiative was launched in January 2005, movement has to some extent increased, low when the three Governments met in Sarajevo and level harassment and at times violent attacks, declared their common desire to ensure a just and particularly against Serb and Roma minorities, durable solution to refugee and internal displace- persist. Within this context, the rate of minority ment situations in their countries. Supported by voluntary returns is still decreasing (following a South-Eastern Europe the European Union, UNHCR and the Organization peak of 2,380 from January to August 2003). for Security and Cooperation in Europe (OSCE), UNHCR does not expect returns on a large scale they expressed their commitment to “solving the during a period of continued uncertainty from late remaining population displacement by the end of 2005 to the end of 2006, when it is expected that 2006, and facilitating returns or local integration the future status of the province currently under of refugees and internally displaced persons UN administration will be discussed. The Office depending on their individual decisions, without therefore maintains the view that ethnic minorities, any discrimination”. On the basis of the principles particularly Serbs and Roma, should continue to

305 UNHCR Global Appeal 2006 benefit from international protection and should difficult to achieve self-reliance. UNHCR will con- not be returned against their will. tinue to implement its strategy of “responsible phase-down”. UNHCR has accepted the chairmanship of the Belgrade-Pristina Direct Dialogue Working Group With regard to the Kosovo province of SCG, (DDWG) on Returns with the aim of working to UNHCR’s objectives include helping to create con- jointly identify and solve obstacles to return. The ditions conducive to the return of refugees and DDWG on Returns is part of the so-called “Vienna internally displaced people, monitoring and Process” of direct dialogue between the two par- reporting on the situation of IDPs and returnees ties which includes three other DDWGs, including (including issuing advocacy/position papers), the one on missing persons, chaired by ICRC. continuing to chair and contributing to the DDWG on Returns, and strengthening emergency pre- Regarding asylum, the main development was the paredness and response capacity in view of the still adoption of the Framework Asylum Law in March volatile situation. In sum, UNHCR will have to 2005 by the State Union of Serbia and Montenegro. adopt a flexible strategy for Kosovo that can adapt to a rapidly evolving operational environment.

Strategic objectives Finally, concerning the theme of asylum and pro- tection, the overall objective is to support the Governments and other national actors to UNHCR’s strategic objectives in the Balkans are develop an asylum system capable of providing centred on three themes: 1) the above-mentioned international protection to refugees and asylum- “post-Dayton” situation; 2) the future of Kosovo, seekers in accordance with international stan- which also directly affects The former Yugoslav dards. A prominent objective is for asylum laws to Republic of Macedonia; and 3) asylum system be adopted in the constituent republics of SCG, development. namely in Serbia and Montenegro, in accordance with the framework law already adopted by the With regard to “Post-Dayton” refugees and IDPs, State Union. An overarching objective linked to UNHCR’s main objective will be to reinvigorate this theme is for activities aiming to combat the search for durable solutions (voluntary repa- sexual and gender-based violence, and address triation/reintegration and, where feasible, local broader gender issues, to become integral com- integration) within the framework of the “3x3” ponents of UNHCR’s assistance programmes and process and in partnership with other interna- protection strategies. Another objective, applica- tional players. These include bilateral arrange- ble in particular to The former Yugoslav Republic ments, the European Union and the OSCE, but of Macedonia, is to reduce and prevent situations also the Council of Europe Development Bank of statelessness. (which in 2004/2005 became progressively more

ot-atr Europe South-Eastern involved with refugees and IDPs in SCG and BiH), the World Bank and UN sister agencies. It is only Operations through partnerships and a collaborative approach that UNHCR will be able to contribute to the attainment of the Millennium Development In Albania, UNHCR will continue to work with the Goals. Other objectives on behalf of asylum institutions with a view to putting in place “post-Dayton” refugees include to continue to a fully functional system compliant with interna- close collective centres in SCG and BiH (currently tional standards. There will be increased coordi- 128 centres hosting some 12,000 refugees and nation with other UNHCR offices in the region as IDPs) and to provide protection and basic human- well as with local actors in the relevant govern- itarian assistance to the remaining refugees and ment and state structures, and with international internally displaced people. These include a high stakeholders. percentage of very vulnerable individuals (such as elderly and handicapped persons) who find it

UNHCR Global Appeal 2006 306 In Croatia, UNHCR and its partners will continue nor voluntary repatriation are likely prospects at to support the voluntary repatriation, including present. Meanwhile, UNHCR will continue to transport, of the remaining Croatian refugees living assist any refugees wishing to repatriate to in SCG and BiH and provide free legal advice to Kosovo. returnees, particularly on housing and property- related issues. UNHCR will continue to monitor UNHCR’s operations in Bosnia and Herzegovina the implementation of the Asylum Law, particu- and Serbia and Montenegro (including Kosovo) larly regarding the quality of decisions, and will are described in more detail in the following address any shortcomings in order to ensure that pages. the rights of refugees are respected. Budget (USD) In The former Yugoslav Republic of Macedonia, Country Annual Programme UNHCR will continue to support the Government Budget and other national actors to provide international protection to refugees and asylum-seekers and Albania 1,119,392 thereby ensure that asylum-seekers have access Bosnia and Herzegovina 10,688,257 to efficient and fair asylum procedures compliant Croatia 4,513,641 with international standards. For the group of approximately 2,500 mainly Roma refugees and Serbia and Montenegro 24,918,958 asylum-seekers from Kosovo who moved out of a The former Yugoslav 3,901,288 collective centre and into private accommoda- Republic of Macedonia tion, UNHCR will continue to provide basic Total 45,141,536 humanitarian assistance, as neither local integration South-Eastern Europe

Croatia: A Croat family which had fled Knin in 1991 began a successful small-scale vegetable business after their return home. UNHCR / V. Winter

307 UNHCR Global Appeal 2006 Bosnia and Herzegovina

• Ensure the provision of protec- tion, legal and material assistance to refugees and asylum-seekers in Bosnia and Herzegovina (BiH) and facilitate voluntary repatriation whenever appropriate. • Ensure the further development of a functioning asylum system with national counterparts. This should include guaranteed access to the procedure at borders, legislation compliant with international and European Union standards, and safeguards of the integrity and effi- ciency of the decision-making process. • Expand the programme aimed at self-sufficiency for refugees and asylum-seekers.

Main objectives Planning figures Population Jan 2006 Dec 2006

• Identify durable solutions for the remaining BiH (IDPs) 170,000 150,000 refugees and the most needy internally dis- BiH (IDP returnees) 15,000 20,000 placed persons (IDPs) by the end of 2006. Croatia (refugees) 10,000 5,000 • Through field monitoring, advocacy and sup- port, enhance the capacity of the local BiH (returnees) 2,500 2,500 authorities to take on their responsibilities for Serbia and Montenegro 1,500 1,300 return and reconstruction. Explore all possible (refugees) means to render returns more sustainable. Various 250 350 • Intensify linkages with other multi- and bilateral (asylum-seekers) bodies in line with UNHCR’s “4Rs“ strategy for Various (refugees) 20 20 a more seamless transition to development. • In cooperation with other international agencies, Total 199,270 179,170 advocate for the establishment of conditions more conducive to the safe and dignified volun- Total requirements: USD 10,688,257 tary repatriation of Croatian refugees.

UNHCR Global Appeal 2006 308 signatories committed themselves to solve the Working environment remaining situations of displacement in the region by the end of 2006. The main obstacles to durable Recent developments solutions for refugees from Croatia continue to be poor economic opportunities, the lack of housing UNHCR continues its efforts to build the capacity and above all, the cancellation of all tenancy of the Government of BiH to manage all aspects rights of refugees who used to hold long-term of the asylum process in line with national legisla- leases in socially-owned flats. In August 2005, BiH tion embodying international principles. The and Croatia concluded a dual citizenship agree- handover of responsibility for refugee status ment, which has yet to be ratified. determination from UNHCR to local authorities will be complete by the end of 2005. BiH’s asylum Constraints legislation is continuously being developed through the adoption of complementary legisla- The complex regional political context will con- tion on related issues such as a central database tinue to affect BiH. Negotiations for a Stabiliza- for aliens, rights of recognized refugees and tion and Association Agreement with the reception standards. An in-country consultative European Union cannot begin until key obstacles process commenced in 2005 to ensure that exist- are overcome. Slow economic growth is likely to ing asylum and migration legislation is compatible delay coverage of groups with specific needs by with the standards on asylum, migration and visa the country’s social programmes. Furthermore, management set by the European Union for the sustainability of returns is jeopardised by an potential accession countries. uncertain political and economic future.

BiH is struggling to meet its commitments to begin negotiations for its Stabilisation and Association Strategy Agreement with the European Union.

In July 2005, BiH commemorated the 10th anniver- UNHCR will continue to work with national and sary of the Srebrenica massacre. The autumn of local authorities alike to complete its activities by 2005 marked a decade of the General Framework the end of 2006 as required by Annex VII of the Agreement for Peace (GFAP), the so-called General Framework Agreement for Peace. The Dayton Peace Agreement, under which UNHCR Office is focusing on the need to enhance overall has been the lead humanitarian agency for the sustainability of return while continuing to cater return and reintegration of refugees and IDPs. for protection of and assistance to the most needy individuals. A re-registration of IDPs and refugees from Croatia was concluded in 2005, with the support of In 2006, the focus for UNHCR’s activities with the UNHCR. The exercise, which began in 2004, Ministry of Security will be quality assurance in the revealed a substantial overall decrease in num- determination of eligibility cases. The Office will bers (many having either returned spontaneously also monitor the implementation of rights of rec- or integrated locally). By mid-2005, approximately ognized refugees from third countries through 8,000 refugees and 185,000 internally displaced close cooperation with the Ministry for Human people had applied to be re-registered. Rights and Refugees. Bosnia and Herzegovina

In January 2005, the Sarajevo Declaration of the Collaboration with other partners will be of so-called “3x3” Initiative was signed by the three increasing importance as UNHCR further imple- Ministers for Refugees and Displaced Persons of ments its strategy of responsible phase-down in BiH, Croatia and Serbia and Montenegro, and 2006. In its work with local authorities on behalf of three senior representatives of UNHCR, of the returnees, UNHCR will adopt a more prominent Organisation for Security and Cooperation in advocacy role, particularly on behalf of people Europe (OSCE) and the European Union. The most in need.

309 UNHCR Global Appeal 2006 Protection and solutions tailored solutions shall be identified for the neediest persons who remain in collective accommodation Through its continued presence in national asylum facilities ten years after the war. procedures, UNHCR will support the further development of the national asylum system, pro- Many of the people still residing in community viding opinions on draft asylum decisions, and centres today have specific social or other needs general advice on the overall legislative and and will require substantial community services administrative process. In addition, capacity- support to find sustainable durable solutions. building measures are ongoing, including a variety Targeted programmes will strengthen the of formal and informal training activities. self-esteem and independence of refugees and asylum-seekers by offering incentives to live in Access to rights, whether for asylum-seekers and private accommodation and earn a sustainable refugees, or returnees and IDPs, is an important living. The rudimentary social infrastructure of the component of the UNHCR mission in BiH. Under country will require UNHCR’s continued interven- the guidance and supervision of UNHCR, the tion in health, education and even food provision national legal aid network will provide legal for particularly needy individuals. assistance and advice to asylum-seekers, returnees andIDPsintheireffortstoaccessrights.The Desired impact network is already involved in UNHCR’s advocacy activities with regard to Annex VII of the GFAP, Through field monitoring and intervention activi- and over the course of 2006 its members will ties, UNHCR hopes by the end of 2006 to be in a further increase their functions while broadening position to report confidently that its obligations their funding base. under the Dayton Agreement have for the most part been met. This would mean that most of the UNHCR and the relevant authorities shall jointly people displaced by the war would either have endeavour to identify a satisfactory solution for returned or decided to integrate locally in areas of the group of Kosovars whose temporary admis- displacement. It would also show that the capac- sion status has been extended to June 2006. ity of specialized institutions of the Government of BiH has been sufficiently strengthened to sup- Assistance port this work in the future. It will also require the sustained engagement of larger multi- and bilat- UNHCR will continue to strengthen the capacity eral development actors for years to come. of the Government institutions directly responsi- ble for asylum and refugee policies in BiH, namely All asylum-related legislation should be in place the Ministry of Security and the Ministry for by the end of 2006. It is hoped that significant Human Rights and Refugees. Advocacy on behalf achievements will be made in relation to access to onaadHerzegovina and Bosnia of asylum-seekers and refugees’ access to rights, rights for recognized refugees in terms of access as well as direct assistance to the neediest per- to documentation, health services and other eco- sons, will be an important component of the nomic and social rights. activities throughout 2006. In cooperation with its partners, UNHCR will expand its involvement to include assistance to recognized refugees seeking Organization and to integrate into BiH society. UNHCR will also implementation strive to ensure equal access, whenever possible, to basic services and opportunities. Management structure Small-scale community-based interventions, known as Quick Support Funds, will continue to UNHCR in Bosnia and Herzegovina will function play an important role in assisting the local inte- with 85 staff (14 international and 68 national) gration of returnees in the country. Individually and three JPOs.

UNHCR Global Appeal 2006 310 A muslim family which has returned home to a Serb majority area. UNHCR / V. Winter

Coordination At the same time, UNHCR coordinates closely with the European Commission on asylum and related UNHCR is a member of the High Representative’s rights-based matters. The Office cooperates with a Board of Principals, together with the EU-Police number of other UN organizations and other inter- Mission and the EU Military Stabilization Force, the national bodies on matters such as trafficking, OSCE, the North Atlantic Treaty Organization HIV/AIDS or, more generally, the achievement of (NATO), the UN-Resident Coordinator, the World the Millennium Development Goals. Bank and the International Monetary Fund (IMF). Offices UNHCR participates in the State Commission for Sarajevo Refugees and Displaced Persons, the UN Country Bosnia and Herzegovina Team (UNCT) and its UN Development Assistance Banja Luka Framework (UNDAF) as well as the monitoring of Mostar the national Poverty Reduction Strategy Paper. Tuzla The latter was selected as an example of best practice for the High Commissioner’s Convention Plus Forum as it includes IDPs, returnees and refugees into the overall development scheme.

311 UNHCR Global Appeal 2006 Partners Budget (USD)

Government agencies Activities and services Annual Programme Federal Ministry for Displaced Persons and Refugees Budget Ministry for Human Rights and Refugees Protection, monitoring 3,382,680 Ministry for Refugees and Displaced Persons and coordination Ministry of Security Community services 1,276,162

NGOs Domestic needs 524,126 Bosnia and Herzegovina Women’s Initiative Food 270,168 Bosnian Humanitarian Logistics Service Catholic Relief Services Health 28,368 Hilfswerk (Austria) Legal assistance 1,195,374 Malteser International Operational support (to Mercy Corps Scotland 458,788 Vasa Prava (Your Rights) Legal Aid Network agencies) Shelter/other 972,794 infrastructure

Transport/logistics 274,221

Total operations 8,382,680

Programme support 2,305,577

Total 10,688,257 onaadHerzegovina and Bosnia

UNHCR Global Appeal 2006 312 Serbia and Montenegro

• Facilitate the voluntary return of IDPs to the Kosovo province of SCG. • Assist the Government in building its asylum system; conduct refugee status determination (RSD) in the interim period.

Kosovo

UNHCR operates in the Kosovo province under two broad international instru- ments:

Under UN Security Council Resolution 1244 the following are the main objectives:

• Contribute to creating conditions con- ducive to the return of refugees and internally displaced people, in concert with other international actors. • Monitor and report on the situation of returnees and internally displaced people. • Support the reintegration of sponta- neous returnees through targeted assistance. • Exercise a supervisory and advisory role in the process of returns. Main objectives • Strengthen emergency preparedness and response capacity. Serbia and Montenegro (SCG) Under the 1951 Geneva Convention relating to the Status of Refugees the main objectives are: • Support the Government of Serbia and Montenegro (SCG - Serbia i Crna Gora) in achiev- • Respond to the protection needs of groups of ing durable solutions for refugees according to concern, with special attention given to women the framework provided by the Sarajevo Decla- and children. ration and the “3x3” Initiative. • Provide protection and durable solutions for

• Promote and support the voluntary repatria- some 800 refugees from The former Yugoslav Serbia and Montenegro tion of refugees to Croatia and Bosnia and Republic of Macedonia (FYR Macedonia), BiH Herzegovina (BiH) as well as the local integra- and Croatia, as well as mandate refugees origi- tion of refugees who are unable or unwilling to nating from outside former Yugoslavia. return. • Contribute to the development of a legal • Provide protection and basic humanitarian framework on asylum (in line with the 1951 assistance to refugee groups with specific Convention and subsequent refugee-related needs and internally displaced persons (IDPs). legal instruments). Promote the rights of IDPs.

313 UNHCR Global Appeal 2006 Planning figures: Serbia and Montenegro end of the joint State Union and the beginning of two quite separate paths towards the European Population Jan 2006 Dec 2006 Union. If the current State Union formula is IDPs from Kosovo 224,000 220,000 rejected or substantially rewritten, UNHCR will Croatia (refugees) 78,000 35,000 have to readjust its presence and activities accordingly. BiH (refugees) 36,000 15,000

Mandate refugees and 210 210 In Kosovo province, the March 2004 outbreak of asylum-seekers anti-Serb violence, and its impact in Belgrade and Total 338,210 270,210 other cities (i.e. riots and increased UN security restrictions) underlined the difficulties involved in Planning figures: Kosovo finding a solution, as opposed to merely main- taining the status quo. The return of displaced Population Jan 2006 Dec 2006 minorities to Kosovo, already disappointingly Minorities at risk 85,000 70,000 slow, now suffered a serious setback. The October 2004 elections in Kosovo demonstrated deep IDPs 22,000 20,000 divisions in the political establishment over Returnees (ex-refugees) 8,000 8,000 Serbia’s approach to the issue, and resulted in Returnees the absence of Serbs in the provincial parliament. 5,000 5,000 (during the year) Any decision on the final status of the province Refugees (FYR will have a direct impact on the situation of inter- Macedonia, BiH and 836 600 nally displaced populations in Serbia and Croatia) Montenegro and the nature of UNHCR’s work on Mandate refugees and their behalf. 24 20 asylum-seekers

Total 120,860 103,620 On a positive note, preliminary results from the refugee re-registration exercise carried out in Total requirements: USD 24,918,958 Serbia and Montenegro show a substantial decrease in refugee numbers (from some 274,300 to 150,000), while the number of IDPs from Kosovo remains stable at around 224,000. The decrease can be explained in terms of volun- Working environment tary repatriation and local integration. The “3x3” Initiative (bringing together UNHCR, the Euro- Recent developments pean Union, the Organization for Security and Cooperation in Europe (OSCE), and the Serbia and Montenegro Governments of the three concerned countries, ebaadMontenegro and Serbia SCG, BiH and Croatia) resulted in the “Sarajevo When at the end of April 2005 the State Union of Declaration” of January 2005, whereby the Serbia and Montenegro received a positive feasi- Governments committed themselves to finding bility study on its potential accession to the durable solutions for the remaining refugees and European Union it was expected that negotia- displaced by the end of 2006. Furthermore, an tions on a Stabilization and Association Agree- Asylum Framework Law was adopted at the State ment would commence in the autumn of 2005. Union level in March 2005, but it has not yet The harmonization of the two separate economic resulted in legislation at the level of the con- systems, political stability, market economy and a stituent republics. functional State Union are likely to remain key fac- tors in the negotiations. It remains possible, how- Kosovo ever, that the expiry of the EU-brokered “Belgrade Agreement” which led to the Charter of the State The UN Secretary-General appointed an Union, ratified in February 2003, could mark the Ambassador to undertake a comprehensive

UNHCR Global Appeal 2006 314 review of standards in Kosovo (eight standards which include rule of law, freedom of movement, Constraints sustainable returns, minority and property rights, and direct dialogue) that was handed to the Serbia and Montenegro Secretary-General in October 2005. The Review report concluded that while standards implemen- At the political level, constraints include the con- tation has been uneven, status negotiations tinuing uncertainties regarding the institutional should start as soon as possible and should be framework, particularly the future of the current conducted through shuttle diplomacy. The two constitutional set-up of the State of Union of main parties to the issue have diametrically Serbia and Montenegro and the unresolved issue opposing views. Kosovo-Albanians (the majority of the final status of Kosovo province. Economi- of the Kosovo population) seek the creation of an cally, the general slow pace of economic reforms independent state, whereas Serbs, backed by the and recovery and continued high unemployment Republic of Serbia, seek reintegration of the prov- (estimated at over one third of the workforce) ince, with substantial autonomy, into the State make it difficult to achieve sustainability and Union of Serbia and Montenegro. This situation, self-reliance for refugees integrating locally. coupled with growing popular frustration at poor economic prospects, may lead to heightened The time frame foreseen by the “3x3” Initiative political tensions, more deeply entrenched polar- may prove over-optimistic. A key factor affecting ization of positions and possibly inter-ethnic vio- voluntary repatriation to Croatia will be the lence and civil unrest. Any of these outcomes unsolved issue of former tenancy rights holders, could limit minority voluntary returns to Kosovo refugees who were former occupants of socially- and hamper UNHCR’s operational environment. owned apartments in Croatia. As regards minority returns to Kosovo, the continuing uncertainties Nonetheless, the transfer of power and compe- and tensions in the province raise serious doubts tencies from the United Nations Interim Adminis- about the possibility of large-scale returns in the tration Mission in Kosovo (UNMIK) to the near future. Finally, there is a general decrease in Provisional Institutions of Self-Government (PISG) the availability of funds not only to UNHCR, but is continuing and local authorities are gradually also to many other humanitarian actors that are acquiring more responsibility and accountability, continuing to withdraw. expected to culminate at the end of 2005 with the establishment of a Ministry of the Interior and a Kosovo Ministry of Justice. Most of the prioritized standards actually concern minority issues and More than one year after the violent events of the PISG is expected to continue to attempt to March 2004, the situation remains tense. A major move toward a multi-ethnic society. The Ministry obstacle to return is the absence of a negotiated of Communities and Returns (MCR), established status for Kosovo. This uncertainty does not allow in February 2005, is becoming increasingly minorities to make a free and informed choice involved in the return process. about their personal future. In addition, the secu- rity environment is still a source of anxiety, with In 2005 the Special Representative of the continual, largely unchecked, minor incidents Secretary-General asked UNHCR to chair the against minorities. These belie the superficial Belgrade-Pristina Direct Dialogue Working stability represented by the absence of serious Serbia and Montenegro Group (DDWG) on Returns and UNHCR appointed violent crimes for a period of one year (July 2004 - its Representative in Austria as Chairperson. To July 2005). The perception of a security threat date, two constructive DDWG meetings have been against minorities is arguably sometimes exagger- held, focusing on property issues and on drafting ated, but there is all too much evidence of latent a protocol on returns. The meetings take place in violence. In addition, while some improvement in Belgrade and Pristina, on a rotating basis, and a freedom of movement in various regions has been third meeting was planned for October 2005. noted, low-intensity harassment and occasional violent attacks have continued. This in turn has a

315 UNHCR Global Appeal 2006 drastic impact on the access of minorities to basic in 1999; and 3) assisting the authorities at both public services, notably education and health ser- the republican and State Union levels in building vices. Finally, there is the issue of access to resi- the institutions of asylum. dential property, which has featured fairly prominently on the Kosovo agenda. Decisions on The repatriation of refugees from within the region repossession need to be implemented, and the will continue to require intensive coordination issue of access to commercial and agricultural with UNHCR operations in neighbouring BiH and property must be resolved if the minorities Croatia. In addition to voluntary repatriation, remaining in Kosovo, and the returnees, are to UNHCR will continue to facilitate the local integra- enjoy any degree of economic security. tion of refugees in line with the Poverty Reduction Strategy Paper and United Nations Development Against this background of geopolitical instability Assistance Framework (UNDAF) objectives. and regional insecurity, and notwithstanding UNHCR will also further its coordination with the some progress made within Kosovo since 2004, Council of Europe Development Bank (CEB) the rate of voluntary minority returns to Kosovo within the Framework Partnership Agreement has continued to decrease since 2003. It is signed in 2004 and will actively promote the inclu- assumed that the situation will remain tense after sion of housing solutions for integrating refugees the release in October of the above-mentioned under the CEB credit line for Serbia. review of the Kosovo Standards Implementation Plan and throughout final status talks. This will not UNHCR will continue to provide basic assistance be conducive to large-scale returns. On the con- to the most needy among the approximately trary, UNHCR expects to see a modest return flow 224,000 internally displaced people from Kosovo. to be mirrored, possibly outweighed, by depar- Due to the prevailing security environment, limited tures, whose composition, direction and magni- freedom of movement and inadequate conditions tude will depend on the final status adopted or for sustainable reintegration, UNHCR continues foreseen. But if the status issue is not resolved to facilitate individual returns and to advocate for and uncertainty remains, returns are likely to be the right to return, but does not yet encourage the overshadowed by increased violence. Whichever return of IDPs to areas of Kosovo where they con- direction Kosovo takes, UNHCR estimates that stitute a minority. UNHCR will also continue to there is a risk that more people may find them- chair and facilitate the Direct Dialogue Working selves compelled to leave their homes. The uncer- Group on Returns. tainty surrounding Kosovo’s future status is therefore hampering the search for durable solu- In the absence of national asylum legislation and tions, be it voluntary repatriation or the eventual institutions, UNHCR will probably continue to local integration of internally displaced people. conduct refugee status determination and pro- vide basic humanitarian assistance for recognized mandate refugees. The two republics are ebaadMontenegro and Serbia Strategy expected to adopt national asylum legislation in 2006 (both sets of laws are currently in draft form). For the purposes of training and capacity building Protection and solutions of the national authorities, linkages are main- tained with UNHCR operations in a number of Serbia and Montenegro neighbouring and other European countries as well as with the European Commission and its UNHCR’s strategy in Serbia and Montenegro is asylum capacity- building-oriented programmes. linked to three major themes: 1) finding durable solutions for the remaining refugees from BiH and Croatia (“post-Dayton” beneficiaries), displaced during the crisis in the early 1990s; 2) assisting internally displaced people who fled from Kosovo

UNHCR Global Appeal 2006 316 Many elderly refugees from Bosnia and Herzegovina and Croatia are still waiting to return home. UNHCR / V. Winter

Kosovo Regarding the refugees remaining in Kosovo, UNHCR will continue to pursue voluntary repatria- Owing to the obstacles to return related to the tion and local integration as durable solutions. It security and basic human rights of minorities in is expected however that the repatriation option Kosovo, UNHCR is still unable to actively promote will be gradually exhausted in 2005-2006 as most returns, but will continue to work towards creating refugees from the region who remain in Kosovo conditions for return, assisting spontaneous are elderly and isolated. Many have already returns and fulfilling its supervisory role. It will indicated their wish to integrate locally in Kosovo. Serbia and Montenegro closely monitor developments and provide training and contribute to capacity-building. UNHCR will Addressing issues of sexual and gender-based continue also to play its advocacy role in assess- violence (SGBV) will be a priority for UNHCR ing the continuing protection needs of minorities. Kosovo in 2006. The welfare and interests of At the same time, contingency planning for women will continue to be monitored, assessed possible future population displacement will be and incorporated in all return-related activities. consolidated. Participation of women in all “go and see” visits

317 UNHCR Global Appeal 2006 will be obligatory. In 2005, an action plan was will integrate the refugees locally by providing implemented which included a mechanism for alternative solutions, either in the form of a pack- monitoring, reporting and referring SGBV cases age of cash and in-kind assistance, or by the pro- and the systematic dissemination of UNHCR’s vision of building materials for the construction of guidelines on the subject. The legal aid a new house. Greater emphasis will be placed on programme will also closely monitor the rights of vocational training schemes and apprenticeships, women in the return process while continuing to as well as curriculum and institutional develop- provide free legal aid for all on issues such as ment training. property repossession and personal documenta- tion (particularly for women and children). Regarding internally displaced people from Kosovo, UNHCR will continue to provide basic Due to continued restrictions on freedom of humanitarian assistance to those with special movement and security problems, many minority needs. The Office will advocate for their inclusion students still lack secure and reliable physical in self-reliance programmes. UNHCR will also sup- access to education. This helps to perpetuate the port the Government in its efforts to help those parallel education system established in many with the most acute needs, especially displaced Kosovo Serb areas and further discourages inte- Roma , as set out in the National Strategy for the Inte- gration. In some cases, internally displaced fami- gration and Empowerment of the Roma and the Roma lies are unwilling to return to their places of origin National Action Plans. Furthermore, UNHCR will if there is no school in their community. The legal continue to facilitate returns to Kosovo on a aid programme will also assist in obtaining docu- strictly voluntary basis through “go and see” and mentation and ensure the registration of children. “come and inform” visits, transport of household UNHCR actively monitors and advocates that: belongings and other assistance. UNHCR esti- 1) returnee and minority children have access to mates that at least 50,000 refugees and internally the nearest schools; 2) problems such as trans- displaced people will be in need of basic humani- port or supplies be resolved to increase minority tarian assistance in 2006. attendance; or 3) effective primary education structures be established in returnee areas if such Community services activities will target the most services were available prior to the conflict. needy refugee and internally displaced children, Minority children and adolescents also suffer from women, elderly and Roma and will include educa- general isolation due to language constraints, tional/vocational training and teacher-training restrictions on freedom of movement and security activities for internally displaced Roma and solu- concerns. UNHCR’s implementing partners will tions for elderly and disabled people, especially strive to incorporate children in community devel- those in need of accommodation in specialized opment initiatives to cultivate a relatively normal institutions. UNHCR will also support the UNAIDS environment and improved relationships between Theme Group on HIV/AIDS and the Republican ethnic groups. Aids Commission in developing strategies and ebaadMontenegro and Serbia plans to combat and prevent HIV/AIDS. The Office will support national institutions to adequately Assistance address sexual and gender-based violence cases among beneficiary populations. UNHCR will Serbia and Montenegro ensure an adequate and timely response to reported sexual and gender-based violence cases. UNHCR will promote and organize voluntary repa- triation movements for refugees and their belong- In the field of asylum, UNHCR will provide legal ings to Croatia and BiH and will provide legal expertise for the adoption of an asylum system advice concerning housing and property issues. that will include the establishment of a competent body in charge of fair and efficient RSD proce- With regard to those refugees unable or unwilling dures, including “gender-sensitive” RSD; a referral to repatriate, UNHCR will maintain a focus on system at the border preventing instances of closing the remaining 112 collective centres and refoulement ; minimum reception standards for asylum-

UNHCR Global Appeal 2006 318 seekers; integration measures for recognized Desired impact refugees, and direct handling of RSD under UNHCR’s mandate, pending establishment of the Serbia and Montenegro asylum system. For the “Post-Dayton refugees” (from Croatia and Kosovo BiH) the desired impact is that the vast majority will have found durable solutions, either through UNHCR will provide all spontaneous returnees repatriation or local integration, by the end of (who are not targeted by other programmes) and 2006, in line with the ambitious objectives of the selected groups of refugees with specific needs, “3x3” Initiative. One of the main challenges will be internally displaced people and minorities-at-risk, that among the remaining refugees there is a high with three months’ basic food rations, basic proportion of needy individuals, such as disabled domestic items (such as blankets, mattresses, and single elderly persons, who will not be able to stoves and hygienic kits), small-scale shelter achieve self-reliance but who will require assistance repair assistance and access to income genera- in specialized institutions. For internally displaced tion projects. people from Kosovo, the impact will be dependent on the evolution of the situation in the province. As in 2005, UNHCR will continue to actively sup- In the field of asylum, the desired impact will port and assist UNMIK and local authorities to try be the handing over of RSD procedures to the and resolve the situation of internally displaced Government and the establishment of an efficient Roma in Mitrovica – through legal advice to resolve referral and reception system. property issues, expertise on camp management and layout, needs assessment and targeted Kosovo distribution. The tensions and uncertainties described above Plemetina camp remains the last collective centre render it almost impossible to predict the timing under direct UNHCR management in Kosovo. and magnitude of returns to Kosovo, if any. The Although durable solutions have been identified year 2006 and the years beyond could witness for its residents, they remain to be implemented progressive returns, or alternatively, definitive for lack of funds. Until this can be achieved – and departures from the province. At present, UNHCR pending a possible handover to local authorities – must therefore retain the capacity to respond UNHCR will have to continue to support and flexibly to all situations. assist the camp.

The “go and see” and “come and inform” visits Organization and programme for internally displaced people was stepped up in 2005 and will continue to be implementation coordinated by UNHCR throughout 2006. UNHCR will continue to implement community services Management structure activities fostering inter-ethnic dialogue and rec- onciliation and promoting gender equality by Serbia and Montenegro focusing on Kosovo subregional initiatives which can underpin and support appropriate living con- The operations in SCG (excluding Kosovo) will be Serbia and Montenegro ditions for minorities and returnees. Central to all managed from the UNHCR Representation in of this is the continued role of UNHCR’s lead Belgrade, the field office in Kraljevo (covering cen- agency programme, which was carefully reviewed tral and southern Serbia) and the sub-office in and revised in the second half of 2005 so as to Podgorica (covering Montenegro). In Serbia and better identify and monitor the needs of persons Montenegro UNHCR will field six international and of concern. UNHCR will also continue its forced 65 national staff in total. returns monitoring programme.

319 UNHCR Global Appeal 2006 Kosovo from UNMIK, the PISG and the Serbian government. The Working Group is expected to UNHCR will continue to be headed by the Chief of continue through to 2006. UNHCR’s Global Stra- Mission and will comprise 82 staff members (17 tegic Objectives concerning partnerships and international and 64 national). Besides Pristina, Millennium Development Goals will be imple- UNHCR will retain its presence in Mitrovica, mented through UNHCR’s systematic efforts to Peja/Pec, Prizren and Gjilan/Gnjilane. engage other actors in issues related to IDPs, notably the UN Civil Administration, the UN Country Team (UNCT), the Kosovo Force (KFOR), Coordination bilateral donors, NGOs and other organizations Serbia and Montenegro such as the World Bank and the European Union.

UNHCR will also continue its proactive engage- UNHCR’s main government counterparts are the ment with the UNCT. It is a member of the UNCT Serbian Commissioner for Refugees and the theme groups on protection issues and human Montenegrin Commissioner for Displaced Per- rights and on Millennium Development Goals. It sons, the Ministry of Labour, Employment and also actively participates in the UN Network on Social Policy, the Ministries of the Interior of both Sexual Exploitation and Abuse. The Office also Republics and the Ministry for Human and Minor- provides important input in security-related ity Rights. The Office maintains close coordina- meetings and includes 12 of the 14 UN Agencies tion with other UN agencies implementing its in its Telecom/VHF system. In 2005, input was mandate through the UNDAF framework and provided to the World Bank Poverty Assessment advocates the inclusion of refugees and internally and it is expected that cooperation with Poverty displaced people in the projects implemented by Reduction Strategies will be intensified as the final bilateral development agencies, with the CEB and status of Kosovo nears resolution. UNHCR will with the European Commission, including the also continue its close cooperation with OSCE in European Agency for Reconstruction. It cooper- strengthening democratic institutions and pro- ates with a number of local NGOs and legal net- moting human rights, notably in matters related works in the protection of and assistance to to the protection of minorities. refugees and internally displaced people.

Kosovo Offices As the role of the international community in Serbia and Montenegro Kosovo evolves from direct management to broad supervision, UNHCR’s main counterparts Belgrade are increasingly the central and local authorities Kraljevo Podgorica ebaadMontenegro and Serbia of Kosovo. The Ministry of Communities and Returns, the Ministry of Local Government Administration and municipal structures are all Kosovo key actors in the returns and reintegration process and coordination with these actors will be Pristina strengthened as their commitment and involve- Gjilan/Gnjilane ment progress. UNMIK’s Office for Communities, Mitrovice/a Returns and Minorities (OCRM) is expected to Peja/Pec remain an important counterpart, particularly Prizren with regard to the coordination of return-related issues and of responses of the international community. In 2005, UNHCR took on chairman- ship of the Direct Dialogue Working Group on Returns which brings together return experts

UNHCR Global Appeal 2006 320 Partners Budget (USD)

Serbia and Montenegro Activities and services Annual Programme Budget

Government agencies Protection, monitoring 5,963,886 Ministry of Internal Affairs of the Republic of and coordination Montenegro 2,343,142 Ministry of Labour, Employment and Social Affairs of Community services the Republic of Serbia Domestic needs 1,269,390 Ministry of Social Welfare of the Republic of Montenegro Education 508,920 Montenegrin Commissioner for Displaced persons Food 111,914 Serbian Commissioner for Refugees Health 210,556 Income generation 67,371 NGOs American Refugee Committee Legal assistance 3,269,103 Amity Operational support (to 1,770,796 Community Development Centre agencies) Danish Refugee Council Sanitation 10,568 German HELP Shelter/other 3,179,308 Humanitarian Centre for International Tolerance infrastructure International Consortium of Solidarity Transport/logistics 1,428,931 Intersos Micro Development Fund Total operations 20,133,886 Microfins Programme support 4,785,072 Network of Humanitarian Legal Offices Praxis Total 24,918,958 Red Cross of Montenegro Serbian Democratic Forum (SDF Serbia) UNION

Others UNV

Kosovo

NGOs American Refugee Committee Centre for Protection of Women and Children Civil Rights Project – Kosovo Danish Refugee Council Developing Together International Catholic Migration Commission Malteser Hilfsdienst Mercy Corps Serbia and Montenegro Mother Teresa Society Norwegian Church Aid

321 UNHCR Global Appeal 2006 Central Europe and the Baltic States

Recent developments

uring the first six months of 2005, some D12,500 asylum applications were recorded in this region (excluding Turkey), a 17 per cent decrease compared to the same period in 2004. The ten new European Union member States received 11,800 new asylum requests, 34 per cent less than during the first six months of 2004. Bulgaria Three countries reported very marked decreases: Slovakia, the Czech Republic and Poland (78 per Cyprus cent, 48 per cent and 25 per cent respectively). Czech Republic Conversely, a few countries such as Cyprus and Slovenia reported an increase (26 per cent and 38 Estonia per cent respectively). Hungary Having acceded in May 2004 to the European Latvia Union, the ten new member States have assidu- Lithuania ously amended their national asylum legislation in order to transpose asylum-related EU directives Poland and the Dublin Regulations into national legisla- Romania tion. In order to support this process of transposi- tion and implementation, UNHCR has issued Slovakia annotated comments to all asylum directives. The Slovenia Office continues to provide regular updates on the implementation and monitoring of the rele- Turkey vant directives. Additionally, UNHCR has outlined temporary stay provided since July 2005 to some 450 Uzbeks facing an immediate security risk in the Kyrgyz Republic.

UNHCR is concerned by the actual and potential pressures on the new EU member States that find themselves located on the external borders of the Union, some of which have limited asylum capacity. The Hague Programme, adopted by the EU Council of Ministers in November 2004, reflects the need for improved practical cooperation among EU member States and the need for greater burden and responsibility sharing.

UNHCR is gradually moving towards the reconfiguration of itspresenceinEuropearound regional representations. The advantages of this change lie in the formulation of subregional strategies to ensure that the transposition of strategies, economies of scale and a rationalized directives on asylum and asylum-related issues management span. As such, UNHCR established a builds on existing law and good practice, closing Regional Representation in Budapest in January gaps and improving protection standards. 2005, covering Hungary, Slovenia, Slovakia and Poland. Following EU accession, Bulgaria and A gaps analysis exercise recently undertaken in Romania will also be covered by the same certain new EU member States revealed that Representation. shortcomings in some areas necessitate further changes to national policies on the reception of asylum-seekers, refugee status determination (RSD) and the integration of recognized refugees. Strategic objectives

Hungary and Bulgaria have made noticeable prog- Central European countries need to develop ress in their efforts to fully implement their stronger and more coherent asylum systems, as national law on asylum and refugees, which is well as greater integration capacities which broadly in compliance with the 1951 Refugee adhere to the international protection standards the Baltic States Convention. They have also improved reception enshrined in the 1951 Refugee Convention and its Central Europe and conditions for asylum-seekers and strengthened 1967 Protocol. UNHCR will continue to encourage RSD structures. new EU countries to develop asylum systems which share the refugee burden more equitably. Romania has made considerable progress in the The Office will continue to advocate that the next asylum field and is working towards improving its phase of the transposition of EU directives local integration capacities. UNHCR is very grate- focuses on reinforcement of the right to seek and ful to the Government of Romania for the obtain asylum in Europe. Through advice and

323 UNHCR Global Appeal 2006 technical expertise, UNHCR will contribute to the sensitive to the situation on both sides of the new promotion of harmonized asylum policies within EU border. The Cross-Border Cooperation Pro- countries of Central Europe. cess (“Söderköping Process”) has proven to be an important forum and vehicle for communica- In line with the UNHCR Strategic Framework for tion amongst the States of the Western Newly Europe (2005-2010), UNHCR’s offices in the Independent States and between them and the region will work towards achieving the following: European Union, notably the new EU member access for asylum-seekers to the territories of States. European States; robust asylum systems in which the misuse of asylum procedures is avoided; Strengthening asylum systems asylum systems and practices which are respon- sive to issues of gender and age; a reduction in Strengthening asylum in the broader Europe con- xenophobia and racism directed at refugees and tinues to be one of the main priorities for UNHCR. asylum-seekers; effective promotion of the inte- The environment, however, presents increasing gration of refugees; asylum policies informed by a challenges as focus on border control and public spirit of solidarity and burden sharing; and confor- security measures impact negatively on attitudes mity with international standards through a com- towards refugees and asylum-seekers. With the mon EU asylum system. enlargement of the European Union, UNHCR will continue to work with the countries of entry and transit to develop effective asylum systems, that Operations ensure access to territory and procedures that conform with international protection standards.

Information on UNHCR’s operations in Turkey is Despite some concrete achievements, a number provided separately in the next chapter. This sec- of European Union member States in Central tion covers the rest of Central Europe and the Europe and the Baltic States are still in the pro- Baltic States. cess of strengthening their asylum systems and the institutions dealing with asylum remain weak. Access to asylum systems and UNHCR will continue to work with these countries procedures to make sure that international asylum and pro- tection standards are upheld. In this respect, UNHCR will continue to build on the achieve- As part of an overall trend in Europe, Central ments under way in the region, sharing lessons European countries are applying more restrictive learned and best protection practices, with a view policies that make obtaining asylum increasingly to setting standards at the highest levels. difficult for those in genuine need of protection. Existing EU asylum instruments place the burden

eta uoeand Europe Central of responsibility for determining an asylum claim Public information, advocacy and h atcStates Baltic the and providing a durable solution primarily on the partnerships State through which the claimant entered the Union. This could lead to increased pressure on In the context of the asylum debate in the new EU the new EU member States, most of which are sit- asylum space, UNHCR will continue to promote a uated on the external border of the Union. As a powerful public information campaign. The Office means to preserve and strengthen access to asy- will engage in more awareness-raising campaigns lum systems and procedures across Europe, and media events designed to bring the plight of UNHCR is strongly advocating for the develop- the refugee to the attention of target audiences. ment of appropriate systems of responsibility and UNHCR will counter xenophobia and highlight burden sharing. refugees’ and asylum-seekers’ contributions to their hosting areas. In addition to human rights The Office will also pursue its efforts to assist in advocacy and outreach work, the Office’s advo- the development of asylum systems that are cacy strategy will consist of planning of activities

UNHCR Global Appeal 2006 324 Czech Republic: A Belarussian asylum-seeker talking to a counsellor at Vysni Lhoty reception centre for new arrivals, in northern Moravia. UNHCR / L. Taylor with the participation of refugees, inter-agency Budget (USD) workshops, seminars, production and distribution Country Annual Programme of visibility materials, and effective information Budget targeting legal decision makers and the media. Bulgaria 1,042,971 UNHCR will continue to maintain reasonable levels Cyprus 838,791 of support for NGO implementing partners, while Czech Republic 927,603 assisting them in their efforts to expand and diver- sify their funding base through new EU funding Hungary 2,364,094 mechanisms. Poland 955,036

Romania 1,092,737

Resource mobilization Slovakia 762,151

Slovenia 380,121 UNHCR has expanded its donor base by engaging

a number of Central European States in the fund- Turkey 7,065,521 the Baltic States Central Europe and ing process which has led to increased contribu- Regional activities1 300,000 tions. The Office will continue its advocacy role among governments, organizations, private indi- Total 15,729,025 viduals and corporations in the region encourag- 1 Includes the promotion of refugee law. ing them to contribute and increase their levels of funding for UNHCR through the annual budget and/or special budgeting processes.

325 UNHCR Global Appeal 2006 Turkey

Main objectives • Promote durable solutions for refugees, mainly through resettlement to third countries. • Cooperate with the Government and NGOs in • Support the efforts of the Government of meeting the basic needs of asylum-seekers Turkey to strengthen and develop new legisla- with a special emphasis on the protection of tive and institutional arrangements for the refugee women and children. reception and protection of asylum-seekers • Raise public awareness about the problems of and refugees in conformity with international asylum-seekers and refugees and support Turkey’s standards. efforts to improve their integration prospects. • Cooperate with the Government in capacity- building efforts, including joint training Planning figures programmes designed to improve the Population Jan 2006 Dec 2006 knowledge and skills of key officials as they Iraq (asylum-seekers) 2,200 2,400 assume expanded responsibilities for asylum Islamic Republic of Iran and refugee matters. 2,000 2,000 • Monitor the implementation of the 1951 (refugees) Islamic Republic of Iran Convention Relating to the Status of Refugees 1,700 1,500 and the access of asylum-seekers to Turkish (asylum-seekers) asylum procedures. Other asylum-seekers 1,000 800 • Advise the Government on the protection Other refugees 1,000 900 needs of individual asylum-seekers from Iraq (refugees) 100 200 non-European countries to ensure efficient and fair refugee status determination (RSD), Returnees 500 3,500 while the Government prepares to lift the “geo- Total 8,500 11,300 graphic limitation” to the 1951 Refugee Convention. Total requirements: USD 7,065,521

UNHCR Global Appeal 2006 326 and other migrants, not least through the opera- Working environment tion of readmission agreements and under the Dublin II Regulation arrangements that would Recent developments bind Turkey as a Member State in the future. The National Action Plan, in its penultimate para- graph, sets 2012 as the target date for eliminating Turkey’s aspiration to join the European Union the “geographic limitation”. has important implications for the management of refugee and asylum matters in the country. The Turkey lies along major migration routes leading European Union accession process has stimu- from Africa, South and South-West Asia and the lated asylum reform, as Turkey must implement Middle East into Europe. The complex nature of the extensive European Union acquis on asylum contemporary migratory movements poses a par- and related areas, such as migration, border man- ticular challenge for the Government’s efforts to agement, human rights and administrative and establish a new national asylum system. Like many judicial reform. Most importantly, Turkey has Mediterranean countries, Turkey still interdicts tens made a commitment to lifting the “geographic of thousands of irregular undocumented migrants limitation”, which has for several decades each year as they attempt to transit the country, restricted its obligations under the 1951 Refugee usually with the assistance of human smugglers or Convention to persons uprooted by events in in the hands of traffickers. Many originate from Europe more than half a century ago. The limita- countries mired in conflict and civil war, and are tion will be lifted as soon as the necessary legisla- clearly in a refugee-like situation. This includes tion, infrastructure and staff are in place to an increasing number of African asylum-seekers assume the new responsibilities which will come who approach UNHCR without any resources and into being. in need of emergency assistance and medical treatment. UNHCR’s main operational counterpart, the General Directorate of Security at the Ministry of the It is expected that the implementation of consti- Interior, is taking the lead in the intensive plan- tutional and legislative reforms relating to Turkey’s ning for these requirements now under way. The European Union candidacy will increase interest General Directorate of Security has prepared the in voluntary repatriation among Turkish refugees National Action Plan for the Adoption of the European in Iraq. While security conditions in Iraq impede Union Acquis in the Field of Migration and Asylum with efforts to move forward with information activities the support of an EC-funded “twinning” project, and confidence-building measures, UNHCR is UNHCR and a range of non-governmental actors. working on the assumption that significant The Plan maps out the development of a compre- returns to Turkey could begin in 2006 as soon as a hensive national asylum system, including a spe- tripartite agreement between Turkey, Iraq and cialized agency for refugee status determination, UNHCR has been signed. a regional network of reception centres and other measures for meeting the protection, care and long-term needs of refugees. Constraints

The Government’s agreement to lift the “geographic Some 2,200 Iraqi refugees and asylum-seekers Turkey limitation” is largely a response to European Union remain in Turkey. They are dependent on concerns about burden-sharing, albeit a some- UNHCR’s assistance due to continuing instability what cautious agreement. Turkey is situated in a and insecurity in Iraq. The Turkish Government volatile geopolitical region and following acces- has implemented a ban on forced returns for sion, its southern and eastern borders would be Iraqis while most resettlement countries have the ultimate borders of a yet further expanded frozen the processing of applications by Iraqi European Union. Turkish officials are understand- refugees, leaving them with no clear solution in ably concerned that their country would become view. a buffer zone, absorbing refugees, asylum-seekers

327 UNHCR Global Appeal 2006 For over 1,100 Iranian refugees who entered Turkey after having resided for varying periods in Iraq, a safe return to Iraq is not possible. Acknowledging the situation, the Government has accorded these refugees temporary immigration status, but does not currently give the group access to resettlement from Turkey. With no pos- sibility of safe return to Iraq, little prospect of resettlement and only temporary asylum in Turkey, these refugees are growing increasingly frustrated and ever more dependent on UNHCR. Meeting the basic needs of the refugees and the growing number of African asylum-seekers will place a heavy burden on UNHCR’s assistance budget in 2006.

In Turkey, UNHCR finds itself attempting to keep pace with the Government’s growing demands for expert advice and support for asylum system development and capacity building, while also maintaining current protection and assistance programmes. This will demand careful management, strict prioritization and the mobilization of resources beyond the indicative country envelope for Turkey, as no funds are available from the operational budget, which is fully committed to life-sustaining assistance activities and providing essential services for refugees and asylum- seekers.

Strategy to ensure that training and capacity-building Protection and solutions activities are complementary and have the maximum effect. In April 2005, the Prime Minister approved the National Action Plan for the Adoption of the European The Government and UNHCR have agreed that Union Acquis in the Field of Migration and Asylum, the short-term priorities for the asylum system

Turkey whereby Turkey commits itself to comprehensive development are strengthening RSD expertise changes to the current legislative and institutional and capacity within the Ministry of the Interior; framework for asylum in order to meet the and building Turkey’s capacity for reception. A European Union and international standards. staff exchange programme will allow government The Plan provides the most comprehensive officials involved in RSD to work alongside overview of needs in relation to asylum system UNHCR counterparts. This will facilitate the development. UNHCR will accompany the pro- transfer of knowledge and expertise on all aspects cess and will offer expert advice and support to of RSD, including registration, interviewing tech- the Government within the framework of a niques and country of origin information analysis. comprehensive capacity-building strategy. UNHCR will also promote closer coordination The National Action Plan provides for the estab- with the Government and other key stakeholders lishment of seven regional reception centres that

UNHCR Global Appeal 2006 328 would be co-located with the offices of the While Turkey works towards the creation of new national asylum authority and Government RSD legal and practical means to protect refugees, decision-makers. UNHCR will facilitate study visits most non-European refugees will continue to find to European countries that provide relevant durable solutions through resettlement to third models for Turkey and will support a reception countries. UNHCR will also facilitate voluntary working group composed of key Government offi- repatriation, when conditions in the respective cials and civil society partners. This will allow the countries of origin permit return. Turkish authorities and their civil society partners to gain experience and derive lessons learned for Turkey Assistance use in broader planning.

Although Turkey is planning to improve reception UNHCR will also place importance on developing and accommodation arrangements, UNHCR will the capacity of Turkish civil society to serve as be the main source of material support and essential advocates and service providers for refugees and services for individual non-European refugees views the creation of effective NGO coordination and asylum-seekers in Turkey. At present the structures as an immediate priority. refugees and asylum-seekers depend on the limited financial, medical and other types of assistance provided by UNHCR.

329 UNHCR Global Appeal 2006 The Government has designated the Social UNHCR has rebalanced its human resources in Services and Child Protection Institution Agency 2005 for both asylum systems support needs and (SHCEK) to coordinate assistance. At the same RSD/durable solutions. This means redeployment time, SHCEK looks to UNHCR for the specialized of staff away from the RSD operation in order to training and material support required to fulfil support the implementation of the capacity- these responsibilities effectively. building strategy and to strengthen border monitoring. The RSD and the resettlement In addition, with the Gender and Children Team operations will nevertheless continue to require acting as a steering group, UNHCR is working significant human resources as long as Turkey together with its main implementing partners to maintains the “geographic limitation”. expand legal, social and psychosocial counselling services to provincial cities where most refugees Coordination and asylum-seekers reside. Special funding from a major donor will permit UNHCR and its partners to UNHCR coordinates its protection and assis- initiate counselling programmes in up to ten new tance programme directly with the Government locations, relying upon the existing SHCEK and of Turkey, including the Ministry of the Interior, Turkish Red Crescent Society network and the Ministry of Justice and SHCEK. UNHCR will infrastructure. also promote close cooperation between the Government and Turkish civil society by provid- Desired impact ing opportunities for dialogue and engaging Government institutions and national NGOs and UNHCR is helping Turkey to build a national foundations in joint operational activities. asylum system that offers reliable protection and real solutions for refugees, based upon interna- Through the UN Development Assistance Frame- tional standards and best practice. Turkey’s prog- work (UNDAF), the UN Country Team (UNCT) has ress in this endeavour will eventually permit identified several cross-cutting themes with links UNHCR to reduce its operational activities and to UNHCR’s operational activities in Turkey. The assume the oversight role foreseen in the 1951 UN agencies will pursue civil society development Refugee Convention. Until that time, UNHCR and capacity-building activities over the next will continue to play a direct role in ensuring that five-year period. These will include rights-based refugees enjoy protection and achieve solutions interventions in support of good governance, during their stay in Turkey. respect for human rights and the reduction of disparities, working in a complementary way through their Government partners. All UN agencies have shared their country programme documenta- Organization and tion, and joint UNCT activities have been reorga- implementation nized around thematic groups focusing on gender, HIV/AIDS prevention, and support for

Turkey Government efforts to address the problem of Management structure internal displacement and improve conditions for returnees. A strategic planning group drives the UNHCR has a main office in Ankara and main- UNDAF process and the Millennium Development tains field presence in Istanbul, Silopi and Van. Goals reporting work, along with quarterly meet- UNHCR will operate its programme with a total of ings of the UNCT principals and regular meetings 72 staff members: seven international staff, one of the thematic working groups and the Security JPO, 61 national staff and three national UNVs. Management Team.

UNHCR Global Appeal 2006 330 Offices Budget (USD)

Ankara Activities and services Annual Programme Istanbul Budget Silopi Protection, monitoring 2,346,404 Van and coordination

Community services 250,850

Domestic needs 632,000 Partners Education 41,000 Government agencies Ministry of Foreign Affairs - Directorate General for Food 6,550 Consular Affairs Health 252,000 Ministry of the Interior - Gendarmerie General Command Legal assistance 121,600 Ministry of the Interior - General Directorate of Operational support (to Security 73,000 agencies) Social Services and Child Protection Institutions Shelter/other 80,000 infrastructure NGOs Transport/logistics 33,000 Association for Solidarity with Asylum-Seekers and Migrants Total operations 3,836,404 Human Resources Development Foundation 3,229,117 International Catholic Migration Commission Programme support Total 7,065,521 Others Bar Associations of Turkey Bilgi University (Istanbul) Caritas Hacettepe University School of Social Work Helsinki Citizens Assembly, Refugee Legal Aid Programme (Istanbul) Human Rights Centre and Women's Community Centre (Van) IOM Middle East Technical University (Ankara) Turkish Red Crescent Society UNCT Turkey

331 UNHCR Global Appeal 2006 Western Europe

Andorra Recent developments Austria he decline in the number of asylum claims has Belgium Tcontinued in western Europe. In the first six Denmark months of 2005, fewer than 112,000 persons applied for asylum, compared to more than Finland 129,000 over the same period in 2004, a reduction of 13 per cent. Amongst the countries experienc- France ing particularly sharp falls were Austria, Denmark Germany (down by 26 per cent), Germany, Norway, Sweden and Switzerland (down by 29 per cent, 41 per Greece cent, 30 per cent and 44 per cent respectively). Ireland However, a number of countries at the external European Union border still faced a sharp Italy increase including Cyprus (up by 26 per cent), Liechtenstein Greece (up by 101 per cent) and Malta (up by 103 per cent). Luxembourg Malta Despite the overall fall, asylum remains a sensitive political issue. Security concerns, particularly fol- Monaco lowing the London bombs in July 2005, have had Netherlands negative implications for asylum-seekers and refugees. Norway Portugal As part of the transposition of European Union asylum-related directives into national law, the San Marino new European Union member States rapidly intro- Spain duced new legislative proposals which reflect more stringent approaches following accession. Sweden Similar tendencies have also been observed in Switzerland other countries, including Luxembourg and Swit- zerland. The draft European Union Directive on United Kingdom Asylum Procedures is still awaiting formal adoption, although its provisions already appear Romania at the end of July 2005 to ensure their to be taken into account by at least some member protection. Discussions on the European Union States. resettlement scheme have also continued, includ- ing on common approaches to support regional The arrival of undocumented migrants on the protection programmes, on which the European shores of the Mediterranean Sea has continued to Union has issued new instructions. attract the attention of politicians and the public alike. UNHCR has expressed concerns about the While integration continues to be seen as a partic- number of deaths at sea and welcomed various ular challenge, albeit more generally for migrants, public and private sector rescue initiatives. UNHCR is highlighting the special needs of refu- Access to the asylum procedure continues to be gees and other persons in need of international of particular concern. UNHCR has offered techni- protection. cal support and expertise to deal with the arrivals and to ensure effective identification of asylum- seekers. It also continues to call for more effective burden sharing between European Union member Strategic objectives States, including possible reallocation of persons in need of international protection. As well, a In line with the UNHCR Strategic Framework Western Europe more comprehensive strategy is required with (2005-2010) for Europe, an aim will be for States transit countries and countries of origin. to establish and maintain national asylum sys- tems which are commensurate with international Resettlement continues to gain increasing atten- protection standards. At both European and tion. UNHCR welcomed the offer by a number of national levels, identifying and adopting policies States (including some non-traditional resettle- and measures that could increase the efficiency of ment States) to accept Uzbek refugees who had national asylum systems, without compromising been temporarily transferred from Kyrgyzstan to principles of fairness, will be key. At the same

333 UNHCR Global Appeal 2006 Switzerland: Asylum-seekers attending computer classes held by an organization that provides legal aid, language and computer classes to asylum-seekers in Geneva. UNHCR / S. Hopper

time, a continuing challenge is to deal with mixed UNHCR is strongly advocating for the develop- flows and the migration-asylum nexus without ment of systems to share the refugee burden limiting access to asylum procedures for bona fide more equitably amongst European Union coun- asylum-seekers. This includes measures to rein- tries and the creation of a common system for force the quality of national asylum systems, as asylum processing that yields fairer and faster well as practical cooperation amongst States with asylum decisions. a view to enhancing the coherence of the European Union as a single asylum space. Gender, age and On a more global level, UNHCR plans to continue diversity mainstreaming will also need to be priori- to work with the European Union and European tized in all aspects of asylum legislation and States to improve the level of international pro- practice. tection and access to durable solutions elsewhere. etr Europe Western The Office will concentrate on ensuring access to the territory followed by effective opportunities to seek asylum, by suggesting appropriate measures Operations to identify asylum-seekers arriving as part of mixed flows, especially at the southern and east- ern borders. In view of the continuing mixed flows Harmonization of European asylum of illegal migrants and asylum-seekers, particu- policy larly across the Mediterranean Sea, UNHCR is examining the question of interception and res- UNHCR plans to offer expert advice to govern- cue at sea in collaboration with the concerned ments at European and national levels on policy States. At the same time, the Office is seeking to and legislative changes in line with international develop more comprehensive approaches involv- norms and best practice, including constructive ing transit countries, particularly in North Africa, examples of how national systems could be made and countries of origin. more efficient without compromising fairness.

UNHCR Global Appeal 2006 334 This includes efforts to improve the quality of asy- Resource mobilization lum decision-making, monitoring of borders and border procedures, and efforts to inform and edu- In view of the shortfall in funding for UNHCR's cate the public on asylum issues. UNHCR will also 2005 Annual Programme, it can be safely pre- continue to participate in asylum procedures in a dicted that support from Western European number of Western European countries. governments will be needed more than ever. Almost fifty per cent of UNHCR's 2004 contributions origi- With respect to transposition of European Union nated from the countries covered in this subre- asylum-related directives, UNHCR firmly hopes gion, with a number agreeing to provide large that States will not lose sight of the intention of proportions of their funding completely the Directives to set minimum standards only and unearmarked. This welcome trend towards more will not read them as a prescription for conver- flexible support from the key donor countries has gence towards the lowest common denominator. continued in 2005. Thus, when budget caps have To support the process, the Office has issued to be applied and activities postponed or indefi- annotated comments on the so-called Qualifica- nitely suspended, flexible contributions leave tion Directive and provisional annotated com- UNHCR in a better position to reset its priorities. ments to the draft Asylum Procedures Directive, The Office has already received encouraging which is still awaiting adoption. indications from key donors that in 2006 an even greater proportion of donations will be unearmarked, UNHCR also plans to focus on ways to improve in the spirit of the Good Humanitarian Donorship practical cooperation between European Union Initiative. member States in line with the Hague Programme. To support further burden sharing with States Budget (USD) experiencing particular challenges in dealing with Country Annual Programme arrivals of persons in need of international protec- Budget tion, UNHCR is exploring how to provide support Austria 1,425,580 for bilateral arrangements between countries. Belgium 3,352,605

UNHCR will continue to promote subregional France 2,286,391 coherence. The progressive reconfiguration of Germany 2,203,919 UNHCR’s presence around regional offices in Western and Central Europe should support this Greece 1,589,106 process. Ireland 640,596

Italy 2,519,308 Public Information, advocacy and partnership Malta 55,235 Portugal 64,600

Negative public attitudes toward refugees and Spain 925,853 institutions of asylum continue to be one of the main challenges for refugee protection and Sweden 1,964,978 UNHCR’s work in Western Europe. UNHCR’s Switzerland 694,874 public information and advocacy activities will con- United Kingdom 1,620,742 Western Europe tinue to play a key role in creating a more hospitable environment for asylum-seekers and refugees Total 19,343,787 in western Europe. Overcoming negative public attitudes will be a long-term effort requiring the establishment of alliances with governments, NGOs, advocacy groups, academic institutions, corporate sector and other organizations. UNHCR will strive to build strategic, broad-based alliances to promote tolerance and understanding.

335 UNHCR Global Appeal 2006 The Americas North America and the Caribbean Central America and Mexico Northern South America Southern South America

UNHCR’s main regional objectives for 2006 are:

• In South America and the Caribbean, UNHCR will seek to enhance the protection of refugees and inter- nally displaced persons of concern through implementation of the protection and durable solu- tions strands of the Mexico Plan of Action of November 2004, which comprises activities at the country or regional level to promote international protection and durable solutions in the region (Global Strategic Objectives 1 and 3). UNHCR will also seek to increase the protection response for the growing number of internally displaced people in Colombia (Global Strategic Objectives 1 and 5). • In North America, UNHCR will endeavour to maintain high protection standards and enhance the political support of North American countries for UNHCR’s operations in general and, in particular, the further- ing of protection and solutions in Latin America (Global Strategic Objectives 1, 2, 3 and 7). UNHCR also aims to enhance partnerships through participa- tory planning to obtain increased political and financial support for UNHCR’s work, and to keep a high level of civil society involvement in protection issues and the identification of durable solutions (Global Strategic Objective 6). North America and the Caribbean

Recent developments

n Canada, asylum and refugee issues are Ibeing widely and seriously debated. The Canadian Government envisages reforms to the refugee system, but stresses that it will uphold the country’s humanitarian traditions and inter- Antigua and Barbuda national obligations relating to persons of con- Bahamas cern to UNHCR. The Office will continue to monitor access to the territory and to full and fair Barbados refugee status determination procedures, as well Canada as to the use of detention centres.

Cuba The Safe Third Country Agreement signed in Dominica December 2002 between Canada and the United States took effect in December 2004. Dominican Republic This agreement is part of the 32-point action plan Grenada associated with the Smart Border Declaration signed by Canada and the United States in Haiti December 2001, which seeks to reinforce Jamaica US-Canadian cooperation in various areas. The agreement requires that asylum-seekers lodging St. Kitts and Nevis refugee claims in the United States or Canada at St. Lucia a land border port-of-entry, after transiting through the other country, will be returned to St. Vincent and the Grenadines the “country of last presence” for consideration Trinidad and Tobago of their claim. It is premised on the reasoning that they were in a country with adequate refugee United States of America protection procedures and safeguards. It pro- vides exceptions for certain asylum-seekers, in July 2005 and will submit a final report at the including: 1) those with “adult” family members end of 2005. (defined broadly) who have either legal status or a refugee claim pending in the “receiving coun- try”; 2) unaccompanied minors; and 3) those Strategic objectives who do not require a visa to enter the receiving country. The agreement allows the Parties the discretion, in the public interest, to examine UNHCR's strategic objectives and activities in the claims that would otherwise fall under it. United States and Canada will continue to be ori- ented around four principal themes of refugee UNHCR was formally invited by the Parties to protection, refugee resettlement, public informa- monitor implementation of the agreement and tion and external relations as well as mobilization UNHCR’s offices in Canada and the United States of financial resources in the public and private have been participating in its review. The Parties sectors. Both country offices have a strong tradi- have also requested NGO input. In August 2004, tion of partnership with NGOs and Government prior to the implementation of the agreement, a agencies. tripartite meeting was held to discuss the pro- posed UNHCR Monitoring Plan (bringing together In the United States, apart from focusing on the Canada, United States and UNHCR). The Plan was priority areas of detention, access to asylum pro- subsequently approved and presented for discus- cedures, women and children and anti-terrorism, sions to Canadian and US NGO representatives. UNHCR will continue its efforts to enhance activities As agreed with the Parties, UNHCR’s role is to in the areas of cooperation with the Department of monitor whether the Parties implement the Homeland Security. The Office will focus on policy agreement faithfully and in conformity with inter- issues and implementation of the expedited national law. The Office presented its mid-year removal process, on monitoring the Safe Third observations and recommendations to the Parties Country Agreement (in cooperation with UNHCR the Caribbean North America and

339 UNHCR Global Appeal 2006 Canada: French lessons for resettled refugees. UNHCR / S. Colvey

Canada) and ensuring the provision of legal coun- also conduct public information campaigns. The sel to unaccompanied minors with asylum claims. Honorary Liaison network in the Caribbean will be strengthened through new partnerships to serve In the Caribbean, the primary objectives will as a link to relevant NGOs and government coun- remain protection-related. UNHCR will thus con- terparts as well as to refugees and asylum-seekers. tinue to promote accession to international trea- Regular training will continue for relevant ministries ot mrc and America North

h Caribbean the ties and advocate for the drafting and adoption of and others in the Caribbean, with particular implementing legislation and/or procedures that emphasis on status determination procedures and comply with international standards. UNHCR will the rights and obligations of asylum-seekers and

UNHCR Global Appeal 2006 340 recognized refugees. UNHCR will engage in contin- Close relations with the US Coast Guard are also gency planning activities in relation to possible a priority in this context, ensuring the flow of larger population movements in the region. information on interception at sea and access to asylum procedures in these situations. The sec- In Canada, the protection strategy of the Office will ond, intertwined with the first issue, is the deten- focus on four areas: first, to ensure that asylum- tion of asylum-seekers, including conditions, seekers have access to the territory as well as to alternatives to detention, indefinite detention, full, fair and effective refugee status determina- and release policies. This will be monitored tion procedures in Canada; second, to ensure through ongoing visits to detention centres. that the processing and management of claims, UNHCR will also advocate for asylum-seekers as well as the decisions rendered by relevant through interaction with key lawmakers and Government and Immigration and Refugee Board Department of Homeland Security personnel. officials, are of a high quality; third, to monitor the On the third issue, concerning women and chil- detention policy and practice of the Government dren,UNHCRwillfocusonUSpolicyregarding as they relate to persons of concern to UNHCR; gender-based claims, the custody and care of and lastly, to ensure that the special needs of separated children, programme development women, children and the elderly are fully with the United States Government Office of mainstreamed across the entire spectrum of work, Refugee Resettlement and a focus on best prac- whenever possible. The activities of the Office will, tices regarding custody and care of separated where necessary, be carried out in collaboration children. The fourth issue is US policy and prac- with other partners, including the Government, tice on statelessness. Lastly, UNHCR will focus the Immigration and Refugee Board and NGOs. on the impact of US anti-terrorism policies on asylum-seekers and refugees.

Operations Some 2.4 million refugees have been resettled to the United States in the past quarter century through a complex programme, which involved The functions of UNHCR’s Regional Office for three federal departments, 50 state refugee the United States of America are to promote programmes, eight national NGOs, governments assistance, protection and durable solutions for and hundreds of local NGOs. UNHCR will con- refugees and to sustain and enhance political and tinue to work with a wide variety of partners to financial support for UNHCR. This occurs in the identify groups and individuals who could be context of a complex political environment and referred to the US resettlement programme. the continuing aftermath of the terrorist attacks on 11 September 2001. In the Caribbean, the UNHCR expects to continue promoting political Regional Office continues to promote universal and financial support for refugees, not only in the accession in the region to both international United States and the Caribbean but worldwide. refugee instruments, appropriate treatment of UNHCR’s Regional Office in Washington garners arriving asylum-seekers and adequate contin- support through advocacy and information gency planning. The Office also continues its sharing with the administrative and legislative advocacy for the adoption of refugee legislation in branches of the United States Government, pre- accordance with international standards and/or senting and explaining challenges and constraints the adoption of workable ad hoc procedures and to decision makers and their staff through individ- policies to benefit asylum-seekers and refugees. ual meetings and/or briefings.

In the United States, UNHCR will continue to UNHCR relies increasingly on the private sector focus on five major protection issues. The first, in the United States for financial support for its access to asylum procedures, includes expedited global programmes and it will continue to sup- removal, detention, and the ongoing work of a port private sector fund raising by the national UNHCR consultant who will monitor the association, USA for UNHCR. The efforts which US-Canadian Safe Third Country Agreement. secured major donations from individuals, the Caribbean North America and

341 UNHCR Global Appeal 2006 corporations and foundations involved the provi- by numbers perceived to be relatively modest sion of in-depth information on UNHCR’s policies elsewhere). and priorities. Funds raised from the private sec- tor will also be targeted to support projects ben- UNHCR’s Regional Office in Mexico will continue efiting refugee women and children. UNHCR will to cooperate with the authorities in Cuba to mon- also promote fund raising for education pro- itor the arrival of Haitian migrants and asylum- jects benefiting refugee children. American stu- seekers who arrive periodically in small groups dents will be encouraged to participate in fund and are temporarily sheltered by the Cuban raising events for refugee children, such as the Government in Punta de Maisi camp. Maisi “Lend a Helping Hand to Refugees” campaign. camp renovations were completed in 2005. UNHCR will continue to provide access to an UNHCR aims to enhance media coverage and asylum procedure for those Haitians who wish to public awareness of UNHCR, refugees, asylum- request asylum. UNHCR will also continue, under seekers and internally displaced people in the its mandate, to ensure access to a fair and expedi- United States, the Caribbean and worldwide. A tious refugee status determination procedure for well-informed public will encourage better protec- the small number of asylum-seekers reaching tion of asylum-seekers, more rapid integration of Cuba from outside the Caribbean region. Given refugees and increased levels of public and pri- the lack of local integration prospects in Cuba, vate sector financial support. UNHCR provides UNHCR will continue to give priority to the reset- multimedia material to journalists, academics, pri- tlement of a group of some 40 refugees who vate sector donors, educators, NGOs, universi- depend on UNHCR’s assistance. While awaiting ties, refugee and asylum groups and the general resettlement solutions, refugees continue to public on a daily basis. Through its education enjoy protection against refoulement and the awareness project and its partners in the United Government ensures access to medical care and States and the Caribbean, the Office’s network of educational opportunities. educators continues to expand. Media training sessions in the Caribbean are conducted to create Canada is a country of asylum, a country of reset- better awareness of refugee issues among the tlement and a donor country. In Canada, press. Whenever possible, the Office will highlight UNHCR’s work revolves around a number of to the media, educators and the general public protection themes. Due to similarities between the plight of refugee women and children, who asylum/refugee policies and practices in Canada constitute the majority of refugees. and the United States, UNHCR’s Branch Office in Canada and Regional Office in Washington As there are no offices in the region, UNHCR envisage continuing their close collaboration. operates in the Caribbean through a network of Coordination with other UNHCR offices in the honorary liaison officers and NGO protection Americas is undertaken in the context of support partners who assist asylum-seekers and alert to the follow-up to the Mexico Plan of Action. UNHCR to arrivals and departures and changing UNHCR will continue to seek financial and techni- government policies. Strengthening the net- cal support from Canada. work and enhancing the protection capacity of Caribbean States are the main activities of the Canada's resettlement programme remains one of Office. Such activities will be further developed the largest in the world in absolute terms (not through the creation of a Caribbean Unit within the merely in per capita terms). It covers a wide range UNHCR Regional Office in Washington. The poten- of nationalities and UNHCR's referrals and facili- tial for mass exodus in the northern Caribbean has tation of this programme are of crucial impor- put the operational focus on contingency plan- tance. To this end, the UNHCR office in Canada ning. States likely to be affected by any possible liaises closely with the Government, UNHCR

ot mrc and America North inflows will be assisted to prepare for fulfilling the Headquarters, field offices and NGOs. h Caribbean the protection and assistance needs of arrivals (in case small Caribbean countries are overwhelmed

UNHCR Global Appeal 2006 342 UNHCR has been actively seeking the support of Budget (USD) private donors in Canada since 2002. The return Country Annual Programme on several years of investment in acquiring new Budget donors is increasing. In 2004, the equivalent of more than USD 500,000 was donated to UNHCR Canada 1,638,952 by more than 10,000 private citizens in Canada. In Cuba 400,000 2005, roughly USD 615,000 of revenue is forecast. United States of America 3,489,221

UNHCR Office in New In addition to being an important asylum and 1 2,780,654 York resettlement country, Canada remains an impor- 2 tant donor to UNHCR's programmes, an active Regional activities 200,000 member of UNHCR's Executive Committee and a Total 8,508,827 key participant in international debates on a wide 1 variety of human security issues of relevance to Please refer to the Headquarters chapter under Executive Direction and Management. 2 UNHCR. Includes protection of refugees and capacity building in the Caribbean. the Caribbean North America and

343 UNHCR Global Appeal 2006 Central America and Mexico

Recent developments

he number of refugees and asylum-seekers in TCentral America and Mexico remains low with a total of 6,325 registered refugees and 492 asylum- seekers recorded at March 2005. All countries in the region are signatories to the 1951 Convention and the 1967 Protocol, have set up refugee status determination (RSD) procedures and most have also incorporated the expanded Cartagena refugee definition into their policy and/or practice. Mexico, in particular, has acquired significant experience in refugee matters as it responded to large-scale refugee flows generated by the Central American crisis of the 1980s and 1990s. At present, there are no large-scale refugee movements in the region. Refugees now arrive in small numbers individually or in family units, within massive mixed migratory flows from South to North. Governments in the Belize region are improving legislative frameworks to protect refugees and are in the process of devel- El Salvador oping national RSD procedures appropriate to Guatemala individual refugee arrivals within mixed migration flows. UNHCR is heavily involved in training and Honduras capacity-building activities to enable governments to strengthen procedural standards and apply the Mexico refugee definition appropriately within a complex Nicaragua migratory environment. The migratory context, and, in particular, the the Mexico Declaration and Plan of Action, strong pressure faced by the countries in the region adopted in November 2004. The countries cov- to deter irregular migration, has led to the intro- ered by the Regional Office in Mexico have duction of migratory control mechanisms. These expressed strong support and enthusiasm for include strict admission requirements and the sys- the implementation of the Plan of Action, which tematic interception, detention and expulsion of will be one of the most positive and encouraging large groups of undocumented migrants. Since elements of UNHCR’s working environment in refugees arrive in small numbers within migratory 2006. UNHCR’s strategy for Central America flows, they tend to be negatively affected by these and Mexico focuses on strengthening national migratory control mechanisms. One of UNHCR’s asylum systems through promoting reform of main priorities is to work constructively with legislative frameworks, building the capacity of governments in the region to ensure safeguards government asylum officials and migratory within the migratory environment in order to miti- authorities, and monitoring the treatment of gate negative effects on the asylum system. At the asylum-seekers within migratory flows. The local same time, UNHCR continues to work with govern- integration of refugees is also one of the princi- ments to find durable solutions, mainly through pal objectives of the Regional Office, though local integration, for a predominantly urban given the prevailing economic situation, particu- refugee population. Here, the main challenges are larly in Central America, and UNHCR’s limited still unemployment and poverty, which inhibit the resources, this is a challenge. economic integration of refugees. Under the Mexico Plan of Action, two special pro- jects implemented in 2005 will have an impact on Strategic objectives UNHCR’s strategy and activities in 2006. The first project consists of an analysis of the work of the national eligibility committees in each country of For Central America and Mexico, the protection the region, in order to identify existing practices strategy will be defined by the commitments and gaps, as well as to make recommendations made by the governments of the region under regarding existing legislative frameworks, regional and Mexico Central America

345 UNHCR Global Appeal 2006 Mexico: Summer workshop for children on education for peace, human rights and refugees at the Refugee Park. UNHCR / M. Echandi

harmonization of eligibility procedures and to strengthening the capacity of Government offi- identify government resource and training needs. cials when working with different sectors of The second project aims to assess the composi- diverse refugee populations. tion, function and impact of the protection net- works in each country, making recommendations to improve their cooperation with UNHCR. It also Operations enhances the support that refugees, asylum- seekers and other persons of concern receive In Mexico, UNHCR’s Regional Office will continue from NGOs, human rights groups, academia and to build national capacities to protect asylum- other sectors of civil society. The results of the seekers and refugees within broader migration two projects will help the Office to develop a com- movements, and ensure access to asylum proce- prehensive strategy for strengthening eligibility dures, by intensifying training activities targeted committees and boosting the impact of regional at migration and other government officials work- protection networks. ing along migratory routes. Together with imple- menting partners, the Office will continue to The gender, age and diversity strategy, launched monitor visits to migratory detention centres and at the end of 2005, will be fully implemented in key points of entry frequently, particularly along Mexico during 2006. Options will be explored for Mexico’s southern border where UNHCR main- applying the strategy to meet the realities in other tains a field office in Tapachula. UNHCR’s pres- Central American countries where UNHCR does ence at this heavily transited border point on the not have a presence and where the urban refugee migration route from South to North continues to population is small and dispersed. The Regional be very important in order to facilitate access to Office has already defined a gender- and the territory by asylum-seekers and to assist the eta America Central n Mexico and age-sensitive approach as a priority. All training Mexican Government in ensuring sustainability of and capacity-building activities already include a the national asylum procedure. gender and age component with a view to

UNHCR Global Appeal 2006 346 The majority of the approximately 4,300 refugees American States (OAS). It is instrumental in the and asylum-seekers in Mexico live in urban areas. implementation of the Mexico Plan of Action, Newly arriving refugees come from Latin American particularly the Plan’s protection component, countriesaswellasotherpartsoftheworld(Cen- e.g. doctrinal research, support for the rein- tral Asia, the Middle East and Africa). Local integra- forcement of national eligibility commissions, tion for urban refugees, through economic and regional training and the strengthening of social integration initiatives, is one of the main regional and national protection networks. It objectives for UNHCR and its partners and will continue to implement a capacity-building includes, for example, the promotion of language approach in the areas related to the use of training, job training and micro-credit to refugees human rights norms and standards to comple- with entrepreneurial skills. Similarly, an employment- ment and strengthen refugee protection, train- search project focused on larger Mexican compa- ing and dissemination of international refugee nies has been started by one of UNHCR’s partners law, mainly through UNHCR’s Spanish language and an agreement reached with the city govern- website (www.acnur.org). ment to allow refugees equal access to job banks. UNHCR will continue to facilitate the naturalization Public Information (PI) activities will continue to of refugees. The naturalization programme for constitute an important element of the Regional long-staying rural indigenous Guatemalan refugees Office’s strategy, in particular to promote a in the southern states of Mexico was concluded greater understanding of the plight of refugees with the distribution of naturalization papers to the among the general public, academia, civil society remaining 1,100 refugees in 2005. and migration/border authorities. While these sec- tors tend to be heavily involved in migration In Belize, Guatemala, El Salvador, Honduras issues, due to the regional context, there is less and Nicaragua, where UNHCR no longer main- knowledge of or attention paid to refugee protec- tains a presence, the Office will continue to work tion. As such, regional PI, external relations and through local implementing partners. They will dissemination activities will be aimed at raising provide legal guidance to asylum-seekers and awareness of the plight of refugees among the newly recognized refugees and will assist with general public and targeted sectors involved in local integration (including permanent residence migration, as well as maintaining and strengthen- and naturalization). Within the framework of the ing support for UNHCR and its work in the region Mexico Plan of Action, and building on the results and in the world. Activities will be framed around of a study carried out by the Regional Office in two main objectives. The first objective is to Mexico, new training and network strengthening increase awareness of refugee issues in key sec- activities will be undertaken in each of the Central tors and, in particular, to promote positive atti- American countries. The legislative framework will tudes towards refugees of different cultural, be strengthened by providing technical and legal linguistic, racial and religious backgrounds. The assistance and advocating for the passage of a second objective is to implement dissemination new refugee law in Nicaragua and also in Honduras activities that support and strengthen the imple- if the regulatory decree pertaining to its migration mentation of the Agenda for Protection and the law is modified. UNHCR will also lobby for the Mexico Plan of Action. approval of a regulatory decree on implementa- tion of the national refugee law in El Salvador. Budget (USD)

Country Annual Programme Budget The Costa Rica-based Regional Legal Unit is a decentralized provider of technical services of Mexico 1,580,088 the Americas Bureau. The Unit focuses on the Regional activities1 1,185,000 reinforcement of the legal framework for the protection of persons of concern to UNHCR in Total 2,765,088 the Americas and the strengthening of UNHCR’s 1 Includes legal assistance for new arrivals, regional promotion and consolidation working relationship with the political and of durable solutions in Central America, Cuba and Mexico, as well as promotion human rights organs of the Organization of and dissemination of refugee law. and Mexico Central America

347 UNHCR Global Appeal 2006 Northern South America

Recent developments

s the conflict in Colombia continues, increas- Aing numbers of people are displaced within the country or take flight to neighbouring coun- tries. Colombians make up the vast majority of refugees and asylum-seekers in the region. How- ever, it is believed that there are many more “invisible” Colombian refugees. To protect them- selves from selective killings, trafficking, harass- ment, forced recruitment and extortion, many Colombians prefer not to come forward and request asylum. This may be partly attributable to a lack of awareness of rights and entitlements; however, by and large, it is in response to inade- quate asylum regimes and lack of security, par- ticularly in border areas. It is therefore very difficult to obtain reliable estimates of numbers of Colombians fleeing violence who are potentially Colombia of concern to UNHCR. The number of recognized Costa Rica refugees and asylum-seekers in the region stood at 33,205 persons in July 2005, with Colombians Ecuador making up the largest group. However, the num- Guyana ber of Colombian persons of concern in Ecuador, Venezuela, Panama and Costa Rica is believed to Panama be more than half a million. The number of Colombians seeking protection outside the region Peru has remained stable, with some 9,000 persons hav- Suriname ing sought asylum in countries of the Organization for Economic Cooperation and Development (OECD) Venezuela in 2004. and local levels, with government entities, includ- Strategic objectives ing Ombudsman offices, NGOs, UN agencies, the media and donors, are therefore major objectives. The Agenda for Protection and the Mexico Plan of Action will provide the basis for UNHCR’s strategy Voluntary repatriation of Colombians has not in the region. For the countries in northern South occurred on a significant scale. UNHCR will pursue America, this will embrace the promotion of an local integration and promotion of self-reliance in effective response by States and civil society and border communities and urban areas through a focus on protection and assistance to persons of community development and gender- and age- concernbothinborderareas(“BordersofSolidarity/ sensitive approach (Venezuela and Ecuador were Fronteras Solidarias”) and urban areas (“Cities of among the pilot countries which have successfully Solidarity/Ciudades Solidarias”). Refugees and asylum- implemented the gender, age and diversity policy, seekers in the region are generally able to move followed by Panama and Costa Rica in 2005). The freely, provided they have access to asylum pro- community support and integration programmes cedures, have registered and hold valid identity in Venezuela, Ecuador and Panama began in cards. Many refugees move to cities, not only to 2003. Self-reliance projects for the mainly urban seek work but also very often for protection rea- refugees in Costa Rica will continue, including sons. For UNHCR’s partners, outreach work is micro-credit, vocational training and job place- hampered by the refugees’ mobility and the ment initiatives and community-based child care “invisibility” of the many who do not formally seek centres that were piloted in 2005. Although per- asylum. For this reason, the UNHCR’s presence in sons of concern from Colombia tend to arrive sin- Ecuador, Venezuela and Costa Rica has been gly or in small groups, major influxes cannot be strengthened and will be consolidated. One of ruled out, therefore there is a need to maintain UNHCR’s main objectives is capacity building and some degree of emergency preparedness. training of authorities on refugee law, particularly along borders. Enhancing protection networks and fostering strategic alliances, at the country Northern South America

349 UNHCR Global Appeal 2006 number of asylum-seekers in the countries sur- Operations rounding Colombia. More than 30,000 persons have requested asylum over the last five years, Costa Rica hosts the second largest population of of whom over 10,700 had been recognized at Colombian refugees in Latin America. The refugee the end of August 2005. The total number of population reported as at January 2005 was 10,850, Colombians who have crossed into Ecuador is, of whom more than 80 per cent are Colombian however, much higher. Based on reliable official nationals. Official updated government figures are figures, UNHCR and the Government estimate at not available but it is estimated that approximately 250,000 the number of Colombians of concern to 100 to 150 new asylum requests are received each the Office. In this context, UNHCR is continuing in month. The limited prospects for voluntary repatri- its discussions with the Ecuadorian Government ation have made local integration the principal to advocate for mechanisms to prevent migratory objective of the Office in Costa Rica. The continu- measures from undermining protection safe- ing arrival of new refugees has had an important guards for persons in need of international pro- impact in a society where the immigrant popula- tection. The spill-over effects of the Colombian tion is estimated at 10 per cent of the total popula- conflict are compounded by serious domestic tion. Access to gainful employment continues to socio-economic problems that affect local and be the key limiting factor to the local integration of refugee populations alike, such as high rates of refugees in Costa Rica, as xenophobia, employers’ unemployment and under-employment and low lack of recognition of refugee rights and lack of levels of school enrolment, as reflected in partici- documentation continue to block otherwise quali- patory assessments carried out under the gender, fied refugee candidates. Moreover, employed ref- age and diversity pilot project. ugees are generally working in jobs below the level of their occupational skills and struggle to make a The Government of Ecuador pursues a policy living. UNHCR will continue to address the limita- which allows for local integration. Opportunities tions to local integration in order to avert the risk of exist to develop a more integrated approach with a protracted refugee situation. This will involve the help of line ministries, local authorities, bilat- expanding the very successful micro-credit eral development agencies, civil society actors programme, the promotion of occupational train- and UN agencies, and the Government has shown ing and increased support for child care initiatives willingness to include refugees in central and local to help women find and maintain employment. The development plans. Due to this favourable environ- significant deterioration in security for Colombian ment, Ecuador has been chosen as a pilot country refugees in recent years continues to oblige for the Development Assistance for Refugees (DAR) UNHCR to process an increasing number of cases programme. In coordination with the Government for resettlement involving people whose safety and other actors, UNHCR’s strategy will include cannot be assured by local authorities. Resettle- the expansion of community support and integra- ment submissions from Costa Rica are almost tion programmes with a particular focus on always based on legal protection and physical self-reliance. UNHCR will also seek to ensure the security-related problems. UNHCR has made great inclusion of refugee issues under efforts to progress in bringing refugee and migration issues achieve relevant MDGs, particularly in the to the attention of the UN Country Team, and will underdeveloped areas of northern Ecuador. continue to pursue the inclusion of refugee issues Resettlement continues to be a significant ele- within the remit of the working group on the Millen- ment in the strengthening of the protection nium Development Goals (MDGs). capacity of UNHCR in Ecuador as many refugees face physical protection risks and, especially for The number of asylum-seekers has declined since women-at-risk, there are few solutions involving the introduction in Ecuador in May 2004 of the local integration. The Resettlement Unit of otenSuhAmerica South Northern requirement that asylum-seekers provide proof of UNHCR Ecuador therefore plans to refer at least a clean criminal record, a document that can only 650 people for resettlement. Some 200 to 250 of be obtained in urban areas of Colombia. However, these will be resettled to the emerging resettle- Ecuador still continues to receive the highest ment countries in the region, in the framework of

UNHCR Global Appeal 2006 350 Venezuela: Colombian refugees in a shanty town in Urena village, near Tachira river. UNHCR / B. Heger the third operational pillar of the Mexico Plan of in principle agreed to change the migratory status Action: South-South resettlement (“Resettlement of Colombians under temporary protection at the in Solidarity/Reasentamiento Solidario”). border. However, pending implementation of this agreement, the precarious legal and economic Over the last two years, there has been an situation of this population will not improve and improvement in the protection and overall situ- they will remain dependent on external protection ation of refugees, asylum-seekers and other and aid. Hopes of providing permanent residence persons of concern in Panama. The national to some 400 long-staying refugees from Nicaragua legal refugee framework, key parts of which are and El Salvador have been further delayed as the precarious and inconsistent with international Government considers that permanent residence refugee law, will hopefully be soon under review. can only be conferred through a revision of the The number of refugees and asylum-seekers immigration law. UNHCR’s main preoccupation stands at over 1,800 but UNHCR believes there to will be with the improvement of the national legal be another 10,000 persons of concern, mostly refugee framework. The overall goal in terms of Colombians, on Panamanian territory. Over the assistance is to increase partnerships and work past year, a change has been observed in the pat- towards a major engagement of the Government tern of arrivals of new asylum-seekers, especially in the provision of basic services. with respect to Colombians. The numbers of per- sons from rural backgrounds crossing into poor There are also increasing numbers of Colombian areas along the Colombian-Panamanian border citizens in need of protection in Peru. In 2004, have been steadily declining, whereas in urban 120 persons applied for asylum and during the areas (most notably Panama City) arrivals of pro- first four months of 2005, 63 persons had lodged fessionals and small-scale entrepreneurs have applications. According to UNHCR’s implement- gradually increased. Accordingly, UNHCR is giving ing partner in Peru, small groups of Colombians in increasing priority to urban areas, while maintain- need of protection have managed to enter border ing a regular presence at the border. For both communities. However, due to the geographical populations, the focus is on providing increased conditions and security situation of the border legal and economic stability. The Government has area, it has been extremely difficult to gain access Northern South America

351 UNHCR Global Appeal 2006 to them. Monitoring activities in border areas are will continue to provide material assistance to vul- being carried out with the support of UNHCR’s nerable refugees and asylum-seekers through its implementing partner and local authorities. In implementing partners. It will also further concen- 2006, the Regional Office in Venezuela, which trate on the community support and integration covers Peru, will reinforce alert and response programmes, in an effort to foster self-reliance for mechanisms by strengthening the protection net- persons of concern and to mitigate any adverse work and increasing its capacity to provide mini- impact on host communities by providing support mum standards of emergency humanitarian in the areas of health, education and infrastructure. assistance for those entering isolated communi- ties along the border. Public information in the countries of the subre- gion is of great importance: firstly, as a means of The number of Colombians in Venezuela is barely impressing upon the general public the difference reflected in official statistics. Based on estimates between a person in need of international protec- from a number of official sources, it is believed that tion and an economic migrant; and secondly, as a the number of persons of concern is 270,000. In powerful tool for reaching out to persons of con- the context of the registration exercise (Misión cern to inform them of their rights and asylum pro- Identidad) which the Government carried out in cedures. In particular in Venezuela and Ecuador, 2004 and 2005, as many as 400,000 undocu- information campaigns through local mass media mented foreigners were regularized, many of them in host communities will continue to be an impor- Colombians. By comparison, the number of offi- tant element in the registration and documenta- cially recognized refugees stands at less than 400 tion campaigns. In Costa Rica, public information and the number of asylum-seekers registered by efforts continue to focus strategically on two broad the National Refugee Commission (NRC) just over areas: dispel rising xenophobic sentiments often 4,000. Significant strides have been made recently fuelled by the press, by better educating journalists in the area of institutional development, such as and editors from influential media outlets on the the establishment of the NRC and its Regional “facts and fictions” about refugees, while at the Technical Secretariats (RTS) in the three border same time informing municipal authorities and states of Apure, Tachira, and Zulia. Nonetheless, prospective employers about refugee rights and the operational capacity of both the NRC and the obligations as stipulated by the law. In 2006, a pub- RTS remains low, as reflected by the modest num- lic information strategy will provide a common ber of registered asylum-seekers, the problematic framework and coordinate activities for all coun- issuance of identity documentation for asylum- tries in the region. seekers and refugees and the backlog of applica- tions. In 2006, the priority will be to provide an Budget (USD) effective asylum response to the large number of Country Annual Programme Colombians in need of protection, especially in Budget border regions. This will focus primarily on the enhancement of local capacities and the establish- Colombia 8,443,625 ment and consolidation of networks that involve Costa Rica 1,705,293 UN agencies, church and civil society organiza- Ecuador 3,944,085 tions, as well as further promotion of the inclusion of persons of concern in governmental social Panama 857,493 programmes. With large revenues from oil, the Venezuela 1,841,696 Venezuelan Government has concentrated efforts Regional activities1 1,100,000 on improving health, educational and welfare poli- cies, the so-called Misiones, during 2005, and many Total 17,892,192 Colombians in poor communities along the border otenSuhAmerica South Northern 1 and marginalized urban neighbourhoods could Includes care and maintenance and durable solutions to refugees in Northern South America. benefit. The economic situation continues how- ever to be critical especially in the border states. Therefore, UNHCR's Regional Office in Venezuela

UNHCR Global Appeal 2006 352 Colombia

Main objectives

• Promote a comprehensive and coordi- nated response to the humanitarian crisis to prevent displacement, rein- force the protection of the rights of internally displaced persons (IDPs) and populations at risk and seek durable solutions, taking into account the spe- cial needs of specific groups. • Contribute to strengthening interna- tional protection of Colombian refugees in Latin America and else- where in the world through early warning, border monitoring and provi- sion of country of origin information. • Ensure international protection for the small but growing number of asylum-seekers and refugees in Colombia. State, a loose confederation of paramilitary orga- Planning figures nizations, the Autodefensas Unidas de Colombia Population Jan 2006 Dec 2006 (AUC), and two guerrilla groups, the Fuerzas Arma- 1 das Revolucionarias de Colombia-Ejército Popular IDPs 2,200,000 2,400,000 (FARC-EP) and the smaller Ejército de Liberación Various (refugees) 160 200 Nacional (ELN). The Organization of American Various States (OAS) has reported progress on the pro- 20 20 (asylum-seekers) cess of demobilization of the AUC, which it has Returnees 10 10 been monitoring. To date, a significant number of troops has been demobilized but the process of Total 2,200,190 2,400,230 reintegration has had mixed results. Despite the

1 demobilization of these paramilitary troops, a The Government has acknowledged that there are more than 2 million IDPs in Colombia. NGOs have estimated more than 3 million. definitive solution to the conflict is still a long way off. Total requirements: USD 8,443,625 No substantive peace talks have been held with the two guerrilla groups and the conflict continues Working environment despite the Government’s robust security policy, including a military offensive in southern Colombia Recent developments (Plan Patriota). Indeed, in some areas of the country clashes between the Armed Forces and guerrilla Colombia continues to experience a large-scale groups have become even more frequent, causing and complex internal armed conflict involving the further population displacement. The number of

353 UNHCR Global Appeal 2006 Colombians seeking protection, both within the ment and to ensure IDPs' enjoyment of the full country and abroad, is still growing. According to range of rights. UNHCR will also collaborate on a Government estimates, there are between 2 and 3 new review of the public policies relating to inter- million displaced people, 1.6 million of whom nal displacement which will be presented to the are officially registered. However, NGO figures Government in 2006. suggest the presence of more than 3.4 million IDPs. In surrounding countries more than half a mil- Constraints lion of Colombians live in refugee-like situations, but only some 50,000 Colombian asylum-seekers and The ongoing conflict is characterized by armed refugees have been registered. confrontations between the Armed Forces and the guerrilla groups and frequent cease-fire viola- The recently enacted Justice and Peace Law devel- tions by the paramilitaries. This continues to ops the legal framework for the demobilization impinge on the enjoyment of basic human rights process, but there is a fear that it fails to ade- by the civilian population, and leaves whole com- quately address several important concerns, for munities at risk of displacement. example reparations for violations committed by irregular armed groups. Its application and The magnitude of the internal displacement crisis humanitarian impact will be closely monitored by can be explained by the prevailing weakness of the international community. A proposed human- State institutions, especially in rural areas, including itarian accord between the Government and the their complete absence from many areas of the FARC, involving the exchange of kidnap victims for country, and their inability to protect civilians. FARC prisoners, has yet to materialize. Attempts to initiate substantive peace negotiations with the ELN have also foundered. Strategy Elections are scheduled for 2006 and President Uribe is seeking re-election. A constitutional Protection and solutions amendment which allows for his re-election has been challenged before the Constitutional Court, Colombian IDPs and refugees generally flee for which is expected to issue its ruling by November the same reasons and UNHCR sees all victims of 2005. the conflict who remain in the region as part of a broader “Colombian situation”. The Office will Since 2002, the Government has promoted the therefore adopt a two-pronged approach that return of internally displaced people. Although seeks to guarantee protection both for those who voluntary return is in principle the solution most are displaced within the country and those who appropriate to situations of internal displace- cross an international border. Support for interna- ment, the voluntary nature of some returns has tional protection of Colombian asylum-seekers been called into question, especially in the and refugees will be provided to asylum countries absence of alternatives. Returns have often been through border monitoring and early warning of carried out despite the absence of secure condi- potential refugee movements, as well as timely tions, and the persistence of the internal armed provision of detailed country of origin informa- conflict gives rise to concerns regarding the tion. Given that different sectors of the popula- sustainability of returns. tion are affected differently by displacement, the protection strategy adopts a differential approach The Constitutional Court handed down a land- that takes into account age, gender and ethnicity. mark judgement on the protection of the inter- nally displaced in 2004, in which it found that It is expected that global migration routes the response to the internal displacement crisis and events in other countries in Latin America

Colombia was inadequate. UNHCR then presented the will continue to lead to increased arrivals of Government with a set of recommendations to asylum-seekers in Colombia. The Office will improve national policies on internal displace- strengthen legal advice and reception

UNHCR Global Appeal 2006 354 arrangements and redouble the search for durable política pública de prevención, protección y atención al solutions in individual cases, particularly through desplazamiento interno forzado en Colombia) will be pre- local integration. sented to the Government with a set of recom- mendations for an improved response to internal UNHCR’s protection strategy in Colombia seeks displacement. to ensure that: 1) there is an adequate legal frame- work in place; 2) the authorities put these protec- Given the persistence and characteristics of the tion standards into practice; 3) internally conflict, UNHCR will support State and civil society displaced people are able to defend their rights efforts to search for durable solutions. In most and participate fully in the conduct of public areas, conditions are not yet suited to the volun- affairs; and, 4) domestic institutions have the tary return of IDPs in security and dignity as set out capacity to supervise compliance with the law and in the Mexico Plan of Action. The Office will redou- the State’s obligation to respect and enforce IDP ble efforts to support local integration, especially rights. The existing legal protection framework in the large urban centres which host most IDPs (and in particular Law 387/97) is consistent with (referred to as “Cities of Solidarity”). The Office will the UN Guiding Principles on Internal Displacement, focus efforts on assisting local authorities to struc- and the Office is working to ensure that the frame- ture local durable solutions plans. work evolves to meet changing realities. In order to empower displaced people and com- UNHCR will offer advice on public policy formula- munities, UNHCR will promote the Guiding Princi- tion in all major sectors: emergency response, ples on Internal Displacement and other applicable registration, health, education, housing, income standards, and will strengthen organizations rep- generation and protection of property rights. A resenting IDPs, women, indigenous peoples and new ‘Evaluation of Public Policy’ (Balance de la afro-Colombians. These efforts will help them to

UN House in the Bogota suburb of Altos de Cazuca, where some 30,000 IDPs live. UNHCR established its presence there in December 2004 in response to a request from IDPs to provide protection in an area where human rights violations are rife. Other UN agencies share the premises with UNHCR, ensuring a collaborative response to the problems faced by Colombia 's displaced. UNHCR / W. Spindler Colombia

355 UNHCR Global Appeal 2006 defend their rights, enter into dialogue with With a greater field presence, UNHCR will be authorities and participate fully in decision mak- better positioned to implement its strategy, ing. At the same time, IDP protection will be rein- particularly as regards local integration of IDPs forced through the issuance of personal identity in large cities and strengthening protection in documents and the provision of legal assistance border areas as well as its capacity for border through a growing network of university legal aid monitoring and early warning. The Office will con- clinics. tinue to collect and analyse relevant country of origin information and make it available through The Office will further develop protection net- the online database on UNHCR’s Spanish website works within civil society, particularly through the (www.acnur.org) and RefWorld with a view to work of the field offices. UNHCR’s field offices strengthening international protection in asylum also implement “practical protection projects” countries. whereby the Office seeks to help prevent dis- placement by demonstrating the support of the By maintaining an active public information cam- international community for communities at risk paign, UNHCR will aim to increase the visibility of and promoting the presence of the State the internal displacement crisis, both at national authorities. and international levels.

Finally, UNHCR will support the use of domestic supervisory mechanisms, in particular the special- Organization and ized internal displacement units of the Ombuds- implementation man´s Office and Procurator-General. When called upon to do so, UNHCR will also provide its opinion on legal issues to the Constitutional Court. Management structure

UNHCR will have 73 staff: 15 international Desired impact (including one JPO) and 31 national, 16 inter- national UNVs, eight national UNVs and three pro- Primary responsibility for the protection and tection staff from the Surge project. assistance of internally displaced people lies with the State; however, in keeping with the comple- The Office in Bogota is responsible for the overall mentary role of the international community and management of the programme and liaison with the the specific mandate given to the Office, UNHCR Government, national and international agencies, seeks to help strengthen the national response. members of the diplomatic community and NGOs. The Office will reinforce efforts to design and The six field offices and three satellite offices imple- implement public policies relating to prevention ment and undertake follow-up on projects at the of displacement, protection of IDPs and the local level, provide advice to local authorities and search for durable solutions. Given that local inte- implement practical protection projects which seek gration is the most viable durable solution for the to promote State presence in communities at risk in majority of Colombia´s displaced, the Office will order to prevent displacement. redouble support for the State in relation to hous- ing, income generation and education, notably through adoption and implementation of local Coordination durable solutions plans. The Office will also step up efforts to support State programmes to pro- The UNHCR protection response will continue to tect the property rights of IDPs. be part of a collaborative approach, whereby UNHCR works closely with other international Particular emphasis will be given to the protection agencies. Each of the agencies is called upon to of the rights of women, young people, indigenous contribute to the response to internal displace- Colombia peoples and afro-Colombians. ment based on its respective mandate and exper- tise. While overall responsibility for the UN

UNHCR Global Appeal 2006 356 response to the humanitarian crisis in Colombia Budget (USD) lies with the Humanitarian Coordinator, UNHCR Activities and services Annual Programme has taken the lead role in IDP protection, which Budget requires input from all sectors. The UN Thematic Protection, monitoring Group on Displacement (TGD), chaired by 2,607,435 and coordination UNHCR, was reactivated in 2005. It has an impor- tant coordination role within the UN family, ensur- Community services 917,362 ing that the various protection needs of IDPs are Domestic needs 32,609 addressed. The Government, IOM, ICRC and NGOs are also participating in the TGD. Education 247,646 Health 3,913

Offices Income generation 248,279

Bogota Legal assistance 2,318,307 Apartado Operational support (to 406.312 Barrancabermeja agencies) Barranquilla Shelter/other 95,271 Bucaramanga infrastructure Cucuta Mocoa Transport/logistics 300 Pasto Total operations 6,877,435 Quibdo Programme support 1,566,190 Soacha Total 8,443,625

Partners

Government agencies Agencia Presidencial para la Acción Social y la Cooperación Internacional Defensoría del Pueblo (Ombudsman’s Office) Procuraduría General de la Nación (Procurator’s Office) Registraduría (National Registry)

NGOs Centro de Investigación y Educación Popular Consultoría para los Derechos Humanos y el Desplazamiento Fundación Compartir Instituto Latinoamericano de Servicios Legales Liga de Mujeres Mujer y Futuro Opción Legal Organización Nacional Indígena de Colombia Secretariado Nacional de Pastoral Social

Others Universidad Nacional de Colombia UNV Colombia

357 UNHCR Global Appeal 2006 Southern South America

Recent developments

n several parts of this region political instability Ihas been exacerbated by socio-economic diffi- culties. During 2005, serious political and social unrest hit Bolivia, where the change of government and the organization of elections have affected the local integration opportunities for refugees. UNHCR updated contingency plans for possible displacement within Bolivia and across its bor- ders. In Argentina, the legal framework was recently strengthened by the adoption in the Senate of new asylum legislation compatible with international refugee protection standards. The major challenge in the region remains the local integration of some 9,000 refugees in economies with high unemployment rates. The search for sustainable durable solutions, as promoted in Argentina the Mexico Plan of Action, has been increased. Refugee self-reliance is being enhanced through Bolivia micro-credit and employment schemes which Brazil address the specific needs of refugee women and promote their participation. Chile Paraguay Following up on commitments made in the Mexico Plan of Action, several Governments in Uruguay the region have stepped up implementation of Strategic objectives

In line with the Mexico Plan of Action, UNHCR’s main objec- tives in southern South America are to strengthen the legal framework at national and regional levels through promo- tion of new refugee legislation and the building of national capacities; enhance refugee self- reliance as a critical step in the pursuit of local integration; rein- force the resettlement strategy in the region by consolidating the existing resettlement pro- grammes in Brazil and Chile and supporting new resettlement ini- tiatives in Argentina and Uruguay; improve public awareness to reduce xenophobia; and enlarge existing protection networks and reinforce border monitoring.

new resettlement programmes. In Brazil, the newly reopened UNHCR office addressed the Operations integration challenges of a growing number of resettled refugees, and emergency resettlement procedures were implemented for Colombian In Argentina, Bolivia, Brazil, Chile, Paraguay refugees arriving from Costa Rica and Ecuador. and Uruguay, UNHCR will build national capac- The programme also has special measures for the ities and support the adoption of new refugee reception and integration of women-at-risk. In legislation in accordance with international stan- Chile, the Government established a new depart- dards. UNHCR will continue to review new legisla- ment for refugees and started resettlement tion projects and eligibility procedures and will programmes which facilitate local integration. encourage the incorporation of the broader refu- Both the Brazilian and Chilean Governments have gee definition, as reflected in the 1984 Cartagena undertaken selection missions to Ecuador and Declaration. Costa Rica to identify refugees for resettlement. In Argentina, an agreement was signed to undertake The Office will be monitoring any national or a new resettlement programme for Colombian Common Market of the Southern Cone refugees. Ongoing talks with the Government of (MERCOSUR) initiatives that may have adverse Uruguay about a new resettlement programme are implications for refugees and asylum seekers, pro- opening up new and viable durable solutions for viding technical advice. The regional harmoniza- Colombian refugees at risk within Latin America. tion process in MERCOSUR is of special interest Southern South America

359 UNHCR Global Appeal 2006 to UNHCR. Due to firm opposition from Brazil, the activities are geared towards the local integration “transfer of responsibility” agreement on harmo- of refugees through initial assistance with hous- nization of the asylum system was not adopted ing and basic needs and orientation towards and was finally crossed off the agenda of the basic public services and job placements. In MERCOSUR migratory forum. In terms of protec- Argentina, Bolivia, Brazil and Chile existing tion of refugees within broader migration move- micro-credit schemes will be reinforced, aiming at ments, the Office will develop capacity-building wide coverage and sustainability of the projects with universities in the region on poten- micro-finance institutions. Refugee women will tial refugees within larger migration flows, includ- participate equally in the micro-credit schemes. ing smuggled and trafficked migrants. The emerging resettlement programmes in the The Office will develop new procedures to region offer both challenges and opportunities for strengthen border monitoring in areas affected expanding and consolidating durable solutions by increased population movements. In this within the framework of the Mexico Plan of Action. respect protection networks will be developed The Resettlement in Solidarity programme with a wide range of partners, as a way to consoli- (Reasentamiento Solidario) mainly addresses the pro- date support for refugees and other persons of tection needs of Colombian refugees in Costa concern. Training of border officials will be Rica and Ecuador who face serious hardship and undertaken in border areas of Brazil/Colombia, danger. This component of the Mexico Plan of Chile/Peru and Argentina/Paraguay/Brazil. In- Action aims at creating opportunities for durable creased presence in border areas (a project known solutions through burden sharing and South-South as “Borders of Solidarity/Fronteras Solidarias”) will solidarity. The experiences of Brazil and Chile will aim at raising standards of treatment at the bor- be shared with Argentina and Uruguay, as both ders and improving access to refugee status Governments have expressed an interest in pro- determination (RSD). Among other activities, the viding resettlement opportunities for refugees Office and its partners will try to prevent arbitrary and support for local integration activities. arrest of asylum-seekers, provide vital initial humanitarian assistance and ensure refugees’ Resettlement initiatives must take into account access to legal aid and protection. In Argentina any shortcomings in public and private support and Brazil, additional efforts will be made to for refugee integration in the receiving countries. establish a number of legal aid clinics to serve Although the receiving governments are commit- refugees with specific protection issues. ted to support the local integration of resettled refugees, UNHCR will continue to provide basic Roughly 80 per cent of the more than 3,200 refugees assistance during the initial phase of the resettle- in Brazil are of African origin. UNHCR established ment programmes. The government in question contacts with the new Ministry against Racial and UNHCR will have to address the longer-term Discrimination to seek alternatives to local inte- local integration challenges. It is expected that gration. If the situation in Angola improves mark- some 400 refugees will be resettled in southern edly, there may be some interest in voluntary South America. repatriation on the part of certain Angolan refugees, in which case UNHCR will facilitate the process, in In the emerging resettlement countries, the coordination with the office in Luanda. However, development and expansion of resettlement is it must be noted that most Angolan refugees in dependent upon appropriate selection of protec- Brazil are young males who left Angola several tion cases, formal involvement of government years ago and are now reluctant to go back. institutions, technical assistance to NGOs as well as an expansion of local networks of public and As part of the durable solutions component of the private partners to provide direct services to the otenSuhAmerica South Southern Mexico Plan of Action (“Cities of Solidarity/ resettled refugees. UNHCR will organize a regional Ciudades Solidarias”), the Office is increasing its resettlement meeting to discuss lessons learned efforts to support self-reliance activities. These and to define a strategy for the region.

UNHCR Global Appeal 2006 360 Chile: A Sri Lankan refugee receiving training in sewing in the capital, Santiago. UNHCR / D. Guerrero

Southern South America will be part of the age, efforts and information materials on UNHCR’s gender and diversity mainstreaming initiative. In work will be disseminated. All public information Argentina, Brazil and Chile, participatory assess- activities will be coordinated with governments, ments will be undertaken to allow for joint plan- agencies and refugees themselves who will ning and analysis with partners and refugees. It is actively take part in the process. The Office will expected that by collecting more field-based data draw upon a pool of dedicated volunteers who and information, the identified protection risks have enabled the Office to steadily expand its and objectives will be addressed in a more range of public information activities. coherent and effective way. The implementation of the age, gender and diversity mainstreaming Budget (USD) initiative will also be part of the results-based management strategy and form an integral part of Country Annual Programme Budget the country operations plans. Argentina 861,452

Brazil 1,787,569

Public information and awareness will support the 1 Office’s efforts towards improving protection, Regional activities 1,461,200 local integration and resettlement of refugees in Total 4,110,221 the region through a combination of visibility- 1 raising and specific targeted activities. Visibility Includes local integration of refugees in southern South American countries, resettlement of refugees in Chile and scholarships for refugee students. activities will be used to support fund raising Southern South America

361 UNHCR Global Appeal 2006 Glossary

4Rs Repatriation, Reintegration, CAP Consolidated Inter-agency Appeal Rehabilitation and Reconstruction - In Process post-conflict situations in countries of origin, UNHCR Cartagena This declaration complements the proposes the 4Rs concept, Declaration on 1951 Convention by containing a bringing together humanitarian Refugees broader refugee definition and development actors and including “persons who have fled funds. It aims to ensure linkages their country because their lives, between all four processes so as safety or freedom have been to prevent the recurrence of mass threatened by generalized outflows, facilitate sustainable violence, foreign aggression, repatriation and help create good internal conflicts, massive local governance. violation of human rights or other circumstances which have Acquis Used in the EU context to refer to seriously disturbed public order”. the “acquired” or agreed set of While the Declaration is not a instruments relating to treaty, its provisions are cooperation on asylum matters respected across Central America. Its refugee definition has been ADB Asian Development Bank incorporated in the legislation of all bar one of the Central AfDB African Development Bank American and Caribbean countries and several Latin Agenda for A programme of action to American countries. Protection improve the protection of refugees and asylum-seekers CASWANAME UNHCR’s Regional Bureau for around the world, agreed by Central Asia, South-West Asia, UNHCR and States as part of the North Africa and the Middle East Global Consultations process, endorsed by the Executive CCA Common Country Assessment Committee in October 2002, and welcomed by the General CDF Comprehensive Development Assembly. Framework

ARC Action for the Rights of Children CEDAW Committee on the Elimination of All Forms of Discrimination Asylum The grant by a State of protection Against Women on its territory to people from another State who are fleeing CERF Central Emergency Response persecution or serious danger. Fund Asylum encompasses a variety of elements, including Cessation Legal provisions that indicate non-refoulement, permission to Clauses when refugee status comes to an remain on the territory of the end because it is no longer asylum country, and humane needed or justified. standards of treatment. Children Persons who are below the legal AU African Union age of majority and are therefore not legally independent. This term CA Consolidated Appeal includes adolescents. Under the Convention on the Rights of the Child, a “child” is a person who is

UNHCR Global Appeal 2006 362 below the age of eighteen, unless Convention Persons recognized as refugees by the applicable law sets a lower refugees States under the eligibility criteria Glossary age. provided for in Article 1 of the 1951 Convention and entitled to CIS Commonwealth of Independent the enjoyment of variety of rights States under that treaty.

CoE Council of Europe Convention This treaty establishes the most relating to the widely applicable framework for Community- An inclusive partnership strategy Status of the protection of refugees. Article based approach that recognizes and builds on the Refugees 1 of the Convention limits its capacities and resources of (1951 scope to “events occurring before people of concern, enabling their Convention) 1 January 1951” but this participation throughout the restriction was removed by the programme cycle to ensure their 1967 Protocol relating to the protection and sustainable Status of Refugees. ownership. Convention A Convention that provides the Complementary Food items provided by UNHCR in relating to the definition of a stateless person food addition to the basic food ration Status of and establishes a framework for provided by WFP. Stateless the rights to be enjoyed by Persons stateless persons in countries Complementary Formal permission, under national where they are lawfully resident. protection law or practice, to reside in a country extended by that country COP Country Operations Plan to persons who are in need of international protection even CPA Comprehensive Plan of Action though they do not qualify for 1951 Convention refugee status. CPR Conflict Prevention and Post-Conflict Reconstruction Convention on A treaty that provides for the Network the Reduction acquisition of nationality by those of who would otherwise be stateless DAC Development Assistance Statelessness and who have an appropriate link Committee (United Nations) with the State through birth on the territory or through descent DAFI Albert Einstein Academic from a national. The Convention Scholarship Programme for also provides for the retention of Refugees nationality by those who would become stateless if they were to DAR Development Assistance for lose that State’s nationality. Refugees - Additional UNHCR has been mandated with development assistance for specific functions under Article 11 improved burden sharing for of this Convention. countries hosting large numbers of refugees; promoting better Convention Plus An initiative presented by the quality of life and self-reliance for High Commissioner in 2002 to refugees pending different durable improve refugee protection solutions; and a better quality of worldwide and to facilitate the life for host communities. resolution of refugee problems through multilateral special DLI Development through Local agreements on issues such as Integration - Where local secondary movement, integration of refugees in countries resettlement and the link between of asylum is a viable option, assistance and development. UNHCR’s High Commissioner proposes a DLI strategy to solicit additional development assistance aimed at attaining durable

363 UNHCR Global Appeal 2006 Glossary

solutions for refugees through ERC Emergency Relief Coordinator local integration. (United Nations)

DPA United Nations Department of EU European Union Political Affairs ExCom Executive Committee of the High DPKO United Nations Department of Commissioner’s Programme Peacekeeping Operations Facilitated Even when conditions in the Dublin II Effective from 1 September 2003, voluntary country of origin are not fully this European Council regulation repatriation conducive for most refugees to provides the legal basis for return, UNHCR can assist establishing the criteria and (“facilitate”) the repatriation of mechanism for determining the some refugees if they have State responsible for examining specifically requested it based on an asylum application in one of a fully informed decision to the Member States of the EU return. (excluding Denmark, but including non-EU members Iceland and FAO Food and Agriculture Organization Norway) by a third country national. FDP Formerly Deported Person. Refers to people who were deported Durable Means by which the situation of from their historic homeland solutions refugees can be satisfactorily and during the Soviet period. Some of permanently resolved to enable the people belonging to this them to live normal lives. The category may be stateless. three durable solutions are (Applies to situations in CIS voluntary repatriation, local countries. The definition does not integration, and resettlement. carry a universal or binding character). EBRD European Bank for Reconstruction and Development Gender-based Persecution that targets or persecution disproportionately affects a EC European Commission particular gender. Under certain factual circumstances, ECA Economic Commission for Africa gender-related persecution may (UN) come within the refugee definition. ECHA Executive Committee on Humanitarian Affairs (United Good An initiative launched by donors Nations) Humanitarian in 2003 with the aim to improve Donorship their response to humanitarian ECHO European Commission crises. Humanitarian Office Group-based Approaches whereby the ECOSOC Economic and Social Council protection protection and assistance needs (United Nations) responses of refugees are met without previously determining their ECOWAS Economic Community of West status on an individual basis. Africa States Appropriate where asylum-seekers arrive en masse and ECRE European Council on Refugees individualized procedures are and Exiles neither feasible nor necessary (the cause of flight often being EDF European Development Fund self-evident). The two main approaches are recognition of ELENA European Legal Network on refugee status on a prima facie Asylum basis and temporary protection.

UNHCR Global Appeal 2006 364 Groups with Individuals, families or groups International All actions aimed at ensuring the specific needs requiring additional support to protection equal access to and enjoyment of Glossary enable them overcome the the rights of women, men, girls challenges they face in accessing and boys of concern to UNHCR, and enjoying their rights. in accordance with the relevant bodies of law (including HIV/AIDS Human Immunodeficiency international humanitarian, Virus/Acquired Immunodeficiency human rights and refugee law). Syndrome It includes interventions by States or UNHCR on behalf of IASC Inter-Agency Standing Committee asylum-seekers and refugees to ensure that their rights, security, ICRC International Committee of the and welfare are recognized and Red Cross safeguarded in accordance with international standards. Such IDP Internally Displaced Person. A interventions include ensuring person who is forced or obliged to respect for the principle of flee from their homes, “…in non-refoulement; admission to particular as a result of or in order safety; access to fair procedures to avoid the effects of armed for the determination of refugee conflicts, situations of generalized status; humane standards of violence, violations of human treatment; and the rights or natural or human-made implementation of durable disasters, and who have not solutions. UNHCR is the only crossed an internationally United Nations agency with a recognized State border” mandate for the protection of (according to the Guiding Principles refugees at the global level. on Internal Displacement). IOM International Organization for IFA Internal flight or relocation Migration alternative - A factual determination that a person IRPs Involuntarily Relocating Persons - fleeing persecution in one part of People who are forced to relocate his or her country of origin could to the country of their citizenship find protection in another part of as a result of circumstances the same country. The idea that threatening their lives such as refugees should first try to find a armed conflict, internal disorder, place within the country of origin inter-ethnic tension or systematic where they would be safe, before violations of human rights and seeking asylum outside the who are in need of assistance to country - rests on understandings resettle in their countries of which are basically at odds with citizenship. (Applies to situations fundamental refugee protection in CIS countries. The definition principles. does not carry a universal or binding character). IFRC International Federation of Red Cross and Red Crescent Societies JICA Japan International Cooperation Agency IGAD Intergovernmental Authority on Development JPO Junior Professional Officer – Government-sponsored young ILC International Law Commission qualified professionals working for UNHCR. ILO International Labour Organization Local A durable solution to the plight of IMF International Monetary Fund integration refugees that involves their permanent settlement in the

365 UNHCR Global Appeal 2006 Glossary

country in which they sought OAU Convention This regional Convention provides asylum. governing the for a broader refugee definition. specific Adopted in 1969, the LOU Letter of Understanding aspects of Organization of African Unity refugee Refugee Convention provides that Mandate Persons who are recognised as problems in the term “refugee” also “applies Refugees refugees by UNHCR acting under Africa. to those fleeing from external the authority of its Statute and aggression, occupation, foreign relevant UN General Assembly domination or events seriously resolutions. Mandate status is disturbing public order in either especially significant in States part or whole of the country of that are not parties of the 1951 origin”. Refugee Convention or its 1967 Protocol. OCHA Office for the Coordination of Humanitarian Affairs (United MDGs Millennium Development Goals Nations)

MERCOSUR Mercado Común del Sur - Common ODA Official Development Assistance Market of the Southern Cone OECD Organization of Economic Mexico Plan of The Mexico Plan of Action, Cooperation and Development Action launched in 2004, aims to enhance international refugee OHR Office of the High Representative protection in Latin America by (Bosnia and Herzegovina) further developing international refugee law, consolidating OHCHR (UN) Office of the High protection networks and Commissioner for Human Rights improving the ability of States to provide effective protection to all OIOS United Nations Office of Internal persons in need of it. It focuses Oversight Services on durable solutions for urban refugees and the special needs of OMS Operations Management System refugee women, the Colombian conflict, impact and solutions at ONUB United Nations Operation in border areas, and the use of Burundi resettlement opportunities in the region. ONUCI United Nations Mission in Côte d’Ivoire MINURSO United Nations Mission for the Referendum in Western Sahara OSCE Organization for Security and Cooperation in Europe MONUC United Nations Observer Mission in the Democratic Republic of the PARinAC Partnership in Action Congo PHARE EU-Community programme for MOU Memorandum of Understanding assistance for economic restructuring in the countries of MSRP Management Systems Renewal Central and Eastern Europe Project – the new UNHCR’s computer systems for finance, Prima facie Refers to a practice by which all supply chain, human resources refugee persons forming part of a and payroll. large-scale influx are regarded as refugees. NATO North Atlantic Treaty Organization

NEPAD The New Partnership for Africa's Development

UNHCR Global Appeal 2006 366 Promoted Voluntary repatriation actively Safe third Where asylum is refused on voluntary organized by UNHCR when country concept technical grounds because of the Glossary repatriation conditions are considered geographical route taken by the conducive to return in safety and applicant - via one or more with dignity. countries which are considered to pose no problems to the PRSP Poverty Reduction Strategy Paper applicant’s safety.

QIPs Quick Impact Projects SGBV Sexual and Gender-based Violence RBM Results-Based Management – A management philosophy and Sphere Project A project set up by several NGO approach that emphasizes the consortia to develop a set of achievement of results as the universal minimum standards in essential task of management. core areas of humanitarian assistance. Its aim is to improve Refoulement The removal of a person to a the quality of assistance provided territory where she/he would be at to people affected by disasters risk of being persecuted, or of and to enhance the accountability being moved to another territory of the humanitarian system in where she/he would face disaster response. persecution. SRI Sustainable Reintegration Reintegration A process which enables Initiative in Angola returnees to regain their physical, social, legal and material security SRS Self-Reliance Strategy needed to maintain life, livelihood and dignity and which eventually SRSG Special Representative of the leads to the disappearance of any United Nations Secretary-General observable distinctions vis-à-vis their compatriots. Surge Project The Surge Protection Capacity Project is UNHCR’s response to Resettlement The transfer of refugees from the increased and sudden temporary country in which they have sought protection staffing needs in asylum to another State that has circumstances where the Office’s agreed to admit them. The own protection staffing capacity refugees will usually be granted is insufficient. The project’s main asylum or some other form of feature is a roster of external long-term resident rights and, in candidates available for many cases, will have the immediate deployment. opportunity to become naturalized citizens. For this Söderköping An initiative launched by UNHCR reason, resettlement is a durable Process and the Swedish Migration Board solution as well as a tool for the to promote dialogue on asylum protection of refugees. It is also a and irregular migration issues practical example of international among the countries situated burden and responsibility sharing. along the eastern border of the European Union. RSD Refugee Status Determination – Legal and administrative THAP Temporary Humanitarian Assisted procedures undertaken by States Persons and/or UNHCR to determine whether an individual should be Trafficking The organized movement of recognized as a refugee in (human) persons for profit. The critical accordance with national and additional factor that international law. distinguishes trafficking from migrant smuggling is the presence of force, coercion and/or

367 UNHCR Global Appeal 2006 Glossary

deception throughout or at some UNIDO United Nations Industrial stage in the process - such Development Organization deception, force or coercion being used for the purpose of UNIFEM United Nations Development exploitation. While the additional Fund for Women elements that distinguish trafficking from migrant smuggling UN-IP United Nations Integrated may sometimes be obvious, in Development Programme many cases they are difficult to prove without active investigation. UNJLS United Nations Joint Logistics Centre UNAIDS Joint United Nations Programme on HIV/AIDS UNMEE United Nations Mission in Ethiopia and Eritrea UNAMA United Nations Assistance Mission for Afghanistan UNMIBH United Nations Mission in Bosnia and Herzegovina UNAMSIL United Nations Peacekeeping Mission in Sierra Leone UNMIK United Nations Interim Administration Mission in Kosovo UNCT United Nations Country Team UNMIL United Nations Mission for Liberia UNCTAD United Nations Conference on Trade and Development UNMIS United Nations Mission in Sudan

UNDAF United Nations Development UNODC United Nations Office on Drugs Assistance Framework and Crime

UNDCP United Nations International Drug UNOMIG United Nations Observer Mission Control Programme in Georgia

UNDG United Nations Development UNOPS United Nations Office for Project Group Services

UNDP United Nations Development United Nations The security plan is Programme Security Phases country-specific and takes into consideration the particular UNDSS United Nations Department of political, geographical and other Safety and Security circumstances of the duty station concerned. The United Nations UNEP United Nations Environment utilizes a worldwide five-phase Programme security management system. The five phases are: UNESCO United Nations Educational, Phase one – Precautionary: Warn Scientific and Cultural staff that the security situation in Organization the country or a portion of the country is such that caution UNFPA United Nations Population Fund should be exercised. Travel to the duty station requires advance UN-HABITAT United Nations Human clearance from the Designated Settlements Programme Official. UNHCHR United Nations High Phase two – Restricted Commissioner for Human Rights movement: All staff members and their families will be required to UNICEF United Nations Children’s Fund remain at home unless otherwise instructed. No travel, incoming or within the country, will occur

UNHCR Global Appeal 2006 368 unless specifically authorized by UNV United Nations Volunteer - The the Designated Official as volunteer arm of the United Glossary essential travel. Nations was created by the General Assembly in 1970 to Phase three – Relocation: serve as an operational partner in Indicates a substantial development cooperation at the deterioration in the security request of UN member states. It situation, which may result in the mobilizes qualified UN Volunteers relocation of staff members or to different UN organizations. their eligible dependants. Phase four – Programme Voluntary Return to the country of origin suspension: All internationally repatriation based on the refugees’ free and recruited staff will be evacuated informed decision. Voluntary apart from staff directly repatriation is one of the three concerned with security matters, durable solutions and may be emergency or humanitarian relief organized (when it takes place operations. under the auspices of the concerned governments and Phase five – Evacuation: Signifies UNHCR), or spontaneous (the that the situation has refugees return by their own deteriorated to such a point that means with little involvement of all remaining internationally UNHCR and governments). recruited staff members are required to leave. Phase five can WFP World Food Programme only be declared following approval by the WHO World Health Organization Secretary-General.

369 UNHCR Global Appeal 2006 ExCom Members

Algeria Guinea Philippines Argentina Holy See Poland Australia Hungary Republic of Korea Austria India Romania Bangladesh Iran, Islamic Republic of Russian Federation Belgium Ireland Serbia and Montenegro Brazil Israel Somalia Canada Italy South Africa Chile Japan Spain China Kenya Sudan Colombia Lebanon Sweden Côte d'Ivoire Lesotho Switzerland Cyprus Madagascar Thailand Democratic Republic of the Congo Mexico Tunisia Denmark Morocco Turkey Ecuador Mozambique Uganda Egypt Namibia United Kingdom Ethiopia Netherlands United Republic of Tanzania Finland New Zealand United States of America France Nicaragua Venezuela Germany Nigeria Yemen Ghana Norway Zambia Greece Pakistan

Member States of the Executive Committee of the High Commissioner’s Programme

Bureau of the Executive Vice-Chairman: H.E. Mr. Antoine Mindua Committee Kesia-Mbe, Ambassador Extraordinary and Plenipotentiary, Permanent Representative of the Democratic Republic of the Congo to the Chairman: H.E. Mr. Ichiro Fujisaki, Ambassador United Nations Office at Geneva. Extraordinary and Plenipotentiary, Permanent Representative of Japan to the United Nations Rapporteur: Ms Ann Blomberg, First Secretary, Office at Geneva. Permanent Mission of Sweden to the United Nations Office at Geneva.

UNHCR Global Appeal 2006 370