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The Univer- sity operates through a worldwide network of research and training centres and programmes, and its planning and coordinating centre in Tokyo. Protracted refugee situations Protracted refugee situations: Political, human rights and security implications Edited by Gil Loescher, James Milner, Edward Newman and Gary Troeller United Nations a University Press TOKYO u NEW YORK u PARIS 6 United Nations University, 2008 The views expressed in this publication are those of the authors and do not necessarily reflect the views of the United Nations University. United Nations University Press United Nations University, 53-70, Jingumae 5-chome, Shibuya-ku, Tokyo 150-8925, Japan Tel: þ81-3-5467-1212 Fax: þ81-3-3406-7345 E-mail: [email protected] general enquiries: [email protected] http://www.unu.edu United Nations University Office at the United Nations, New York 2 United Nations Plaza, Room DC2-2062, New York, NY 10017, USA Tel: þ1-212-963-6387 Fax: þ1-212-371-9454 E-mail: [email protected] United Nations University Press is the publishing division of the United Nations University. Cover design by Mea Rhee Cover photograph by Tim Dirven / Panos Pictures Printed in Hong Kong ISBN 978-92-808-1158-2 Library of Congress Cataloging-in-Publication Data Protracted refugee situations : political, human rights and security implications / edited by Gil Loescher . [et al.]. p. cm. Includes bibliographical references and index. ISBN 978-9280811582 (pbk.) 1. Refugees. 2. Refugees—Civil rights. 3. Human rights. I. Loescher, Gil. HV640.P715 2008 362.87—dc22 2008038715 Contents Tablesandfigures..................................................... viii Contributors........................................................... ix Acknowledgements . ............................. xiii Part I: Themes and challenges ....................................... 1 1 Introduction . ............................. 3 Gil Loescher, James Milner, Edward Newman and Gary Troeller 2 Understanding the problem of protracted refugee situations . 20 Gil Loescher and James Milner 3 Asylum trends in industrialized countries and their impact on protractedrefugeesituations ..................................... 43 Gary Troeller 4 Protracted refugee situations, conflict and security: The need forbetterdiagnosisandprescription ............................. 69 Eric Morris and Stephen John Stedman v vi CONTENTS 5 Protracted refugee situations, human rights and civil society . 85 Elizabeth Ferris 6 Development actors and protracted refugee situations: Progress, challenges, opportunities . ............................. 108 Mark Mattner 7 A surrogate state? The role of UNHCR in protracted refugee situations .......................................................... 123 Amy Slaughter and Jeff Crisp 8 A realistic, segmented and reinvigorated UNHCR approach toresolvingprotractedrefugeesituations ....................... 141 Arafat Jamal 9 Historical lessons for overcoming protracted refugee situations .......................................................... 162 Alexander Betts Part II: Case studies .................................................. 187 10 Palestinianrefugees............................................... 189 Michael Dumper 11 Somali refugees: Protracted exile and shifting security frontiers ........................................................... 214 Peter Kagwanja and Monica Juma 12 Sudanese refugees in Uganda and Kenya ....................... 248 Tania Kaiser 13 BhutaneserefugeesinNepal ..................................... 277 Mahendra P. Lama 14 Burmese refugees in South and Southeast Asia: A comparativeregionalanalysis ................................. 303 Gil Loescher and James Milner 15 AfghanrefugeesinIranandPakistan ........................... 333 Ewen Macleod CONTENTS vii Part III: Policy conclusions and recommendations ................. 351 16 A framework for responding to protracted refugee situations . 353 Gil Loescher and James Milner 17 Resolving protracted refugee situations: Conclusion and policy implications ....................................................... 377 Edward Newman and Gary G. Troeller Index.................................................................. 386 Tables and figures Tables 2.1 Majorprotractedrefugeesituations,1 January2005......... 22 9.1 Main characteristics of the two archetypal models for CPAs ........................................................... 176 16.1 A framework for formulating and implementing comprehensivesolutionsforPRS ............................. 365 Figures 10.1 MapofUNRWA’sareaofoperations........................ 210 14.1 MapofMyanmar .............................................. 329 viii Contributors Alexander Betts is Hedley Bull Fellow University and specializes in the in International Relations at the Arab–Israeli conflict and in the University of Oxford, where he is urban politics of the Middle East. Director of the Global Migration He is author of The Politics of Governance Project. He is the co- Jerusalem since 1967 (Colombia, author of UNHCR: The Politics and 1997) and The Future of Palestinian Practice of Refugee Protection into Refugees: Towards Peace and Equity the Twenty-first Century (Routledge, (Lynne Rienner, 2007). In 2007 he 2008) and of the forthcoming North- was awarded a five-year ESRC South Impasse: the International grant for a project entitled ‘Conflict Politics of Refugee Protection. in Cities and the Contested State’. Jeff Crisp is Head of Policy Elizabeth Ferris is Senior Fellow and Development and Evaluation at Co-Director of the Brookings-Bern UNHCR, the UN’s refugee agency, Project on Internal Displacement and was previously Director of at the Brookings Institution. She Policy and Research at the Global focuses on the international Commission on International community’s response to Migration. He has first-hand humanitarian crises, with a experience of refugee situations particular emphasis on the human throughout the world and has rights of internally displaced published extensively on refugee persons. and migration issues, as well as African affairs. Arafat Jamal heads the UNHCR Regional Resettlement Hub for the Michael Dumper is Professor of Middle East and North Africa, Middle East Politics at Exeter based in Beirut. With UNHCR, he ix x CONTRIBUTORS has worked on IDP and returnee based Africa Policy Institute and a operations (Afghanistan), and Research Fellow at the Centre for emergency operations (Democratic International Political Studies, Republic of Congo, Turkmenistan University of Pretoria. Prior to and Guinea); he has also served as joining the HSRC, he served as the an Operational Policy Officer and a Director of the International Crisis Special Adviser in the Executive Group Southern Africa Project. Office. He has produced a number is a Lecturer in Refugee of papers and evaluation reports Tania Kaiser Studies, Department of on protracted refugee situations, Development Studies, at the School emergency and IDP responses and of Oriental and African Studies, other topics. He holds degrees from University of London. Her research the Universities of Cornell and interests include the socio-political Oxford. dimensions of forced migration, Monica Juma is a Senior Analyst in protracted refugee situations, the Peace and Security Programme refugee security and livelihoods, of SaferAfrica, a Pretoria-based humanitarian protection, the think-tank that works on various anthropology of place, space and aspects of peace and security, material culture, gender and conflict. including post-conflict reconstruction, She has degrees in Literature and governance of natural resources, Anthropology from the Universities early warning and response and of Bristol and Oxford. terrorism. She is also the editor of Mahendra P. Lama is Vice-Chancellor Pax Africa, SaferAfrica’s quarterly of Sikkhim University. He was bulletin on the state of peace and formerly Chairman of the Centre for security in Africa, and an Associate South, Central, Southeast Asian and of the Centre for Human Rights, Southwest Pacific Studies, School of University of Pretoria, and the International Studies, at the Africa Programme of the United Jawaharlal Nehru University. Nations-affiliated University for Peace (Costa Rica). Prior to joining Gil Loescher is visiting Professor, SaferAfrica, Dr. Juma served as a Refugee Studies Centre, and Senior Research Associate at the Research Associate, Centre for International Peace Academy, New International Studies, at the York, where she focused on crisis University of Oxford, and Emeritus andconflictsinAfrica. Professor of Political Science at the University of Notre Dame.