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FALLING THROUGH the CRACKS Legal and Practical Gaps in Palestinian Refugee Status

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FALLING THROUGH the CRACKS Legal and Practical Gaps in Palestinian Refugee Status P.O.Box 13 6299 Beirut, LEBANON Tel/Fax: +961 1 389 556 Mobile: +961 3 457 324 Email: [email protected] FALLING THROUGH THE CRACKS Legal and practical gaps in Palestinian refugee status A case study of unrecognized refugees in Lebanon August 2005 Funded by the Embassy of Finland (Damascus) Frontiers Association FALLING THROUGH THE CRACKS CONTENTS 1) Executive Summary...............................................................................................7 2) Introduction......................................................................................................... 12 a) Origins of the Palestinian refugee problem ....................................................................12 b) The plight of Palestinians without recognition in Lebanon.............................................17 c) Purpose of this study......................................................................................................20 d) Methodology and profile of interview subjects ..............................................................21 3) Palestinian refugees in international law............................................................ 23 a) Early UN approaches to the Palestinian refugee problem ...............................................23 b) Palestinians in the context of modern refugee law..........................................................25 4) “Non-R” Palestinians (denial of registration by the United Nations)................ 28 a) UNRWA’s mandate and the “working definition” .........................................................30 b) UNHCR mandate and the continuity of protection principle ..........................................41 5) “Non-ID” Palestinians (denial of recognition by Lebanese authorities)............ 54 a) Sample Palestinian identity papers issued by the Lebanese Government ........................55 b) The right to recognition in international law ..................................................................59 c) Arab League resolutions and pacts.................................................................................60 d) Registration of Palestinians in Lebanese law..................................................................66 e) Practical reasons for the non-ID problem.......................................................................70 f) Gaps between Lebanese law and Lebanese responsibilities............................................70 6) 1967 displaced persons: Lebanese and UN ambiguity ....................................... 72 7) Responsibilities of other governments ................................................................ 75 a) Egypt.............................................................................................................................76 b) Jordan............................................................................................................................77 c) Occupied Palestinian Territories (Israel/Palestinian Authority) ......................................79 8) Recommendations ............................................................................................... 80 9) Key legal texts...................................................................................................... 86 a) General Assembly Resolution 194(III) (1948) ...............................................................86 b) General Assembly Resolution 302 (IV) (1949) ..............................................................89 c) General Assembly Resolution 2252 (ES-V) (1967)........................................................94 d) UNRWA’s “working definition”....................................................................................96 e) Convention relating to the status of refugees..................................................................96 f) Convention on the Elimination of Discrimination against Women .................................96 g) League of Arab States Casablanca Protocol (1965)........................................................97 h) 1969 Cairo Agreement (Lebanon & PLO)......................................................................98 - 2 - Frontiers Association FALLING THROUGH THE CRACKS 10) Appendix............................................................................................................ 100 a) Glossary of terms.........................................................................................................100 b) Selected bibliography ..................................................................................................102 c) Useful Websites...........................................................................................................103 d) Interview subjects’ origins in Palestine ........................................................................104 e) Field study questionnaire .............................................................................................107 CREDITS AND NOTATIONS This study has been commissioned and funded by the Embassy of Finland in Damascus with development co-operation funds of the Ministry for Foreign Affairs of Finland. The contents of this report and the opinions and recommendations expressed in it are, however, the sole responsibility of Frontiers Association and independent researchers and shall not be attributed to the Ministry. A working draft of this report was circulated to a number of experts in the field of Palestinian refugee status before making final revisions. Although this report does not necessarily reflect the views of any other person or organization, Frontiers Association wishes to note those who offered especially useful comments: Badil Resource Center for Palestinian Residency and Refugee Rights, Dr. Abbas Shiblak and Dr. Khalil Chatwi (former General Director of the Directorate General for Palestinian Affairs).* Frontiers Association extends its thanks to all those who contributed in this report and particularly to the Palestinian refugees who participated in the field study. * Dr. Chatwi did not review the text of this report but offered useful general commentary. - 3 - Frontiers Association FALLING THROUGH THE CRACKS ACKNOWLEDGEMENTS Cover photo: Two generations of Palestinian refugees in 1949 (Photo: UNRWA) The Palestinian Academic Society for the Study of International Affairs (PASSIA) generously permitted re-printing of several illustrations and maps. Credits for other photographs are noted in captions throughout this report. Research team Project director: Samira Trad Legal consultant: Michael Kagan, J.D. (Member of the New York State Bar, USA) Research assistants: Berna Habib, Anna Pollock Field study consultant: Prof. Ray Jureidini, Ph.D. (American University of Beirut) Field team coordinator: Mahmoud Zeidan Field interviewers: Bushra Mograbi Berna Habib, Khaled Al Maouad, Maysoon Mustapha - 4 - Frontiers Association FALLING THROUGH THE CRACKS PREFACE his report sheds light on more obscure areas relating to the civil and legal status of Palestinian refugees. The report manages, Twithin its limited terms of reference, to touch upon wider and more complicated issues regarding the lack of clarity in and the arbitrary nature of regulations that affect the lives and futures of thousands of Palestinian refugees in host Arab states as well as throughout the Diaspora. The Palestinians lost not only their homes but also their citizenship. The hardship and arbitrary treatment that they face in host societies stems from this very fact. The issue of statelessness, perhaps more than any other factor, has shaped the experience of Palestinians in exile. The stateless condition of Palestinian refugees should be fully acknowledged and a greater measure of protection should be afforded them. The failure to acquire the status of having a state under the rule of law can have a negative impact on almost all aspects of their lives. The Independent Commission on International Humanitarian Issues (1988) pointed out that ‘the stateless are less protected than refugees.’ Indeed, part of the Palestinian refugees’ hardship may be seen as part of the bigger picture of the state of human rights in the Arab region as a whole and the status of women, minorities, refugees and other vulnerable groups. But Palestinian refugees have to deal with further exclusion and discrimination due to the imposition by some Arab countries of what one may call a ‘legal ghetto’ imposed on Palestinian refugee communities in their midst, under political, demographic or security pretexts. Even when countries make amendments to the law to allow women to pass their nationality on to their stateless children or when countries allow naturalization of foreigners, Palestinians are either excluded or left in a grey area and in almost total limbo. While the establishment of the State of Israel transformed Palestinians into the largest stateless community in the world, Arab states perpetuate and exacerbate their stateless condition by imposing a - 5 - Frontiers Association FALLING THROUGH THE CRACKS ‘legal ghetto’ on Palestinian refugees. In the first instance, Palestinians lose their past, while in the second they also lose their future. This report identifies flaws and shortcomings in the international protection regime for Palestinian refugees and highlights the lack of any international human rights standards in most host Arab states’ treatment of Palestinian refugees. The report focuses on Palestinians in Lebanon, but also alerts us to the existence of wider, related issues and policies
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