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A Political Demography of the Refugee Question Palestinians in Jordan and Lebanon: Between Protection, Forced Return and Resettlement

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A Political Demography of the Refugee Question Palestinians in Jordan and Lebanon: Between Protection, Forced Return and Resettlement A POLITICAL DEMOGRAPHY OF THE REFUGEE QUESTION PALESTINIANS IN JORDAN AND LEBANON: BETWEEN PROTECTION, FORCED RETURN AND RESETTLEMENT Françoise De Bel-Air CARIM Research Reports 2012/02 Co-financed by the European University Institute and the European Union EUROPEAN UNIVERSITY INSTITUTE, FLORENCE ROBERT SCHUMAN CENTRE FOR ADVANCED STUDIES A political demography of the refugee question Palestinians in Jordan and Lebanon: between protection, forced return and resettlement FRANÇOISE DE BEL-AIR Doctor of Demographics and Social Sciences CARIM EURO-MEDITERRANEAN CONSORTIUM FOR APPLIED RESEARCH ON INTERNATIONAL MIGRATION RESEARCH REPORT, CARIM-RR 2012/02 BADIA FIESOLANA, SAN DOMENICO DI FIESOLE (FI) © 2012, European University Institute Robert Schuman Centre for Advanced Studies This text may be downloaded only for personal research purposes. Any additional reproduction for other purposes, whether in hard copies or electronically, requires the consent of the Robert Schuman Centre for Advanced Studies. Requests should be addressed to [email protected] If cited or quoted, reference should be made as follows: [Full name of the author(s)], [title], CARIM Research Reports [series number], Robert Schuman Centre for Advanced Studies, San Domenico di Fiesole (FI):European University Institute, [year of publication]. THE VIEWS EXPRESSED IN THIS PUBLICATION CANNOT IN ANY CIRCUMSTANCES BE REGARDED AS THE OFFICIAL POSITION OF THE EUROPEAN UNION European University Institute Badia Fiesolana I – 50014 San Domenico di Fiesole (FI) Italy http://www.eui.eu/RSCAS/Publications/ http://www.carim.org/Publications/ http://cadmus.eui.eu CARIM The Euro-Mediterranean Consortium for Applied Research on International Migration (CARIM) was created at the European University Institute (EUI, Florence), in February 2004 and co-financed by the European Commission, DG AidCo, currently under the Thematic programme for the cooperation with third countries in the areas of migration and asylum. Within this framework, CARIM aims, in an academic perspective, to observe, analyse, and forecast migration in Southern & Eastern Mediterranean and Sub- Saharan Countries (hereafter Region). CARIM is composed of a coordinating unit established at the Robert Schuman Centre for Advanced Studies (RSCAS) of the European University Institute (EUI, Florence), and a network of scientific correspondents based in the 17 countries observed by CARIM: Algeria, Chad, Egypt, Israel, Jordan, Lebanon, Libya, Mali, Mauritania, Morocco, Niger, Palestine, Senegal, Sudan, Syria, Tunisia, and Turkey. All are studied as origin, transit and immigration countries. External experts from the European Union and countries of the Region also contribute to CARIM activities. CARIM carries out the following activities: - Mediterranean and Sub-Saharan migration database; - Research and publications; - Meetings of academics and between experts and policy makers; - Migration Summer School; - Outreach. The activities of CARIM cover three aspects of international migration in the Region: economic and demographic, legal, and socio-political. Results of the above activities are made available for public consultation through the website of the project: www.carim.org For more information: Euro-Mediterranean Consortium for Applied Research on International Migration Robert Schuman Centre for Advanced Studies (EUI) Convento Via delle Fontanelle 19 50014 San Domenico di Fiesole Italy Tel: +39 055 46 85 878 Fax: + 39 055 46 85 755 Email: [email protected] Robert Schuman Centre for Advanced Studies http://www.eui.eu/RSCAS/ Abstract Refugees from Palestine are one of the oldest refugee populations in the world. And UN General Assembly Resolution 194, which anchors Palestinian refugees’ claims for their right of return to Palestine, is now 63 years old. Yet, in Jordan and Lebanon, the refugees’ main host countries, the Palestinian presence grew in importance in domestic politics through the 2000s. In Lebanon there were the political debates surrounding the granting of some civil rights to Palestinian refugees, which culminated mid-2010. In Jordan, controversies over political naturalisation stir up violent political debates. This essay explores the reasons behind the fact that, in Jordan and Lebanon, granting civil rights to refugees raises a lot of concern. It also examines how the civil rights issue cannot be separated from that of the protection of the Palestinian “cause”, the right of return. More generally, the report investigates the various perceived challenges and the outreach of Palestinian refugees’ settlement (tawtin) in each of the two countries, before and after the late 1980s-early 1990s. Return and resettlement were taken as the two extremes of a similar demographic policy, and therefore, proved to be powerful political tools for regimes and political actors, at the local, regional and international levels. The theoretical framework of political demography and the “political economy” of Palestinian refugee trends and policies in Jordan and Lebanon also allowed for the Palestinian issue to be resituated in the history and the socio-political context of each country; thus revealing their specific challenges. The essay shows that the granting of civil rights to Palestinians is hampered by its politically-destabilising significance in host countries, where civil rights are constructed as citizenship-bound privileges. Therefore, debates on Palestinian refugees flag up deepening rifts within Jordanian and Lebanese citizenries, and diverging views on political “imagined communities” (Anderson, 1991). In Jordan, such a rift has been deepened by the recent emergence of nationalist movements and by the tensions which emerged in the wake of the Arab uprisings. Representations of national populations as closed, de jure and ethnic-based increasingly oppose views of nationhood as open, de facto and assimilationist. Résumé : Une démographie politique de la question des réfugiés. Les Palestiniens en Jordanie et au Liban, entre protection, retours forcés et réinstallation ? Les réfugiés de Palestine constituent maintenant l’une des plus anciennes populations de réfugiés au monde. En 2011, soixante-trois ans se sont écoulés depuis l’adoption de la résolution 194 de l’Assemblée générale des Nations Unies, qui fonde les revendications palestiniennes d’un droit au retour des réfugiés de 1948 en Palestine. En Jordanie et au Liban, principaux pays d’accueil des réfugiés palestiniens, la question des réfugiés a cependant pris une importance accrue sur les scènes politiques nationales et régionale depuis les années 2000. Au Liban, des débats intenses entourent en 2010 les projets débattus au Parlement d’attribuer certains droits civils aux réfugiés palestiniens. Dans le même temps en Jordanie, des mesures contradictoires de naturalisations politiques de réfugiés mais aussi de privations de nationalité créent nombre de tensions. Cet essai cherche à expliquer pourquoi, dans ces deux pays, la question de l’attribution de droits civils aux réfugiés fait l’objet d’autant de controverses, et reste indissociable de la protection de la cause palestinienne du droit au retour. Plus généralement, cette étude explore les divers enjeux attribués, au Liban et en Jordanie, à l’éventualité d’une réinstallation des réfugiés palestiniens (tawtin), avant et après la période-charnière de la fin des années 1980-début des années 1990. Le retour et la réinstallation sont envisagés comme les deux extrêmes d’une même politique démographique et, en conséquence, comme de puissants instruments manipulables par les régimes en place et l’ensemble des acteurs politiques impliqués, sur les scènes domestique, régionale et internationale. Le cadre théorique de la démographie politique et de l’ « économie politique » des populations permet de dépasser les discours convenus sur la question des réfugiés et les modalités de son « règlement ». Ce cadre dévoile l’étendue des enjeux des exodes de 1948 et 1967, et permet d’expliquer les mesures directes et indirectes appliquées aux réfugiés et déplacés depuis lors, en resituant ces dynamiques et ces mesures au sein de l’histoire et du contexte socio-politique caractérisant ces deux pays. L’étude montre que l’attribution de droits civils aux réfugiés est freinée par la construction politique de ce type de droits en termes de privilège réservé aux citoyens et clients des régimes en place. Les débats sur le sujet des réfugiés trahissent les fractures divisant les populations libanaise et jordanienne comme « communautés imaginées » (Anderson, 1991), fractures creusées, dans le cas de la Jordanie, à la faveur des « printemps » arabes et de l’émergence récente de nombreux courants nationalistes. Des représentations des populations nationales comme fermées, de jure et à base ethnique s’opposent ainsi à d’autres conceptions de la nation comme ouverte, de facto et assimilationniste. En conclusion, l’étude évoque la possibilité de contourner le blocage politique lié aux enjeux du nombre des réfugiés palestiniens au sein des populations nationales et à l’intransigeance d’Israël touchant à l’application de la résolution 194. Un projet d’incorporation de la Jordanie au sein du Conseil de Coopération du Golfe discuté mi-2010 aurait peut-être pu amorcer un changement de perception de la question des réfugiés et de leurs droits sociaux, par un changement d’échelle géo- démographique et politique, mais aussi économique, grâce à la création d’un marché du travail régional s’étendant d’Israël aux pays du Golfe. List of Contents I. The political construction
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