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Russian Federation OP E TRY RAT UN I O O N C RUSSIAN FEDERATION AT A GLANCE Main Objectives and Activities Promote lasting solutions for refugees and create conditions for their inte- gration; encourage the voluntary repatriation of Georgian refugees; hasten the integration of involun- tarily relocating persons (IRPs) and internally displaced persons (IDPs) through self-reliance projects; pro- mote access to citizenship for state- less persons, including the Meskhetian Turks; improve access and procedures for refugee status determination by strengthening the capacity of the relevant authorities, lobbying for the passage of appropri- ate national laws and supporting their implementation by local authorities and NGOs in accordance with inter- national standards; provide basic pro- tection and assistance to asylum- seekers and ensure protection of Impact those falling outside the Russian • Refugees and asylum-seekers benefited from improved access to status determi- refugee law through temporary pro- nation procedures, health and educational services, as well as social and legal tection arrangements; ensure reset- counselling. tlement for refugees at risk of refoule- • Resettlement of the most vulnerable refugees and asylum-seekers began, and vol- ment; and promote the accession of untary repatriation of asylum-seekers from non-CIS countries was encouraged, the Russian Federation to interna- resulting in the return of 89 non-CIS refugees and 239 Georgians to their home. tional conventions on statelessness. • The integration of IDPs and IRPs was more vigorously pro- moted and some obtained gainful employment. Persons of Concern • There was greater awareness and co-operation among local MAIN REFUGEE TOTAL IN OF WHICH: PER CENT PER CENT ORIGIN/TYPE OF POPULATION COUNTRY UNHCR-ASSISTED FEMALE < 18 authorities and NGOs regarding the need for long-term Refugees from CIS/Baltic countries 51,400 - - - solutions for people of concern to UNHCR. Refugees from non-CIS countries 680 140 - - Asylum-seekers from non-CIS countries 16,070 - - - Refugees from Georgia 28,000 - - - Persons of Concern 100,000 - - - Income and Expenditure - SP Activities (USD) FDPs*, mainly Meskhetians 21,200 13,600 - - WORKING INCOME FROM OTHER FUNDS TOTAL FUNDS TOTAL IRPs** 724,000 - - - BUDGET CONTRIBUTIONS* AVAILABLE** AVAILABLE EXPENDITURE IDPs*** 498,000 - - - 5,641,036 353,912 5,151,422 5,505,334 5,281,673 * The term “Formerly Deported Peoples” refers to the populations deported by the Soviet authorities. ** According to the CIS Conference, the term “involuntarily relocating person” denotes * Includes contributions earmarked for the Special Programme in the CIS. a citizen from CIS country who has been forced to move to his/her country of citizenship. ** Includes opening balance and adjustments. ***Includes 100,000 displaced persons within Chechnya itself (according to UNHCR The above figures not include costs at Headquarters. estimates). UNHCR GLOBAL REPORT 1999 Page 293 COUNTRY OPERATION WORKING ENVIRONMENT Conflict between federal and regional legislation con- tinues to cause friction and requires UNHCR to build The Context partnership with many counterparts. As distances Following the collapse of the Soviet Union in 1991, within the Russian Federation are enormous and political, economic and social problems caused huge regional needs diverse, the Office had to adopt a decen- population movements to, from and within the Russian tralised approach by trying to increase its field presence Federation. Between three and five million people and carrying out missions to field locations. In the migrated, either as refugees, IRPs, IDPs or FDPs. At the northern Caucasus, there was a very real threat of kid- end of 1999, more than one million people were reg- napping or other acts of violence against expatriate staff, istered by the Federal Migration Service (FMS), of so the Office had to rely on national staff for its oper- whom 80,080 were refugees, 724,000 were IRPs and ations there. 498,000 IDPs. ACHIEVEMENTS AND IMPACT The refugees mainly originate from CIS countries (Ossets fleeing the Georgia-South Ossetia conflict, Protection and Solutions Azeris, Kazakhs, Tajiks, and Uzbeks) and smaller num- Although the Russian Federation has acceded to the bers are from non-CIS countries (Africa and Asia). The 1951 Convention on Refugees and its 1967 Protocol, IRPs (the majority of them ethnic Russians) are from and began to enact corresponding national law in Kazakhstan, Chechnya, Uzbekistan, Tajikistan or 1993, the Government’s ability to implement these laws Azerbaijan and live in the southern part of the Russian remained limited. In general, the Office was con- Federation (Stavropol, Krasnodar, Rostov and cerned about the quality of first-instance decisions on Ingushetia). This group includes 30,000 formerly refugee status, which were predominantly negative. As deported Meskhetians living in the Krasnodar region a result of a very restrictive interpretation of the term (who are considered stateless), as well as Meskhetians “persecution”, the authorities rejected asylum appli- in central and southern areas of the Russian Federation cations submitted by individuals clearly in need of (whose status is legal). The IDPs mainly originate international protection. A wide application of the con- from Ossetia, Chechnya and Daghestan and are located cept of “safe third country” also resulted in the rejec- throughout the Russian Federation. In addition, one tion of asylum-applications. to three million people have settled independently without registering with the FMS and of these, an Asylum-seekers from non-CIS and non-Baltic States estimated one million people have no legal status. remain in a particularly precarious situation. The The latter group includes some 150,000 non-registered Federal Migration Service started conducting status IDPs from Chechnya. determination in 1997 and access to eligibility proce- dures improved. However, asylum-seekers were sub- UNHCR worked in a context of economic crisis (fol- jected to increased police harassment, illegal detention lowing the financial crash of August 1998), political and deportation threats. Moreover, a large number of uncertainty and deteriorating security. Military action regional authorities imposed various restrictions pre- in Daghestan and later in Chechnya resulted in a mas- venting persons of concern to UNHCR from settling sive influx of IDPs into the neighbouring Republics of on their territories. UNHCR tried to ensure that Ingushetia, North Ossetia and Daghestan. asylum-seekers received basic protection and assis- tance pending refugee status determination and inter- Constraints vened where necessary on behalf of individuals. The The devaluation of the ruble and high inflation lim- Office succeeded in securing access to the transit zone ited government budgets and constrained its ability to at Moscow international airport and the main deten- fulfil obligations enshrined in refugee and migration tion centre for illegal aliens, with positive results legislation. Changes of personnel at all levels fre- regarding access to refugee status determination, release quently disabled the relevant ministries and further from detention and emergency resettlement. UNHCR dulled the will to show initiative or assume responsi- ensured that persons of concern were informed about bility. These difficulties rendered the integration of IDPs their rights and obligations and assisted with admin- and IRPs in central and the far eastern regions of the istrative procedures and their search for legal employ- Russian Federation a special challenge, particularly ment through counselling services. Legal provisions for in light of the limited employment opportunities. recognised refugees were improved, but implementa- UNHCR GLOBAL REPORT 1999 Page 294 COUNTRY OPERATION tion remains unclear. Refugees and asylum-seekers poor knowledge of Russian. Group counselling was still lack proper documents such as refugee identity organised for some 17,000 adults in collective centres. cards, refugee travel documents and temporary cer- A collective centre was rehabilitated for the accom- tificates of asylum. modation of 75 vulnerable people. Refugees from Georgia and IDPs had access to vocational training UNHCR reduced its work on the repatriation of (hairdressing, accounting, sewing and cooking) lead- refugees from Georgia and South Ossetia to a minimum, ing to further employment opportunities. In the Rostov partly due to its own security concerns but also because and Altai regions, office equipment, school supplies, conditions in South Ossetia were less encouraging. and clothing and footwear were provided to tempo- Over time, local integration became a more viable rary accommodation centres and social institutions. solution. Only 239 persons repatriated with UNHCR Twenty children from Moscow and Stavropol partic- assistance (compared to the 600 originally antici- ipated in pilot summer camps. In the south, 22 NGOs pated). The status of Meskhetians in Krasnodar Krai received grants to carry out social programmes and sur- remained unresolved, with obstacles to their proper veys, to organise carpentry workshops and to buy integration there and problems of harassment. office equipment. UNHCR supported a radio pro- gramme for IDPs. In Stavropol, the training centre In response to these problems, UNHCR carried out evaluated project proposals and gave advice on busi- intensive lobbying and advocacy with federal and ness planning, accounting and taxation matters. A sur- regional
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