PROTECTION AND DISASTERS IN THE HORN OF AFRICA: NORMS AND PRACTICE FOR ADDRESSING CROSS-BORDER DISPLACEMENT IN DISASTER CONTEXTS TECHNICAL PAPER Tamara Wood, University of New South Wales DISASTERS CLIMATE CHANGE AND DISPLACEMENT EVIDENCE FOR ACTION NORWEGIAN NRC REFUGEE COUNCIL ACKNOWLEDGEMENTS This report was prepared for the Nansen Initiative. The author may be contacted at: [email protected] January 2013 The project is funded by the European Union with the support of Norway and Switzerland Federal Department of Foreign Aairs FDFA TABLE OF CONTENTS EXECUTIVE SUMMARY ...............................................................................................................................................7 SUMMARY OF RECOMMENDATIONS ................................................................................................................................8 ACRONYMS ...............................................................................................................................................................9 INTRODUCTION ........................................................................................................................................................10 1. PREVENTING CROSS-BORDER DISPLACEMENT ....................................................................................................12 1.1 MIGRATION AND FREE MOVEMENT OF PERSONS .....................................................................................................13 1.1.1 Legal Frameworks..........................................................................................................................................................14 1.1.2 Role in preventing cross-border displacement ...............................................................................................................16 1.2 PROTECTION OF INTERNALLY DISPLACED PERSONS ...............................................................................................17 1.2.1 Legal framework ...........................................................................................................................................................17 1.2.2 Role in preventing displacement ....................................................................................................................................18 1.3 PROTECTING PASTORAL LIVELIHOODS ....................................................................................................................19 2. PROTECTION DURING DISPLACEMENT .................................................................................................................21 2.1 MIGRATION AND FREEDOM OF MOVEMENT .............................................................................................................22 2.1.1 Applicability ...................................................................................................................................................................22 2.1.2 Protection during displacement .....................................................................................................................................22 2.2 REFUGEE PROTECTION.............................................................................................................................................23 2.2.1 Applicability ...................................................................................................................................................................24 2.2.2 Protection .....................................................................................................................................................................29 2.3 REGIONAL HUMAN RIGHTS LAW ..............................................................................................................................31 2.3.1 Applicability ...................................................................................................................................................................31 2.3.2 Protection .....................................................................................................................................................................32 2.4 TEMPORARY PROTECTION ARRANGEMENTS ...........................................................................................................36 2.4.1 Applicability ...................................................................................................................................................................36 2.4.2 Protection .....................................................................................................................................................................38 2.5 MANAGING ‘MIXED MIGRATION’ ..............................................................................................................................38 3. DURABLE SOLUTIONS ..........................................................................................................................................41 3.1 DURABLE SOLUTIONS – GENERAL ...........................................................................................................................41 3.2 FACILITATING RETURN .............................................................................................................................................43 3.2.1 The Kenya-Somalia Tripartite Agreement ......................................................................................................................45 CONCLUSION ...........................................................................................................................................................47 BIBLIOGRAPHY ........................................................................................................................................................48 Protection and Disasters in the Horn of Africa: Norms and practice for adressomg cross-border displacement in disaster context 5 6 TECHNICAL PAPER EXECUTIVE SUMMARY 1 This report analyses the scope of regional and sub-re- suggests that such persons may qualify for refugee gional law and policy frameworks relevant to address- status under this instrument, in situations where ing disasters and displacement in the Greater Horn of the disaster amounts to an ‘event seriously disturb- Africa. Taking the 2011 Horn of Africa drought and ing public order’. The precise scope of this phrase famine as a case study, it assesses the capacity of these warrants further attention – suggestions for how to frameworks to address the needs of persons displaced approach its interpretation are offered in section 2.2.1 across borders in the context of a disaster. This report of this report. has been prepared for the Nansen Initiative, a state- led, bottom-up consultative process intended to build 4 Regional human rights law, including the principle of consensus on the development of a protection agenda non-refoulement and the general human rights obli- addressing the needs of people displaced across gations conferred on states with respect to all persons international borders in the context of disasters. In (including non-nationals) within their territory, also particular, the research contained in this report con- offers important protections to persons displaced tributed to and is informed by the Nansen Initiative’s across borders in the context of disaster. This could Regional Consultation for the Horn of Africa. be used as a basis for the development of a tempo- rary protection regime for disaster-related displaced 2 Cross-border displacement in the context of disasters persons within the region. Migration and freedom of is the combined result of natural hazards, existing movement arrangements, such as are being developed vulnerabilities, local government response capacities within the sub-regional economic communities, and broader social, political and economic condi- may assist in preventing or reducing displacement tions. In the Horn of Africa, the impact of natural in the context of disasters. However, they are not hazards has frequently been exacerbated by wide- protection-oriented and should not be relied upon to spread insecurity, conflict and weak governance. Law provide adequate protection during displacement. and policy in all of these areas will therefore assist in preventing disaster-related cross-border displace- 5 The achievement of durable solutions is the ulti- ment. Due to space restrictions, however, they are not mate goal of addressing all forms of displacement, dealt with in detail in this report. Rather, this report including that which occurs in the context of dis- addresses three areas of regulation which have a more asters. Repatriation to ones country of origin will direct effect on the need for disaster-affected persons frequently (though not always) be the best option to cross an international border in search of safety. for a durable solution, but it must remain consistent These are: migration and freedom of movement with states’ international obligations with respect arrangements, the protection of internally displaced to non-refoulement, the cessation of refugee status persons, and protection of pastoral livelihoods. Law and general human rights law. Specific agreements and policy frameworks in these three areas have the between states in relation to return may be useful capacity to prevent disaster-related cross-border for addressing particular situations of displacement, displacement by allowing populations affected