Assessment of Global Resettlement Needs for Refugees in 1994

Introduction

1.         This assessment is intended to inform governments and non-governmental organizations about resettlement needs worldwide in 1994. It should also assist governments in their future planning of resettlement programmes for refugees. The report gives background information, by region and by country, on groups in need of resettlement. As the ten countries that traditionally announce an annual refugee quota have three different planning cycles, the assessment does not coincide with all cycles.

2.         Unless new major crises occur, the estimated number of places needed for the resettlement of refugees in 1994, totalling 58,860, remains less than one percent of the over 19 million refugees in the world. In 1992, the Global Assessment was published in September and, already in October, additional places were needed to ensure the temporary protection of 6,600 Bosnian former detainees. It is clear that without flexibility, the international community would not have been able to respond as generously as it has. UNHCR takes this opportunity to thank over twenty countries that responded positively to this appeal.

3.         As can be seen from the table below of projected resettlement needs by region of origin from 1990 to 1994 there has been a trend for the resettlement needs of African refugees to remain the same (with the caseload of Somalis in Kenya being the largest). The caseload of the Vietnamese in Southeast Asia has decreased. The resettlement of the Highland Lao caseload was initially spread over several years; the entire group needing resettlement has been included now, although departures may not all be possible in a single year. The caseload for Europe in 1990 reflected the needs from Eastern Europe and was then sharply reduced. Refugees from Former Yugoslavia are mentioned in a note to the table, as in some countries this group has been given temporary protection while in others resettlement has been provided as a durable solution. Projected needs for Latin America have been reduced, clearly reflecting the tendency to identify solutions within the region. At the time of writing, the largest group needing resettlement remained the Iraqis in the Middle East.

4.         The international community recognizes that whilst refugees do not enjoy the protection of their countries of origin and, therefore, require a special regime of international protection, other immigrants enjoy the protection of their own governments. As the Note on International Protection presented by the High Commissioner to the 1993 Executive Committee states, while voluntary repatriation is the ideal solution to refugee problems, for some refugees in some circumstances resettlement to a third country may be the most appropriate solution. Besides being a possible durable solution for individuals for whom repatriation appears impossible in the foreseeable future, resettlement can also be a crucial protection tool in cases where insecurity persists in the first country of asylum. In certain cases, it may provide a way of saving or restoring the basic dignity of a refugee's life, e.g. through appropriate medical or psychological attention; education or training; or family reunification. Pleas have, therefore, been made in previous Global Assessments for governments to give greater appreciation to resettlement based on international protection needs than immigration programmes. Efforts of States in this connection are welcomed and governments are once again encouraged to show this appreciation.

5.         The chart (on page 4) that shows the resettlement process in a schematic form has, for some years, not included family reunion because this type of resettlement is often arranged by governments with minimal UNHCR involvement. We have added it this year, however, especially because 1994 has been declared the International Year of the Family. In the course of the year, UNHCR plans to discuss family reunion with resettlement countries to see if agreement can be reached on improved methods for processing and reporting. We believe certain countries do not currently get full credit for their humanitarian support for refugee families. Different forms of legislation govern this process in the various resettlement countries, so uniform reporting to the international community may not be feasible. More information-sharing will, however, be our goal. In the course of consultations on temporary protection, the issue of family reunion has been raised several times.

6.         In his message to the United Nations Offices published in July 1993, the Secretary General said:

"The Years's success hinges on the concerted individual and collective action of Member States, intergovernmental and non-governmental communities, research institutions and the private sector. Equally important is the involvement of families themselves and the commitment of the individuals within them."

7.         The processes of family reunion, specifically, and resettlement, generally, have long been coordinated amongst States and UNHCR. The cooperation between the International Organization for Migration (IOM) and UNHCR on resettlement issues is well-known and has, in the course of 1993, been reinforced by the establishment of a task force, with a sub-group on resettlement, to study mutual concerns. Successful resettlement efforts also depend, to a large extent, on the inputs of non-governmental agencies the world over.

8.         The first refugees UNHCR helped in 1951 (who had been identified under the programmes of the International Refugee Organization) were some 410,000 vulnerable cases who were handicapped and ill and had not met the requirements of potential resettlement countries. It was only recently, however, that special measures to assist mentally disturbed refugees were adopted. The World Federation for Mental Health (WFMH) and its collaborating centre the Harvard Program in Refugee Trauma (HPRT) in the United States, are eager to support mentally disturbed refugees. Through an agreement between WFMH, HPRT and UNHCR, signed by the High Commissioner on 21 June 1993, co-operation will be possible with regard to mental health of refugees in camps in first asylum countries and during repatriation. Some of the components of this venture are research, training and clinical services.

9.         Efforts will also be made in 1994 to promote and collect more information on intra-regional resettlement. It will be useful to share with the ten resettlement countries that traditionally have admission ceilings, information about on-going burden-sharing in Africa and Latin America where regional resettlement without de facto UNHCR assistance has, so far, not been systematically documented.

10.       At the 44th session of the Executive Committee of the High Commissioner, a conclusion was endorsed stressing that States, together with the High Commissioner, should explore possibilities for the more effective and flexible use of resettlement. An appeal was made to governments, in the relevant Conclusion (number 67) of the 42nd session (see pages 6 and 7) to establish refugee admission ceilings. Following this appeal was a request to States to provide for contingency resettlement needs. UNHCR plans to pursue negotiations with governments concerning admission ceilings and to encourage them to set aside special resettlement places for vulnerable groups and emergency protection cases.

11.       In the above-mentioned Conclusion 67 (1991) it was stressed that rapidly evolving situations lead to fluctuating resettlement requirements. At the time of writing, for example, it was impossible to determine what resettlement needs might result from unrest in Burundi. In this connection, governments are encouraged to adopt a flexible approach when new groups are identified as being in need of resettlement. Conclusion 67 covers changes from year to year, but in this situation, and that of Former Yugoslavia, changes from month to month are more likely. The need was recognized by the Executive Committee for rapid responses. Many governments and non-governmental agencies are to be commended for urgently resettling individual cases, particularly from the vulnerable groups or for emergency protection.

12.       During the past year, resettlement activities have been undertaken in close consultation with UNHCR. This progress was acknowledged by the Executive Committee as being a useful way to proceed and makes it possible to report more thoroughly to the international community. At a time when there is daily news of the problems of economic recession and xenophobia, it is heartening to report that resettlement efforts are continuing and many refugees are making a positive contribution to their new countries.

13.       Since 1991, when the Executive Committee recognized that the protection elements in resettlement requests are important, efforts have been made to strengthen submissions. Training of governmental and non-governmental colleagues, as well as of UNHCR protection and resettlement officers is an important part of this process. The people-oriented planning training system has also helped to increase awareness of the needs of women-at-risk and other vulnerable groups.

14.       The final clause of Conclusion 67 emphasizes that resettlement remains the durable solution of last resort. UNHCR staff the world over concentrate first on options for voluntary repatriation and local integration and only propose resettlement when these solutions are not possible. In the course of 1993 there may have been a perception that at times the UNHCR resettlement process was too slow or too restrictive. Screening remains an important part of the process, which may inevitably appear as a delaying factor. A realistic approach is also adopted, which to some may appear negative. There is a general consensus that being forced to flee one's country is a traumatic event. In the past, however, we may have underestimated the trauma of resettlement. It is important to remember that while governments and non-governmental organizations make every effort to welcome refugees and help them to integrate, many spend their lives dreaming of returning home.

1991 (Executive Committee - 42nd Session)

No. 67 (XLII) RESETTLEMENT AS AN INSTRUMENT OF PROTECTION

The Executive Committee,

Reaffirming the link between international protection and resettlement as an instrument of protection and its important role as a durable solution in specific circumstances,

(a)        Calls on governments in a position to assist, to establish refugee admission ceilings, in the context of international burden-sharing;

(b)        Requests States when setting refugee admission ceilings to include an adequate contingency provision which could be available depending on need to address rapidly evolving situations;

(c)        Recognizes that rapidly evolving situations can result in fluctuating resettlement requirements from one year to another and that admission ceilings should be adaptable to such developments;

(d)        Recognizes the need for rapid and flexible response to UNHCR resettlement requirements, in particular for vulnerable groups and emergency protection cases, subject to refugee admission requirements of receiving States;

(e)        Acknowledges the utility of close consultation with UNHCR in the resettlement activities of the Office;

(f)         Recognizes that in reviewing UNHCR resettlement requests the protection element inherent in such requests should be taken into account;

(g)        Emphasizes that UNHCR pursues resettlement only as a last resort, when neither voluntary repatriation nor local integration is possible, when it is in the best interests of the refugees and where appropriate.

15.        A former Chief of the Resettlement Section recently observed that resettlement involves four "desires", namely, those of the receiving country, the asylum country (in some instances a transit country as well), of the refugee and of UNHCR. The "desires" of the resettlement countries may be influenced by the media and public interest groups but are, more often than not, governed by detailed and restrictive legislation. A submission from UNHCR consists of the solution deemed to be in the best interests of the refugee and may be based on giving him the benefit of the doubt. Needless to say compelling human stories may not fit conveniently into strictly legislated resettlement criteria. The challenge for the resettlement countries and UNHCR is to deal humanely with these desires, while respecting the rules and regulations.

16.       In the context of the Comprehensive Plan of Action (CPA) for the Vietnamese, it was possible to marry all of these desires for many thousands of refugees. In other refugee situations, however, problems may arise and we should accept the fact that resettlement programmes may not please all of the people all of the time. When a government or a non-governmental agency is under pressure from different sectors to resettle individuals or groups, or a UNHCR office is "threatened" with a hunger strike by refugees who feel resettlement is their basic human right, we would do well to remember this.

RESETTLEMENT NEEDS BY REGION OF ORIGIN

MIDDLE EASTERN AND SOUTH WEST ASIAN REFUGEES

PROJECTED NEEDS - 29,600 persons

Overview and Principal Issues

17.       The trend of 1992 continues with resettlement requirements for refugees from the Middle East exceeding those of other regions. Certain countries responded quickly to the needs identified in last year's Global Assessment. Resettlement from Turkey has been particularly successful and provides an excellent example of burden-sharing among receiving countries. UNHCR counts on the further cooperation of governments in 1994.

18.       The situation of the 23,000 Iraqi refugees still in Saudi Arabia merits special attention as since May 1992 durable solutions have been found for approximately 9,000 refugees, including about 2,300 who opted for voluntary repatriation. At this pace, it will take another four to five more years to complete the resettlement operation which would be far too long. Increased involvement of governments that so far have allocated modest quotas is required, as well as the full commitment of countries not yet participating in this exercise.

Islamic Republic of Iran

19.       Iran continues to be a host country for refugees, thus resettlement will mainly be sought for security cases and vulnerable groups. Needs for 1994 are estimated at 150 persons.

Iraq

20.       The refugee caseload in Iraq can be divided into four categories:

a)         There are approximately 8,000 Iranian Kurds in the non-government-controlled areas of Northern Iraq. The majority are long-stayers who have been in Iraq for four to five years. Out of 200 families registered for resettlement, 50 cases representing 300 persons are expected to require resettlement.

b)         There are more than 20,000 Iranians in Al Tash refugee camp. After screening of 1,700 cases who have expressed interest in resettlement, 220 families/1,320 persons may be in need of resettlement. They have remained in Iraq for six to seven years with no prospects of local integration.

c)         The population of urban refugees in Ramadi and Baghdad is estimated at 63,000 and consists mainly of Palestinians and approximately 150 Peoples' Mudjehadeen Organization of Iran (PMOI) members. After screening the Iranian refugees who have applied for resettlement, it is estimated that 80 persons may qualify for resettlement. They have been in Iraq for less than two years and resettlement processing of the group may prevent secondary migration to Turkey.

d)         The caseload of Iranian refugees in the southern part of Iraq is estimated at 40,000. In view of their Arab origin they are authorized to integrate locally, thus resettlement is not foreseen.

21.        Of the estimated 700 last year in need of resettlement, 400 Iranians have been resettled in 1993, leaving a balance of 300 to be carried over to 1994. The total resettlement needs in Iraq, therefore, are estimated at 2,000 places for Iranian refugees for 1994.

Jordan

22.       The UNHCR office in Amman examines individual claims for refugee status of Iraqi nationals. Following the in-depth review of these cases and due to the restrictive measures imposed on the sojourn of Iraqi nationals by the authorities of Jordan since March 1993, the resettlement needs for Jordan in 1994 are expected to be less than in 1993. Iraqis recognized as refugees under the UNHCR mandate, however, cannot remain in Jordan as their safety cannot be ensured. For 1994, the resettlement needs for Middle Eastern refugees in Jordan are estimated at 150.

Kuwait

23.       The main objective of UNHCR is to seek local integration in Kuwait for persons of concern to the organization. Resettlement is only explored when repeated efforts to regularize the status of the refugees have failed. This concerns primarily Iraqi nationals, or persons of Iraqi origin, who are detained in Talha deportation centre, under administrative orders of expulsion, and whose release has been denied despite UNHCR interventions. The requirements for 1994 are forecast at 500 persons.

Lebanon

24.       Policy towards refugees recognized under the mandate of UNHCR remains very restrictive, and resettlement is the only means to safeguard their protection. Some 200 places, mainly for Iraqis, will be required in 1994.

Pakistan

25.       There has been a significant decrease in resettlement from Pakistan over the last two years. At present, resettlement is only pursued for particularly compelling protection cases and refugees in the vulnerable groups category. This will include some Afghans linked to the previous regime who cannot remain in Pakistan. For 1994, resettlement places required for Iranians in Pakistan are estimated at 150.

Saudi Arabia

26.       All of the Iraqi refugees in Saudi Arabia, numbering approximately 23,000, are located in Rafha Camp which is situated 7 kms from the Iraqi border. Since resettlement processing began in May 1992, and due to the dimension of the refugee population, UNHCR has encouraged governments to participate in a burden-sharing operation. By the end of October 1993, nearly 7,000 refugees had been admitted to third countries, of whom more than 2,000 have found a solution within the region.

27.       Although some 2,300 refugees have opted for voluntary repatriation, resettlement remains the main viable durable solution for this group. Some governments are committed to the operation and pursue resettlement processing from Saudi Arabia; others have recently decided to participate in this resettlement exercise. Reinforced burden-sharing amongst receiving countries is indispensable, however, to avoid unnecessary hardship on the refugees resulting from a prolonged sojourn in the camp.

28.       UNHCR will, therefore, continue to call upon governments to support completion of this operation within a reasonable timeframe. Some refugees may opt for voluntary repatriation to avoid a long stay in the camp. Their number, however, is expected to be limited and resettlement needs for Saudi Arabia in 1994 are estimated at 23,000.

Syria

29.       The refugee population remains stable, totalling about 6,500 persons of whom 5,000 are in the El Hol area. Resettlement is identified as the durable solution primarily for urban refugees facing serious protection problems or in the vulnerable groups category. The needs for 1994 are forecast at 70 persons.

Other Countries in the Middle East

30.       A further 80 places are needed for other countries in the region to enable UNHCR to respond to security cases, some of whom will need to be resettled on an emergency basis.

Middle Eastern and South West Asian Refugees in Europe

Greece

31.       UNHCR has repeatedly intervened with the Greek authorities to provide basic rights to refugees previously recognized under the UNHCR mandate. UNHCR has scaled down its resettlement activities in Greece, therefore, with the exception of particularly vulnerable cases. Under these circumstances, the requirements for 1994 are forecast at 80 persons, principally Iraqis and Iranians.

Turkey

32.       Turkey hosts approximately 13,500 refugees, including 8,200 Iraqis and Iranians living in Ankara and other provincial capitals, and 5,300 Iraqi Kurds accommodated in camps in the south-eastern part of the country. There are still over 1,700 Iraqis from the 1988 and 1991 influxes in Silopi and Kangal camps. UNHCR is conducting status determination interviews for the camp population. An estimated number of only 200 persons is expected to be granted mandate status.

33.       Although more than 4,000 refugees were resettled from Turkey in 1993 and new arrivals of Iraqis and Iranians registered with UNHCR decreased considerably in 1993, resettlement remains indispensable. UNHCR foresees a need for the resettlement of 2,900 persons, representing an estimated caseload of 1,600 Iraqis and 1,300 Iranians.

Other Countries in Europe

34.       A total of 50 places are projected for other countries in Europe.

Middle-Eastern and South West Asian Refugees in Asia

India

35.       Refugees recognized under the mandate of UNHCR are not permitted to remain permanently in India. Considerable pressure is put on UNHCR to find a durable solution for Afghans, Iranians and Iraqis, who are granted temporary residence on the condition that they be resettled. Some 200 places are needed for 1994.

Other Countries in Asia

36.       Non-Indochinese refugees in South East Asia may be in a precarious situation lacking adequate protection. Some refugees from the Middle East who are recognized as refugees under the UNHCR mandate, therefore, may require resettlement, at times on emergency grounds. Some of these refugees have been in orbit or granted "temporary" asylum with no possibility for a durable solution locally or in the region. Many of them are long-stayers. For 1994, resettlement is foreseen for 70 persons.

SOUTH, EAST AND SOUTH EAST ASIAN REFUGEES

PROJECTED NEEDS - 18,650 persons

Overview and Principal Issues

The Comprehensive Plan of Action (CPA)

37.       The total Vietnamese population in the CPA region as of June 1993 was 80,856, of whom 10,182 were recognized as refugees, 13,731 were awaiting decisions regarding refugee status, and 56,943 had been screened out. Of the recognized refugees, 4,582 have been accepted and resettlement processing is continuing for the remaining 5,600 refugees. There was also a total of 31,820 Highland and Lowland Laotians in the region (27,586 Highland and 4,234 Lowland Lao), some of whom will be candidates for resettlement.

38.       During the first six months of 1993, UNHCR offices in the region reported 101 new arrivals of "boat people". If this trend persists, status determination procedures for the present post-cut-off date population are expected to be completed, in the course of 1994, in all of the countries in the region, and the appropriate durable solutions will be identified accordingly.

39.       In April 1992, a Fourth Technical Meeting on Resettlement under the CPA was convened in Hong Kong to discuss resettlement issues relating primarily to the remaining pre-cut-off date population. Participating governments agreed to apply a maximum degree of flexibility in their joint efforts to review the remaining caseload. Governments, which had not yet met their resettlement pledges, were requested to intensify their efforts to fulfil their commitments, to comply with the three year plan for completion of resettlement of the pre-cut-off date refugees. Despite concerted efforts, the region-wide pre-cut-off date population still unaccepted for resettlement by end June 1993 totalled 1,550 refugees. Unfortunately there have been fewer departures than expected. As an increasing proportion of refugees, provisionally accepted for resettlement, tend to receive negative final decisions, while others are repeatedly found ineligible for resettlement under the immigration/refugee legislation of various governments, progress to clear this residual caseload has been slow.

40.       The regional distribution by country of the pre- and post-cut-off date refugee population awaiting resettlement offers, as of 30 June 1993, was as follows:

41.       Although the agreed three year period to finalize the resettlement of pre-cut-off date refugees expired in June 1992, on-going efforts by governments are still required to achieve appropriate solutions for the remaining caseload Priority should be given to the caseload in Thailand, to which the "Platform" group, i.e. those Vietnamese who arrived overland in Thailand, has been added, as well as to the caseload in Hong Kong. For some of the remaining pre-cut-off date refugees, excluding the above-mentioned group, a special effort should be made, such as for multiple rejection cases, refugees suffering from mental disorders, as well as drug abusers (being rehabilitated) and some with criminal records. A final review of resettlement options, to consider new approaches such as exceptional family reunification or special arrangements will be undertaken for these groups.

42.       Governments are also urged to give special consideration to long-staying refugees within the post-cut-off date population, to provide a sufficient number of quota places and, in general, to expedite processing and avoid the build-up of long-stayers.

43.       The total resettlement needs for 1994 for refugees originating from East and South East Asia are forecast at 18,650 (see page 16 for a breakdown).

Resettlement Needs

Vietnamese

44.       The projected needs for Vietnamese refugees (as detailed on page 16) are based on the carry-over to 1994 of the present pre- and post-cut-off date refugee populations estimated to remain without resettlement offers at the end of 1993, added to those whose status will be determined in 1994. The total caseload needing resettlement in 1994 is estimated to number 5,165 persons. The largest groups of pre-cut-off and post-cut-off date refugees are located in Thailand and Hong Kong. Other large groups of post-cut-off refugees are found in the Philippines and Malaysia.

45.       The "Platform" group of Vietnamese refugees were initially in camps for Cambodian refugees at the Thai-Cambodian border, and not submitted for resettlement. Although most of them arrived before the cut-off date, it was subsequently agreed, through consultations with parties concerned initiated in 1992, that they should be screened for resettlement. Bearing in mind their lengthy stay in Thailand, they merit special consideration and are thus included in the 5,165 persons estimated to need resettlement in 1994.

46.       The Committees for Special Procedures established in the region to recommend solutions for unaccompanied minors and exceptionally vulnerable cases continue to consider their cases. There are some 200 unaccompanied minors (included in the total of 5,165) for whom resettlement has been determined to be the best durable solution.

47.       Following Resettlement processing of smaller groups of Vietnamese given temporary protection in the Peoples' Republic of China, initiated in 1993, only 5 persons (included in the total of 5,165) are still expected to need resettlement places in 1994.

Laotians

48.       Voluntary repatriation continues to be pursued for the Laotians. Family reunification in third countries will be facilitated for Highlanders in Thailand. The total resettlement places needed are estimated at 13,350 (50 for the Lowland and 13,300 for the Highland Lao) consisting mainly of family reunification cases for the United States and a few cases for other resettlement countries such as Australia, Canada and France.

Other refugees originating from South and East Asia

49.       Given non-accession to the 1951 Convention and the 1967 Protocol, as well as restrictive immigration laws of a number of countries both in the region and in many other parts of the world, other refugees originating from the region will continue to need resettlement. UNHCR estimates a need of a total of 135 places, mainly for refugees from Sri Lanka and Myanmar. Resettlement for these cases is only promoted under exceptional circumstances, such as for family reunification of immediate family or in situations of emergency on protection grounds, especially when the refugees concerned face deportation to their country of origin. In addition to the above, regular resettlement of Myanmarese refugees is processed directly by the embassies concerned and thus do not appear in our chart of projected resettlement needs in 1994.

AFRICAN REFUGEES

PROJECTED NEEDS - 10,550 persons

Overview and Principle Issues

50.       Refugee situations in Africa during 1992 and 1993 were, more than ever, subject to rapid changes. By mid-1993, the continued emergencies in the African continent had generated over six million refugees. Dramatic geopolitical changes, due to internal tribal conflicts and ethnic strife, aggravated by famine and drought, exacerbated poverty and led to new refugee problems in Africa. Major emergencies occurred in Angola, Guinea, the Horn of Africa, Kenya, Liberia, Sierra Leone, Somalia, and Uganda. The Somali crisis alone led to the displacement of almost two million people. At the time of writing, critical situations in Burundi, Nigeria, and Southern Sudan gave new cause for concern.

51.       In the course of recent African emergencies, the international community has witnessed increased violations of human rights and personal security of refugees. Systematic torture, killings, abductions, sexual violence, arbitrary detention in inhumane conditions and armed attacks on refugees and asylum seekers are experienced by African refugees. Examples of refoulement and expulsion of asylum seekers and refugees "in defense of national interests" have been more frequent. In this connection, resettlement outside Africa, has become the only option, often on a priority basis, to provide timely physical protection.

52.       The signing of peace accords in some parts of Africa give cause for hope for voluntary repatriation; when repatriation becomes possible resettlement needs should decrease. Unfortunately, renewed conflicts and financial constraints impeded the prospects of voluntary repatriation programmes for Angolan, Eritrean and Liberian refugees. In Burundi and Chad, repatriation had begun, but new disturbances led to new refugee flows.

53.       The tradition of African hospitality and granting asylum to massive influxes of refugees, has been strained due to instability and the heavy financial burden incurred; intra-African resettlement remains an option for few African refugees. UNHCR, will, therefore continue to promote resettlement of African refugees for family reunification, selected groups of vulnerable refugees, and those individuals of concern who, for reasons related to protection, often face life-threatening or severe security risks and for whom repatriation is not feasible.

54.       The projected resettlement needs for African refugees in 1994 are estimated at some 10,550 places, (similar to the needs projected in 1993).

55.       The known cases comprise mainly Ethiopian, Liberian, Somali and Zairean refugees, as well as 21 other African nationalities. This refers to the caseload of 9,300 African refugees, who were being processed for resettlement by mid-1993. More than half of this group have been assessed to qualify under the criteria of resettlement countries and are expected to resettle within 1993. A similar number (which will be primarily family reunion cases) of new applicants is anticipated in the second half of 1993 and will be carried over to 1994.

56.       In view of the fluid nature of African refugee situations, the resettlement programme in Africa needs constant review, in cooperation with the receiving countries, and requires flexible and innovative approaches to identify the deserving cases. A contingency of 1,250 places is foreseen for additional needs in 1994, i.e. 1,100 places for refugees in Africa and 150 places for African refugees outside Africa.

57.       During the International Year of the Family in 1994, UNHCR will appeal to resettlement countries to promote expeditious reunification of refugee families. Thousands of Africans have been resettled outside Africa in the past few years. A considerable number of their immediate relatives have applied for reunification in the current year, particularly the families of former refugees from Ethiopia, Liberia, Somalia and Sudan.

58.       Family reunification poses a challenge due to the complexity of refugee situations in Africa. Accurate figures are difficult to obtain since many families of resettled refugees have no access to family reunion procedures. Tracing of relatives in Africa can be complicated; delays in family reunion have also resulted from logistical difficulties and bureaucratic formalities. Scarcity of resources is the major constraint. UNHCR calls upon all concerned for additional resources and joint efforts to streamline the processing requirements and simplify procedures, as well as to develop closer partnerships with both local and international non-governmental organizations to promote family unity in 1994.

Kenya, Sudan, and other East African Countries

59.       In Kenya, in spite of the spontaneous and assisted voluntary repatriation of Somali refugees since the beginning of 1993, many refugees are waiting because of continuing insecurity and its effects on economic infrastructure, particularly in Southern Somalia. A large number of Somalis in Kenya have registered for repatriation. As conditions in some areas inside Somalia improve, voluntary return will be pursued as appropriate.

60.       Ethiopian and Somali refugees in Kenya form the main group of those resettled from Africa. All resettlement countries have participated in contributing resettlement offers. Most of the refugees were accepted for family reunification combined with protection reasons. Major resettlement activities will continue in Kenya during 1994, when a review of the entire caseload is foreseen.

61.       Some major resettlement countries have reduced their refugee processing venues and resources in Africa. Nairobi has thus become the main operational post for several countries. UNHCR seeks to ensure that refugees in other African countries continue to benefit from resettlement assistance. Efforts are under way, in consultation with the resettlement countries concerned, to improve resettlement procedures in the region and assure an adequate response in the future.

62.       In Sudan, some 1,300 Ethiopian refugees were determined to still need resettlement offers although Ethiopian repatriation from Kenya and Sudan began as of early 1993. Special attention is drawn to the fact that, as is true of other mass repatriation efforts, resettlement needs may still exist for small, specific groups. Resettlement on protection grounds will continue to be required in 1994 for some Ethiopian refugees in Sudan for whom security cannot be guaranteed and voluntary repatriation is not feasible. As they belong to certain clans and political groups, they are deemed to be in need of resettlement on protection grounds.

63.       Sudanese refugees continue to seek asylum in Kenya, Uganda and Zaire. Those refugees who are in immediate danger will require resettlement support, on a case-by-case basis, along with the family reunion cases already being processed.

64.       The majority of Ugandan refugees returned, for the most part, from South Sudan. Some exceptional cases of Ugandan refugees in the Horn and East Africa may still be in need of resettlement for security and protection reasons. The implementation of the Eritrean Repatriation Plan was pending at the time of writing, subject to the outcome of negotiations with the Eritrean Government concerning funding.

65.       As of mid-1993, statistics showed that 6,075 refugees in Kenya and 1,372 refugees in Sudan were under resettlement processing while in the Horn and East Africa, 407 refugees still awaited resettlement (details are shown in the table on page 22). Considering the existing refugee problems in Kenya, Sudan and in the East and Horn of Africa, a contingency of 750 places is requested as a tentative target for 1994.

Central and West Africa

66.       In Central Africa, hostilities continued in Angola, despite the peace agreement signed between the government and the opposition. This led to indefinite suspension of all voluntary repatriation operations: although voluntary repatriation had begun, making possible the return of over 6,500 returnees in 1993. Renewed ethnic disturbances in Burundi, however, have led to a massive outflow of more than 700,000 refugees into neighbouring countries. It is still hoped that the Rwandese Peace Agreement, signed in August of 1993, will pave the way for repatriation of Rwandese refugees to start in early 1994. This could lead to greater stability in the region. The political and ethnic strife in Southern Chad, earlier in 1993, led some 20,000 Chadian refugees to flee into the neighbouring Central African Republic.

67.       There was an increase in the refugee population in West Africa. An upsurge in fighting in Liberia, in the last quarter of 1992, resulted in increased numbers of refugees in Ghana, Guinea, the Ivory Coast, and Nigeria. The deterioration of security conditions in the Casamance region of Senegal forced Senegalese to flee to the Gambia and Guinea Bissau. The outbreak of hostilities in Togo in the first quarter of 1993 resulted in large influxes into Benin and Ghana. There have been some spontaneous returns of Liberian refugees since the signing of the Cotonou Agreement. It is anticipated that with its effective implementation, a large percentage of the caseload will choose to repatriate voluntarily.

68.       Despite a diminishing number of Liberians eligible for resettlement, about 880 Liberian refugees in the West and Central African countries were reported on 30 June 1993 as still requiring resettlement consideration, almost exclusively under the United States refugee programme. Resettlement needs for Central and West Africa are estimated at 1,130, including 930 (persons) pending and a contingency of 200 places. Most of the existing cases of Liberians are expected to be resettled in the course of 1994.

North Africa

69.       The North African countries have showed tolerance towards African asylum seekers and refugees. The resettlement needs from this region are, therefore, projected at 240 places for 140 Somalis, who had applied for resettlement as of June 1993, and a contingency of 100 places. This target is requested for exceptional protection and vulnerable cases in the Arab Republic of Egypt.

Southern Africa

70.       The positive peace process in Southern Africa is expected to facilitate large-scale return of 1.2 million Mozambican refugees. Resettlement needs from this sub-region may, however, increase to about 200 for 1994. This includes 149 refugees of various nationalities present in the sub-region who were assessed to be in need of resettlement outside Africa, and a balance of 50 places for the estimated reserve.

African Refugees outside Africa

71.       Resettlement serves as an effective instrument of protection for African refugees outside Africa, since it is the only possible option for those who are destitute and who may be subject to detention and prosecution on charges of violation of immigration laws. In some instances, resettlement has helped to prevent refoulement, deportation and expulsion of individual refugees despite UNHCR interventions. Resettlement offers for such cases have, unfortunately been declining.

72.       For all African refugees outside Africa, UNHCR undertakes a careful assessment, on a case-by-case basis, to determine the justification for resettlement before a submission is made. UNHCR, therefore, requests support from all resettlement countries in response to resettlement requests, usually sought under exceptional circumstances, where repatriation is not viable or when no other humane durable solution is available in a reasonable timeframe.

73.       A total of 226 African refugees are registered for resettlement with UNHCR offices in Asia, Europe and the Middle East. (Detailed information is available in the table on page 22.) Normally, African refugees are allowed a brief temporary stay and most often refugees have been forced by circumstances to move from country to country because of immigration and asylum restrictions.

74.       In 1994, a tentative target of 375 resettlement places is estimated for African refugees outside Africa, counting the existing cases of 225 persons, another 125 contingency places for Asia and the Middle East, and some 25 for Europe.

EUROPEAN REFUGEES

PLACES OFFERED - 40,000 persons

Former Yugoslavia

75.       In September and October 1992, UNHCR appealed to governments for temporary protection of Bosnian ex-detainees and their dependent family members, in urgent need of protection outside Former Yugoslavia. Over 22 countries responded by allocating quotas for some 8,700 ex-detainees plus their family members, numbering a total of about 28,000 persons.

76.       In the course of 1993, the programme was extended to include other categories of people who, for compelling protection reasons and/or due to their vulnerability or family links, need temporary protection in third countries. Some governments have allocated additional places for these groups, while others accept them within their quotas originally established for ex-detainees.

77.       At the time of writing, UNHCR had more than 40,000 places available to meet existing needs (excluding medical evacuation). As the situation is in a constant state of flux, it was decided to report on places offered instead of projected needs as has been done in other chapters of the Global Assessment.

78.       From the beginning of the operation until the end of October 1993, more than 14,300 persons from Former Yugoslavia have departed for third countries under UNHCR auspices compared to over 18,000 resettled worldwide in the first half of the year. An additional number exceeding 2,000 persons is being processed for departure and should leave by the end of 1993.

79.       The International Committee of the Red Cross (ICRC) continues to assist UNHCR in tracing family members in Bosnia who have been accepted by third countries. ICRC also facilitates their transfer to Croatia from where UNHCR, in co-operation with the International Organization for Migration (IOM), organizes their movement to countries of destination. Most countries agree to apply flexible criteria for family reunification and accept dependent family members as recommended by UNHCR. Bearing in mind the importance of reuniting families, it is essential that the Bosnians in need of temporary protection be admitted to countries where they have links. UNHCR requests governments which have exhausted their quotas or have not yet participated in the operation, therefore, to provide places for the purpose of family reunion.

80.       UNHCR is grateful for the generosity of governments in assisting in this humanitarian endeavour. The willingness of countries to apply quick and efficient procedures avoiding time-consuming processing has been an asset for this emergency operation. UNHCR counts on continued flexibility which is indispensable in such a complex exercise.

81.       Given the nature of the conflict in Former Yugoslavia, it is impossible at this point in time, to assess the requirements for temporary protection in 1994. UNHCR will, however, continue to advise governments on developments leading to the re-assessment of needs.

82.       Although UNHCR fully appreciates the commitment of governments to assist victims from Former Yugoslavia, their continued support is also needed to resettle priority groups from other parts of the world, as detailed throughout the Global Assessment.

LATIN AMERICAN REFUGEES

PROJECTED NEEDS - 60 persons

83.       Within the framework of the CIREFCA (International Conference on Central American Refugees) emphasis continues to be placed on durable solutions for Central American refugees within the region. Extra-regional resettlement is required only as an exceptional measure for security reasons, mainly for Salvadorians, as well as for family reunification of various nationalities. The same applies to refugees from South America.

84.       UNHCR extra-regional resettlement needs for 1994 for Latin American refugees total an estimated 60 persons, based on recent experience. The situation is, however, volatile in some parts of the region and UNHCR is closely monitoring the situation in countries like Cuba and Haiti.

VULNERABLE GROUPS

DISABLED, MEDICALLY-AT-RISK AND VICTIMS OF TORTURE/VIOLENCE

PROJECTED NEEDS - 1,165 cases/3,406 persons

Overview and Principal Issues

85.       The needs projected for 1993 were 1,250 cases, while a total of 1,305 cases were identified. Of the total identified cases, 95 were closed for resettlement due to various reasons, (e.g. the refugee opted for voluntary repatriation, lost contact with the UNHCR Field Office, departed by his own means, etc.). If departures continue at the present rate, the carry over to 1994 is expected to be approximately 720 cases. The projected resettlement needs in 1994 are 1,165 cases/3,406 persons (see page 33 for a breakdown by region of origin and health condition).

Africa

86.       UNHCR projects that the resettlement needs for African vulnerable refugees will be 525 cases/1,665 persons, principally Somali refugees residing in Kenya and other neighbouring countries. Places will also be needed for Ethiopian refugees from certain clans, suffering from serious health conditions, who cannot repatriate at this stage, both for security reasons and lack of medical infrastructure. To a lesser extent, resettlement will also be needed for other African nationalities.

87.       The vast majority of the Somali refugees suffer from physical disabilities resulting from war and violence against individuals, including serious chronic illnesses which cannot be addressed in Kenya. To a lesser extent, adults and children, victims of torture and other traumas, will need resettlement as specialized care for such conditions are scarce in their countries of first asylum. For both categories resettlement is often required on emergency grounds, especially due to complex cardiological, neurological and renal deficiencies.

88.       A limited number of HIV sero-positive cases have been identified and resettlement of these cases is being pursued. The majority of cases have family links in one or more countries.

South, East and South East Asia

89.       An in-depth survey is planned in all CPA first asylum countries, to identify vulnerable refugees by health condition among the pre-cut-off and post-cut-off (screened-in) populations. From preliminary results, it can be projected that 170 cases/266 persons will need resettlement. These will be mainly Vietnamese, while a few Sri Lankan refugees will also require resettlement in 1994.

90.       A detailed report will be prepared for the next CPA Technical Meeting. A special plea is made to resettlement countries to accept vulnerable Vietnamese refugees who have family or other links in their countries, but have been rejected several times. In spite of internationalization, many of them will still need reconsideration by the linked country, during the final camp clearance process.

Middle East and South West Asia

91.       It is projected that 460 cases/1,445 persons will need resettlement in 1994, principally Iraqis and Iranians from the Middle Eastern region.

92.       The majority of the Iraqi refugees are in Saudi Arabia. Registration and medical documentation of these refugees was delayed, but has now begun and has shown that a number of the Iraqi refugees suffer from physical disabilities, war-related conditions and psychological trauma as a result of torture.

93.       Vulnerable Iranian refugees in need of resettlement are predominantly survivors of torture, while others suffer from physical disabilities and/or diseases.

Conclusions

94.       Positive developments, which will lead to increased resettlement opportunities for vulnerable refugees in the long run, notwithstanding, projected resettlement needs require additional efforts as the needs are three times higher than the offers. During recent years, an average of 50 such cases have been resettled to certain countries, with flexible criteria, on family reunion grounds.

95.       To respond to the estimated resettlement needs of the serious cases the following action will be taken:

(i)         resettlement countries which already have either special programmes or reserved places under annual quotas for groups of vulnerable refugees will be requested to fulfil their commitments and consider increasing their programme capacity;

(ii)        resettlement countries which offer annual quotas, but do not reserve places for this group will be encouraged to do so;

(iii)       negotiations with resettlement countries which do not yet offer annual quotas will be undertaken to persuade them to adhere to the "Ten" or "Twenty or More Plan", whereby a commitment is made to accept ten, twenty, or more physically or mentally disabled and ill refugees with their families;

(iv)       accelerated procedures will be promoted to permit early departures of those refugees who need medical treatment and/or rehabilitation;

(v)        governments will be encouraged to give positive consideration to victims of torture/violence and those who suffer from mental disabilities or disorders.

Decade of the Disabled

96.       Between 1982 and 1992, 2,998 cases, totalling approximately 12,000 persons, suffering from physical and mental disabilities and illnesses, as well as survivors of torture, were resettled. Their resettlement was achieved principally under European special programmes, while extraordinary offers were made by other third countries under regular procedures.

97.       The graph below provides a breakdown of cases resettled by year of departure.

98.       The emergency procedures established by several countries, as well as flexibility in processing of others, were particularly useful and substantially contributed to many refugees' lives being saved and avoiding irreversible disabilities.

99.       It should be noted that the number of places offered annually for resettlement of vulnerable groups has never been sufficient, and at the end of each year several hundred cases are carried over to the next year. Physically disabled and ill refugees have always been relatively more welcomed than those suffering from mental deficiencies or illnesses. We are pleased to report, however, that as a result of continued sensitization at different levels with governments, non-governmental agencies, professional bodies, etc., resettlement of refugees suffering from mental retardation or psychiatric disorders, psychological trauma due to torture or other violence, has increased.

WOMEN-AT-RISK

PROJECTED NEEDS - 550 cases/1,665 persons

Overview and Principal Issues

100.     In 1993 a total of 530 cases were identified compared to the projected 380 cases. The difference is explained by the increased resettlement needs of Somali women-at-risk, principally from Kenya. Of the total identified cases, 15 files were closed for resettlement for various reasons, such as when women were married or joined by supporting male relatives.

101.     In 1993, one government increased its resettlement programme for women-at-risk from 260 to 400 places. Another government, working in close cooperation with non-governmental organizations, has begun an evaluation of their programme with a view to addressing problems related to overseas processing, post-arrival placement, care, rehabilitation and integration of women-at-risk.

102.     If departures continue at the present rate, the carry over to 1994 will be around 250 cases. A total number of 550 cases/1,665 persons in the women-at-risk category are, therefore, expected to need resettlement in 1994. (Page 34 provides a breakdown of projected needs by region of origin and region of asylum.)

Projected Needs by Region of Origin

Africa

103.     UNHCR projects that the resettlement needs in 1994 for African refugee women-at-risk, will be 385 cases/1,155 persons. The majority will be Somali refugees in Kenya and neighbouring countries, who have sustained rape and/or other forms of violence and who suffer from trauma. The lack of appropriate specialized care, in the country of origin, for severe cases would rule out their recovery. To a lesser extent Ethiopian, Liberian, Rwandese, Sudanese and Ugandan refugee women-at-risk will also need resettlement.

South, East and South East Asia

104.     It is projected that some 60 cases/150 persons from this area will be in need of resettlement in 1994. The majority of cases will be of Vietnamese origin.

Middle East & South West Asia

105.     It is expected that some 105 cases/330 persons from this area will need resettlement in 1994. Afghan, Iranian and Iraqi women-at-risk are not only in the region, but also throughout Europe and South East Asia. The situation of refugee women in certain countries adds to their vulnerability and protection problems due to prevailing insecurity, and lack of resources to guarantee their safety. A few places will be needed for refugee women-at-risk from other countries in the region.

Evaluation of Resettlement of Women-at-Risk from 1988 to Date

106.     UNHCR has undertaken a worldwide evaluation on progress made regarding the resettlement of women-at-risk, not only through the existing special programmes but also under regular programmes. During this evaluation the problems listed below were noted.

(i)         Emergency cases often cannot be processed by certain resettlement countries because of the exigency for interviews by overseas immigration services. In many first asylum countries, such services do not exist.

(ii)        For certain countries the processing periods in the field, subsequent sponsorship recruitment, as well as medical and security clearances, are lengthy and prevent timely departures.

(iii)       The importance given by certain countries to the socio-economic profile of the refugees, such as education, employment background, size of family, age of children and health conditions, sometimes prevents deserving cases from being resettled.

(iv)       The lack of gender-sensitive training for immigration officers, non-governmental organizations and UNHCR staff members, sometimes leads to biased identification, documentation, refugee claims, resettlement evaluation, and processing. (A recent session of the UNHCR people-oriented planning training course specifically addressed such protection concerns).

(v)        The incompatible or incomplete computerization and referral systems of certain countries, and of UNHCR Field Offices, prevent inter-action for tracing of cases, quota control and reporting statistics.

(vi)       Some countries expect sponsors to pay refugees' travel costs, and as a result, either departures are considerably delayed or UNHCR is obliged to fund these expenses, to permit the refugee's departure.

Conclusions and Recommendations

107.     The total projected needs for refugee women-at-risk for 1994 are higher than the places available under the corresponding special programmes or under regular processing in European countries. If solutions are found to the major problems outlined in paragraph 106 and new countries adhere to women-at-risk programmes, the resettlement needs of more refugee women-at-risk will be met in 1994.