UNHCR

Updated on April 23, 2005

1. UN mulling verification of Bhutanese refugees THT Apr 23/05

2. UNHCR High Commissioner's Statements, 4 October 2004

3. UNHCR moots resettling refugees abroad The Rising Nepal August 18, 2004

4. UNHCR call to resolve refugee crisis Himalayan Times August 18, 2004

5. Development assistance for refugees, host alike Kathmandu Post August 18, 2004

6. Nepal lacks political will to solve the Bhutani refugee problem: nepalnews Aug 17,2004

7. Refugees NO comeback Nation August 01, 2004

8. UNHCR High Commissioner's Statements, 29 September 2003

UN mulling verification of Bhutanese refugees

The Himalayan Times April 23, 2005

Damak, April 22: The United Nations High Commission for Refugees (UNHCR) is set to undertake the verification
process of Bhutanese refugees, which is expected to begin in the next six months in any of the seven refugee camps of Jhapa and Morang. The UNHCR is holding discussions with and consulting the representatives of Bhutanese refugees to reach a final solution. The Bhutanese refugee leaders quoted UNHCR representative to Nepal, Abraham Abraham, as saying the UNHCR had decided to initiate refugee verification. Abraham arrived in Damak three days ago to seek suggestions from the refugees living in the camps and held two separate meetings in Damak yesterday and today. The representatives, who participated in the meetings, said the refugees welcomed the decision. A participant said, “Abraham informed us about the verification process and asked us for our help in the process.” He quoting Abraham as saying the UNHCR would encourage Nepal and Bhutan to hold talks and begin the verification process within the boundaries of international rule. The issues of repatriating willing refugees and offering other alternatives to those not wanting to return after the completion of the verification process were also discussed during the sessions.

Pratap Subba, secretary of the Shanischare refugee camp, said the focus of meeting was the slashing of UNHCR support to the refugees, but did not elaborate. UNHCR’s Kathmandu office has called Abraham’s visit to the camps a regular one. The commission’s communication officer Nini Gurung said, “The visit was as per the annual calendar.” Abraham also held meetings with secretaries of the seven refugee camps, representatives of Bhutanese political parties, women and student representatives. On the slash of UNHCR support, Abraham said there were a few problems due to the price hike, but assured that the support would continue, speaking at the Timai camp in Jhapa today. The Joint Verification Team of Nepal and Bhutan completed the verification process of refugees in the Khundabari camp of Jhapa in 2003. The JVT categorised 239 refugees as expelled Bhutanese, 8,595 as having left the country voluntarily, 2,900 as non-Bhutanese, and 347 as criminals.

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UNHCR High Commissioner's Statements

Geneva, 4 October 2004

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Mr. Chairman,
Excellencies,
Distinguished Delegates,
Ladies and Gentlemen,
and in particular my friend James Morris,

I would like to welcome you all to the fifty-fifth session of the Executive Committee, particularly new members Zambia and Egypt. Our outgoing Chairman, Ambassador Boulgaris of Switzerland, has been an outspoken advocate on behalf of refugees. Even before becoming Chairman he played an instrumental role in UNHCR's Agenda for 2004 and the years to come. We will go further with Convention Plus but, dear friends, it will not be easy without Ambassador Boulgaris. We wish you well on your retirement and thank you again. As you know I am extremely grateful that your new Chairman Ambassador Herman Escudero Martinez of Ecuador made himself available at such short notice. I congratulate him and the incoming ExCom Bureau and wish them a productive year. This year Jim Morris, the Executive Director of the World Food Programme and one of UNHCR's closest partners, is our special guest. I attended the WFP Executive Board meeting last year and am pleased he is now here with us.

Emergencies and Returns

Ladies and Gentlemen,

A week ago I was in Darfur, speaking with Sudanese villagers who have been chased from their homes. I spoke with the women, their daughters, the children. Listening to them, my eyes filled with tears and my heart with anger.

Six months ago I was in Chad as we worked desperately to help refugees who had fled Sudan. Our humanitarian colleagues were fighting desperately to get access in Darfur, as they had done month after month since darkness fell over Darfur late last year. In those days, November 2003, I travelled to Sudan and, with others, spoke out. It took the international community half a year to really wake up. During those months there was a great deal of talking at the North-South negotiations and a great deal of killing in Darfur.

There is now an enquiry into the allegations of genocide, rape, and forced displacement. But for many months the only response to this was that North-South peace was the priority. The large-scale killing and clearing of villages has now ended. We finally have humanitarian access and UNHCR is also there. I listened to the victims and to my fellow humanitarians and was faced with this question: how to protect, how to reconstruct lives, and how to rebuild trust after this total darkness? UNHCR will be there with the African Union monitors, human rights colleagues, the courageous non-governmental organizations and other UN colleagues. UNHCR's role complements wider efforts by the Secretary-General's Special Representative to Sudan. We will be there in order to rebuild a minimum of trust and confidence. We were asked by the authorities in Darfur to help them and I asked them in turn to put the victims at the top of their agenda. For UNHCR, the plight of the people of Darfur has become a reality of enormous and tragic dimensions.

I travelled to the area with US Assistant Secretary of State for Population, Refugees and Migration Gene Dewey, State Secretary Stather of Germany, Ambassador Sato from Tokyo and Steffan Stenberg of ECHO. I am grateful to them and hope they will also spark the donor community. To oversee UNHCR's complex response, at mid-year I named Jean-Marie Fakhouri as the Director of Operations for the Sudan situation, including Chad. Tomorrow morning at my briefing I will go into greater detail on my mission. Elsewhere in Africa, refugees are currently coming home to Burundi at the rate of around 10,000 a month. While we will continue to assist this movement there is a pressing need to consolidate the peace process. A stable Burundi is crucial for the future of the Great Lakes region. The massacre of more than 150 refugees at Gatumba in July, along with renewed flight from the Democratic Republic of Congo in May and June, was tragic evidence that there must also be a solution found for eastern DRC, where the fate of the Banyamulenge is equally important to regional peace. I would like to commend South Africa for its determined mediation on these issues. We hope the November conference on the Great Lakes will yield positive results. I want to highlight the unprecedented number of repatriation operations in Africa. The three-year Sierra Leone return programme was completed this July after more than 280,000 people chose to go home. This past Friday we began an operation to help 340,000 Liberians repatriate as that country emerges from Charles Taylor's regime. In Angola, around 250,000 refugees have returned home since the signing of the Luena peace accord in 2002; another 200,000 remain in camps and settlements. In Eritrea, 230,000 people have repatriated in the past four years. Each of these operations is marked by particular challenges. However, all in all, Africa is on the march with repatriation. This theme was echoed at the Ministerial-level dialogue here this March, where there was a renewed commitment to enhance voluntary returns and address protracted refugee situations. There must be a similar pledge to post-conflict reconstruction and sustainable reintegration in order to break the cycle of violence. But all in all, there is good news from Africa. At this point, I am very happy to welcome His Excellency Arthur Moody Awori, the Vice-President of Kenya.

Turning to Iraq, UNHCR has helped around 14,000 refugees to repatriate from Iran, Saudi Arabia, and Lebanon. Large numbers have also come back spontaneously, especially from Iran. Minister for Migration and Displacement Warda is here with us today. I extend a special greeting to her. My Office stands ready to assist in the humanitarian reconstruction of Iraq. Security conditions though must improve drastically before this can happen.

This Saturday, the population of Afghanistan will vote in their presidential election. This truly historic event is part of the transformation of that country, brought about in large part by the people who have decided to make it their home again. Although security has deteriorated in several areas and remains a serious concern, 775,000 refugees have returned home this year so far, bringing the total since 2002 to over 3.5 million. Last month, in agreement with the Government of Pakistan, the new camps established along the border in late 2001 were closed. It proved that such an operation could be done and – importantly – that along with many returnees, a certain number of Afghans want to remain in Pakistan. In Iran, we have reduced elements of our care and maintenance programme and increased transport assistance in order to enhance returns. Our task there is to encourage repatriation while ensuring that returns remain voluntary. These developments are moving us closer to the 'Afghanistan Plus' solution, which I will return to later in my statement. Our Western Sahara challenge celebrated a breakthrough this March with the first exchange of visits between family members separated for decades by the conflict. I hope this confidence-building measure will lead to a political solution for the group which now has the unenviable distinction of being our oldest caseload.

In the Middle East, there has been no progress. This weighs heavily on our conscience and on that of many Arabs and Muslims. In an increasingly 'global' world, this situation complicates the challenge faced by Islamic States striving for modernity. My Office is addressing current crises and potential population displacement along the 'fault lines' where Islam meets non-Islamic societies, and I welcome the resolution of the Organization of Islamic Countries to organize a Ministerial-level meeting on refugee issues next year.

In Europe, last month we counted the one millionth returnee in Bosnia and Herzegovina. That is a remarkable achievement. The need now in former Yugoslavia is to consolidate the successes. While continuing returns for all those who aspire to it, we should abandon the artificial and counter-productive ambition to return all remaining uprooted people. Europe must reflect on how best to promote sustainability and stability in its south-eastern corner. The next chapter, with a different but fragile ethnic landscape, should include the prospect of eventual accession of all parts of the former Yugoslavia to the European Union. To the east, in the 15 years since the end of the Cold War, our increased presence in the Russian Federation and the CIS countries has allowed us to find solutions to a range of problems, as well as to make significant progress in capacity building in the asylum field. UNHCR will pursue recommendations from the CIS Conference follow-up in Minsk this year. However, the North Caucasus continues to be plagued by insecurity and conflict. We were appalled by the despicable atrocity recently in Beslan in North Ossetia. In a difficult security environment, we will continue to work with the Russian Federation in responding to the situation of displacement from Chechnya. We are committed to supporting the voluntary return of those wishing to go back to Chechnya together with other solutions for those not yet ready to return. More broadly, the pressing question of Chechen asylum seekers also requires a coherent response from the EU, one that will both promote stability and protect refugee rights.

Moving to Asia, I am pleased at the recent development in Myanmar which provides a basis to plan for the eventual return of 120,000 refugees in Thailand. Conditions are not yet right for repatriation, but UNHCR has now been granted broad access to areas of refugee origin in eastern Myanmar. The government of Myanmar asked UNHCR to assist the reintegration of IDPs returning from border areas within the country, and the Secretary-General has endorsed my intention to include these groups in our programmes.

Less encouraging is the situation of the Bhutanese people in camps in Nepal. At ExCom last year I said that we cannot accept that they remain there indefinitely. Developments in Nepal since have only made it more urgent to find solutions for the group. We must now redouble the search for a way out of the impasse by examining all possible alternatives, namely voluntary repatriation, even if UNHCR is not present in Bhutan; resettlement, including to countries in the region; and gradual broadening of assistance to encompass refugee hosting areas.

In Sri Lanka, the suspension of the peace talks last year has led some donors to delay contributions to the programme. UNHCR is following the peace process closely and remains committed to ensuring a fluent transition through a '4R' programme. The plight of North Korean asylum seekers is an abiding preoccupation of my Office. In China, we continue to request access to those North Koreans who are of concern to us and I would welcome the chance to discuss with Chinese authorities this issue and opportunities I see for China to assist the region. Before moving on allow me to introduce Janet Lim as my new Director for Asia and the Pacific, replacing Jean-Marie Fakhouri.

Turning to the Americas, I would like to share two positive developments with you. The first is the commemoration next month of the 20th anniversary of the Cartagena Declaration on Refugees. The event, co-hosted by the government of Mexico and UNHCR, aims to reaffirm the continued relevance of the Declaration and produce a plan of action for furthering refugee protection in the region. I hope that the spirit of Cartagena will produce a regional humanitarian response to the increased number of displaced in Colombia.

The second point is the assurance I received from the government of the United States of America that they are dedicated to increasing the number of resettlement places for refugees. We will work together to ensure that unfounded security concerns do not prevent deserving candidates from being resettled, and I thank the United States for this pledge as well as its continued broad support to UNHCR. The Bureau for the Americas will also have a new Director with the appointment of Philippe Lavanchy to succeed Hope Hanlan as of 1 December. I would like to express my deepest appreciation to Hope for her outstanding service to the organization in many capacities, and wish her well in her retirement. I would like to applaud her.

Operational challenges

I turn now to global operational challenges. One of our priorities is embodied in the 'five commitments to refugee women'. As reflected in the Progress Report shared at the Standing Committee in June, we are continuing efforts to translate these commitments into action in all our operations. Participation of women refugees in food distribution is one example. A joint UNHCR-WFP study reaffirmed the need for refugee women, as better guarantors of household assets, to take part in distributions and to have individual identity documents. We will discuss the question of food security in more detail with Jim Morris during this afternoon's panel session. We have made progress in cultivating a shared sense of responsibility for gender and age issues among staff, and reinforcing the accountability of senior managers. The multi-functional team approach to mainstreaming has now been piloted in 10 countries this year and will be applied globally in 2005. To help the gender mainstreaming process I have gladly accepted the offer by the government of Norway to create a post of Senior Advisor to the High Commissioner on Gender. Her assignment is now in effect. The Secretary-General has called for a review of the UN's global security management practices, resulting in a more integrated approach to security and its management. An internal working group led by the Assistant High Commissioner has completed a review of UNHCR procedures. The report makes 80 recommendations which complement the anticipated UN-wide changes. These will strengthen our ability to operate and perform in a safe way. UNHCR has charted a course which will enable staff to reach people in need while minimizing risk and casualties in what will remain, on average, a high-risk environment. Most important to effect this is the training designed to help all colleagues make informed decisions about operating safely and effectively in areas of insecurity. Training projects have proven to be extremely beneficial for UNHCR staff and partners. To supplement these we will expand the eCentre project, an initiative by the government of Japan which gathers humanitarian staff from several agencies with elements of the army. The eCentre has been piloted in Asia and will now be conducted in the Middle East region and in Africa. UNHCR has good security procedures and we are determined to make them even better. Last but not least, security also costs money – in the field, in offices, and in Headquarters. We trust that donors will respond favourably when we have to make additional requests, and we thank the Swiss government for its support in strengthening the physical security of our Headquarters buildings. In November last year our Protection Officer Bettina Goislard was deliberately targeted and killed in Ghazni, Afghanistan. From the sadness at Bettina's senseless killing comes a renewed determination to do everything possible to minimize the risks to our staff.

Ladies and Gentlemen,

Last year I described the outcomes of the UNHCR 2004 process. I am pleased that this undertaking culminated in the General Assembly adopting a resolution which affirms the steps we have taken to strengthen the capacity of the Office to carry out its mandate. I pledged to keep both the Secretary-General and the Executive Committee informed of the implications for the organization as we consolidate and build on this process. Let me now share with you the following.

Before the summer, as part of their regular work, the UN's Joint Inspection Unit presented proposals to UNHCR and its ExCom. The JIU highlighted three. First, the JIU has suggested a UNHCR organizational structure comprising two Deputy High Commissioners rather than two Assistant High Commissioners and one Deputy. The JIU was not aware of the approval in principle of the Secretary-General for a two AHC structure. The Advisory Committee on Administrative and Budgetary Questions also views a second AHC positively but advises to await the results of our Headquarters review before establishing the post. I agree.

Second, the JIU advised that UNHCR moves towards a biannual budget, as does the ACABQ. I agree in principle but look forward to discussing with you the timetable for possible implementation. Third, the JIU advised on the Inspector-General and his office. I have just assigned Kofi Asomani who, according to JIU criteria, has the perfect profile, to the position. Both he and I will consult with the Bureaux and, where needed, with the Standing Committee on the other recommendations. I would highlight also the recruitment of a Chief Information Officer and creation of a Division for Information Technology. UNHCR has made progress as a measurable performer using standards and indicators. We are integrating the eighth Millennium Development Goal and making strides in the areas of universal primary education, health for refugees, and mobilizing partnerships for durable solutions. Finally, we have improved our programme-support ratio and are incorporating results-based management.

Protection and durable solutions

Ladies and Gentlemen,

Turning back to refugees, in the past few years the politicization of immigration, confusion between refugees and economic migrants, and fears of criminal and terrorist networks have combined to erode asylum legislation in many States. Paradoxically, this has taken place against a backdrop of declining numbers of refugees and asylum-seekers. Although we have made significant progress in the two years since the Executive Committee endorsed the Agenda for Protection, the environment we are working in now must be described frankly as less friendly to refugees.

One of the main objectives of the Convention Plus initiative is to explore more equitable ways of sharing – not shifting – the 'burden' of asylum. The Agenda for Protection and Convention Plus is where burden sharing and permanent solutions come together. Last Friday I convened our third Forum meeting on Convention Plus. I will be brief on this. Notwithstanding new emergencies, in particular Darfur, we are finding solutions for more and more people. Step by step, the links between development assistance and refugees, self-reliance and 4R programmes are gaining acceptance. The Multilateral Framework of Understandings on Resettlement was completed this June. We are particularly grateful to Canada for seeing this process to a successful conclusion. Now it must to be put into practice. To address the issue of irregular secondary movements of refugees and asylum seekers there is a need to understand it better. The Swiss-led survey of secondary movements of Somali refugees and asylum-seekers, which is well underway, will be instrumental to that. It will also provide inputs to the proposed Comprehensive Plan of Action for Somali refugees. The political evolution in that country has given us hope that there is momentum for a durable peace.

We have produced a document entitled Basic Propositions on Irregular Secondary Movements. The elements set out there may be developed into a wider agreement on key issues to reduce irregular secondary flows, such as the allocation of responsibilities of States for refugees and asylum-seekers who move through several countries, early registration and timely access to durable solutions. The government of Denmark hosted a meeting on the targeting of development assistance, the third component of Convention Plus. The interventions by UN agencies, the World Bank, the OECD Development Assistance Committee, NGOs and donors reflected the broad support that exists for the inclusion of displacement in aid policies. In July, ECOSOC specifically encouraged States to support and fund the implementation of the 4Rs and other tools to facilitate the transition from relief to development. Targetting development assistance should also be linked to the Japan-led concept of Human Security. Our approach to durable solutions is built on the same fundamental principle – that individuals must be empowered and able to rely on themselves. Generous funding is needed to improve protection and solutions. Now in its second year, the Convention Plus unit will continue work in 2005 with the results being mainstreamed from the beginning of 2006. It has already proven effective on burden sharing and solutions and has given rise to related projects, such as the important project of registration.

The Afghanistan Comprehensive Solutions initiative began with consultations with the governments of Afghanistan, Iran, and Pakistan on the management of movements of Afghans after the expiry of the current tripartite agreements. Its goal is three-fold: define arrangements for future return and reintegration; elaborate the rights of Afghans with protection needs and other legitimate reasons not to return; and explore provisions for temporary labour migration. Initial discussions have been promising and we hope to expand aspects of the initiative to non-neighbouring countries hosting Afghan refugees. The European Union has laid the foundation for a common asylum system through a series of Directives based on the Tampere conclusions and the Treaty of Amsterdam. While these instruments now need to be implemented, the EU should also move ahead and create a genuine European asylum space. This is needed since the existing arrangements do not provide a balanced way of addressing flows of asylum-seekers, one based on responsibility and burden sharing. We are looking at various ways the EU could give substance to a common system of asylum throughout the Union which would be in the interest of both refugees and the Member States.

Next year a 2005 edition of State of the World's Refugees will focus on the results of the Agenda for Protection, the Framework for Durable Solutions and Convention Plus. This year marks the 50th anniversary of the Convention relating to the Status of Stateless Persons. Statelessness is a source of insecurity for millions of people and contradicts the universal human right to a nationality, yet just 57 States have acceded to the Convention. We will have a panel discussion this Wednesday on the question, looking specifically at practical solutions to protracted situations.

Ladies and Gentlemen,

I followed carefully the discussion in the Standing Committee on my proposal to create an AHC for Protection. It clearly aroused a lot of interest. It remains my firm conviction, from all I have seen and experienced during my tenure as High Commissioner, that the creation of this post will make a real and qualitative contribution to how UNHCR practices its protection mandate. We need to reinforce our protection strategy- and policy-making to ensure that protection considerations are properly identified and advocated for in UNHCR's operations. We need to ensure also that refugee protection considerations are strongly present in the policy deliberations and processes of the UN system. This is the rationale for the proposal, and I trust you will see it this way so we can move – in consultation with you – ahead with it.

Partnerships

The challenge of finding and providing solutions for refugees around the globe is a daunting one. To face it with any chance of success we must recognize that we, UNHCR, are not alone in the humanitarian arena and build that recognition into our operating, funding, programming, and implementing processes to mobilize others and make better use of partnerships. Along with the Agenda for Protection and Convention Plus, practising partnerships is the way we will move UNHCR forward. In June, as an example, UNHCR became the 10th co-sponsor of UNAIDS, joining other members of the UN family and the World Bank in the fight against HIV/AIDS. UNHCR will now be able to advocate more effectively to integrate refugees into host countries' HIV programmes.

We are currently evaluating the revised MOU between WFP and UNHCR. Since the MOU was signed in 2002, WFP has assumed responsibility from UNHCR for food distribution in six countries. The results of the joint review will be used to chart the best way forward. We have seconded a senior staff member to OCHA to continue the work of improving implementation of the collaborative approach to IDPs. I am pleased that the IASC has endorsed a set of revised policies on IDPs, which will be important for Humanitarian Coordinators and Country Teams. UNHCR has introduced procedures to make our own participation in IDP situations more predictable. My Office remains fully committed to supporting the Emergency Relief Coordinator and Country Teams in this area.

We have introduced measures which will give NGOs an expanded role in our protection and programming activities. A five-month Protection Learning Programme for UNHCR partners is now in its final stages. I have emphasized this inclusive approach in a recent directive to all Representatives calling for regular dialogue and cooperation with NGOs on protection matters. We will increase consultations with operational partners, both before and again after Operational Review Board reviews, in order to allocate available resources most efficiently. Donor involvement will also be enhanced in the second round of the operational review process in order to reduce gaps in humanitarian response. By opening our books to partners and inviting them to do the same, we will be better prepared to meet the needs of refugees. I have already mentioned our Headquarters Review. This important initiative is in response to your requests that we take a fresh look at organizational methods and processes at Headquarters. A core team is working with a well-respected consulting firm, experienced in work with other UN organizations, to examine our larger workforce management policies, our budget and resource allocation process, senior management decision-making, and excessive reporting requirements. To strengthen the credibility of Headquarters with governments and with our own offices, the review will look at Headquarters with a "field eye". At the request of the last Standing Committee the review will explicitly include the envisaged AHC for Protection. I am pleased to report that for the first time in recent memory UNHCR is not in a funding crisis, at least not the Annual Budget. The organization has achieved a certain measure of financial health and stability due primarily to your generous support but also to improved financial management. UNHCR has significantly improved financial planning and expenditure controls in the past few years. However, emergencies have forced us to launch several supplementary appeals this year which are still underfunded. Let me urge our donors again to support our SBs with additional contributions which are not diverted from the Annual Programme.

The funding levels over the last three years indicate that donors have responded to our commitment to enhance the performance of the organization, which I have made a central theme of my tenure. I trust this trend will continue. While UNHCR performs I would ask States to act on the principles of 'good donorship' by making predictable, consistent contributions early in the budget cycle. The refugees under our care deserve and need it.

Human resources

Ladies and Gentlemen,

The health of the organization depends fundamentally on how we manage our human resources. It is fitting that I close with a few remarks on staffing. During my tenure we have made significant progress in the management of human resources. Still, there are ways we can do better. My goal remains to improve the performance of the organization through policies which motivate and provide more certainty for staff.

To provide certainty we will review our assignment process to improve vacancy management. All staff members should be clear on their next posting when they complete their assignments. This will help us in addressing the problem of staff in between assignments, the SIBAs. We will provide more security training and need committed staff who are conscious that the proportion of hardship and non-family duty stations has increased to over 50% in recent years. Lastly, with the introduction of Fixed-term appointments for new recruits, the Office is in a better position to adjust the required workforce at any given time. To build on our strengths, UNHCR will draw on new blood by recruiting talented individuals through the Roster system. We will ensure that through the Roster we enhance gender parity and geographical diversity. Staff and managers will be accountable for performance and conduct through the systematic use of performance evaluations and a new 360-degree appraisal system. We will apply vigorous sanctions for misconduct.

We want to reward excellence, not merely longevity. Our annual promotion session takes place later this month and both managers and the board have been instructed to recognize excellence. Merit must be the primary basis for advancement. In conclusion, my goal of individual empowerment – every person counts – goes hand in hand with my goal of encouraging performance.

Thank you.

Himalayan Times August 18, 2003

Nepal News August 17, 2004

Abraham ABRAHAM, representative, UNHCR in Nepal speaking at a talk program in the capital, Kathmandu Tuesday said that Nepal lacked political will to resolve the 13-year-old Bhutanese refugee problem in Nepal. Drawing attention to the bilateral negotiations reached by Nepal and Bhutan over solutions to the refugee problem to categorize refugees in four categories in 1993 Abraham said, “ UNHCR was greatly worried about splitting of families as a result of categorization in different categories. We discussed these concerns with the Nepal’s government and were given assurances that a fair appeal opportunity would be given to refugees who would want to question their categorization.” Abraham added that the bilaterally agreed appeals process did not comply with international legal standards. The representative, UNHCR representation in Nepal, further ruling out rumors that UNHCR would gradually phase out its direct involvement in the camps said, “ UNHCR remains committed to assist Nepal and Bhutan governments to find permanent solutions to the crisis.”He further added that UNHCR was not abdicating its mandated protection role for the Bhutanese refuges in Nepal. “We intend to concentrate our efforts and expertise in protecting refugees and assisting in the search and identification of suitable and durable solutions for each of them,” he said. Abraham ABRAHAM, representative, UNHCR representation in Nepal said this at a talk program on “challenges and prospects for the resolution of the Bhutanese refugee situation” organized by the Nepal Council of World Affairs. nepalnews.com pd Aug 17 04

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High Commissioner's Statements

29 September 2003

UNHCR Website

Opening Statement by Mr. Ruud Lubbers, United Nations High Commissioner for Refugees, at the Fifty-fourth Session of the Executive Committee of the High Commissioner's Programme

Geneva, 29 September 2003

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Mr. Chairman,
Mr. Egeland,
Excellencies,
Distinguished Delegates,
Ladies and Gentlemen,

Welcome to the fifty-fourth session of the Executive Committee. I am pleased to see that the Committee continues to grow, and this year I would like to extend a special welcome to three new members, Cyprus, Kenya and Yemen.

This has been another important year for the Committee. I would like to thank the Bureau for its work, and particularly the outgoing Chairman, Ambassador Fisseha Yimer of Ethiopia. My congratulations to the incoming Bureau and its Chairman, Ambassador Boulgaris of Switzerland, with whom I look forward to working closely over the coming year. Allow me to use this opportunity to pay tribute to former High Commissioner Prince Sadruddin Aga Khan, who died earlier this year. Prince Sadruddin – UNHCR's longest serving High Commissioner – led the organization through some of its most challenging moments. Much of what we are doing today builds on the work that he did in the 1960s and 1970s. Finally, it is an honour to introduce our special guest, Jan Egeland, the new United Nations Emergency Relief Coordinator, who will be addressing you later this morning.

Iraq

Ladies and Gentlemen,

In my opening remarks last year, I welcomed another special friend of ours: Sergio Vieira de Mello, who had just returned to Geneva to take up his position as the new High Commissioner for Human Rights. Sergio - who worked for UNHCR for over 25 years – sat at this podium many times. Even before becoming Assistant High Commissioner for Refugees, he had been closely involved in the work of this Committee, not least during the period when he was its Secretary.

Sergio was a truly remarkable man. With his death in Baghdad forty days ago, the United Nations has lost one of it most inspiring leaders, refugees have lost one of their strongest advocates, and UNHCR has lost one of its greatest friends. We continue to struggle hard to come to terms with the appalling attack in Baghdad which led not only to Sergio's death, but also to the deaths of twenty-one other friends and colleagues, including Reza Hosseini, a former UNHCR staff member, and Arthur Helton, a renowned international expert on refugee affairs. Amongst those badly injured was another close friend of UNHCR's, Gil Loescher – author of an important recent book on the history of the organization.

The attack on 19 August and other serious security incidents since then have cast a shadow over this 54th Session of the Executive Committee. The environment in which we operate is changing. The United Nations is not always perceived in the way that we would like it to be. For the first time, it has been declared a legitimate target by a terrorist group. How do we operate now, after the most vicious attack on the United Nations in its history? What can we do to address the many misperceptions of the United Nations that exist, particularly in the Middle East? What contribution can humanitarian agencies like UNHCR make to this process?

Earlier this year, UNHCR drew up plans to assist with the voluntary return and reintegration of over half a million Iraqi refugees and asylum seekers, as well as with the return of some 800,000 internally displaced people. Since 19 August, this has been put on hold.

The Secretary-General has made it clear that subject to security conditions the United Nations is prepared to continue playing its full role in assisting the Iraqi people. He has also stressed that we must never be reckless with the lives of our staff. This is our challenge now – to find the right balance. Ultimately, the answers lie not in more armoured vehicles, barricades and armed guards, but in improving the overall political environment.

The United Nations – and particularly operational agencies like UNHCR – cannot operate from a fortress. Our strength lies in our ability to communicate with the people who need us, to work through local authorities, and to build up local capacities. If we cannot work with the Iraqi people and with Iraqi authorities, then we cannot work there at all.

These must be our priorities now: to build confidence in UNHCR amongst the people of Iraq; to help strengthen the capacities of Iraqi authorities; and above all, to support the work of the newly appointed Iraqi Minister for Displacement and Migration – who I am pleased to say is here with us today.

Global operations and challenges

Ladies and Gentlemen,

Turning to operations elsewhere, let me begin with Afghanistan. The Afghan repatriation operation last year was a truly exceptional one, with over two million returns of refugees and internally displaced persons. The number of returns this year has been lower, but with over half a million returns so far it remains the largest return movement anywhere in the world. This is a remarkable achievement, particularly when one considers the worsening security situation and the fact that much of the country is still in ruins after decades of war.

In spite of the difficulties that our staff have faced because of security problems, they have worked hard to keep up the momentum on returns. Most importantly, they have made considerable progress in ensuring that returnees are included in national development programmes led by the Transitional Administration and supported by development actors. This is a good example of what we are trying to achieve through the 4Rs approach – ensuring that returnees both benefit from, and contribute to, the process of national recovery.

The key now is to speed up rehabilitation and reconstruction efforts. This is vital for the stability of the country and it will largely determine the pace of future returns. The international community must stay engaged if the return and reintegration process is to succeed in the long term. There will be an opportunity to exchange views on this at the special session on the Afghan operation at 6 p.m. tomorrow.

Despite all the progress so far, millions of Afghan refugees are still living in neighbouring countries, particularly Iran and Pakistan. The patience of these countries in continuing to extend hospitality to large refugee populations while Afghanistan rebuilds itself is greatly appreciated. Finding durable solutions for these people remains a top priority for UNHCR, and over the next two years we will be working with the Governments of these countries and other partners on concrete initiatives aimed at addressing the changing situation in the region in a comprehensive manner.

Concerning the funding situation, we decreased this year's total budget for the Afghan operation from US$ 195 million to US$ 184 million to reflect the lower than expected number of returns. We cannot responsibly decrease the budget further. Yet we are entering the last quarter with a projected shortfall of about US$ 30 million. I can only appeal to all those donors who have supported our Afghan operation so generously in the past to come forward with additional funds to help us cover this shortfall. Our budget for the Afghan operation next year is considerably lower than this year's. It nevertheless accounts for a sizeable portion of our total budget, reflecting the fact that we are still expecting significant returns. The Afghan operation is now being mainstreamed, and by 2005 we will have incorporated the Supplementary Programme into our Annual Programme Budget.

Ladies and Gentlemen,

Let me turn now to Africa. In Angola, about 160,000 refugees have returned home in the last year, including some 30,000 who were assisted by UNHCR. Almost half a million others are eager to return, but the country remains devastated after 27 years of civil war. We have an opportunity today to put an end to yet another of Africa's biggest and most protracted crises of displacement and I hope that donors will continue to generously support our repatriation programme. At the same time, I hope that we will see a commitment by the Angolan Government to invest its own funds in rehabilitation and reintegration efforts.

In the Democratic Republic of the Congo, the political process has taken a significant step forward with the installation of a transitional government. While parts of the country remain insecure, other parts have seen a considerable improvement in the overall situation. I hope that we will soon be able to assist with the voluntary return of refugees to these places. Meanwhile, a faltering peace process in Burundi has meant that over 300,000 Burundian refugees and almost 400,000 internally displaced people still have limited prospects of returning home in the near future.

I had to cut short my recent mission in Africa following the attack in Baghdad, but I am hoping to go back and visit Tanzania and Burundi before the end of the year. Finding durable solutions for the refugees in Tanzania remains a top priority for my office. I have also been following with interest recent developments in the Sudanese peace talks. In contrast to the positive momentum towards peace in southern Sudan, the ongoing fighting in the Darfur region in northern Sudan is of serious concern. Fighting has already led to the exodus of some 65,000 refugees to Chad, as well as to considerable internal displacement. Every effort must be made to put an end to this new conflict.

In Liberia, there has been a marked improvement in the situation since the ousting of Charles Taylor and the deployment of ECOWAS peacekeepers. But tensions remain high in many parts of the country, and I welcome the recent Security Council resolution establishing a UN-mandated peacekeeping force, which is urgently needed if further displacement is to be avoided. A paper outlining our strategy in Liberia for the coming months is available. In the case of Sierra Leone, my Office continues to facilitate the voluntary return of Sierra Leonean refugees from Liberia. However, more support for Sierra Leone's reconstruction efforts is needed if such returns are to continue and be sustainable.

Turning to Asia, a top priority for my Office remains that of resolving the stalemate on finding solutions for over 100,000 Bhutanese people in camps in Nepal. Despite all my Office's attempts to assist Bhutan and Nepal to identify acceptable solutions for these people, we have not been able to participate in the joint Bhutanese-Nepalese process of verification of these persons; neither have we been granted access by the Government of Bhutan to areas of potential return.

This is totally unacceptable. I have therefore decided to take three key measures. First, since the Nepalese Government has offered to settle those willing to remain and to grant them citizenship, my Office will promote self reliance projects to facilitate their integration and will gradually phase out its direct involvement in the camps. Second, my Office will support resettlement initiatives for vulnerable cases. Third, because of the denial of access to UNHCR in Bhutan, making it impossible for us to monitor the return process, we will not promote returns. My Office will, however, assist in verifying that returns from Nepal are voluntary. In Bhutan, the right of return must be respected. I urge States, and particularly neighbouring India, to assist Bhutan and Nepal to identify just, humane and durable solutions for all of these people.

In China, the plight of North Koreans who leave their country illegally remains a serious concern. For a number of years UNHCR has been making efforts to obtain access to them, but this has consistently been denied. An analysis of currently available information recently carried out by our Department of International Protection concludes that many North Koreans may well be considered refugees. In view of their protection needs, the group is of concern to UNHCR. For those in need of assistance, UNHCR is ready to work with partners in meeting their needs. Above all, the principle of non-refoulement must be respected.

In the Americas, the humanitarian situation in Colombia remains of great concern. Over 100,000 more people have fled their homes in recent months, bringing the total number of internally displaced people in Colombia to well over two million. My Office continues to play a central role in coordinating the UN response to the IDP situation.

In Europe, a recent visit to the Northern Caucasus by our Goodwill Ambassador, Angelina Jolie, helped to raise awareness of the difficulties being faced by the displaced Chechen population. Pressure is once again being put on them to leave Ingushetia and return to Chechnya. In response I have proposed a two-pronged approach. I have insisted that the displaced continue to be guaranteed a viable safe haven in Ingushetia until they judge that conditions are conductive for their voluntary return. Meanwhile, I have agreed to commence a series of pilot projects in Chechnya aimed at enabling the sustainable reintegration of those who wish to return.

In European Union countries, the asylum debate has been intense. On the positive side, this has prompted new thinking on ways of enhancing refugee protection in regions of origin. UNHCR has participated actively in discussions on the subject, as there are many points of convergence with the Agenda for Protection and our Convention Plus Initiative. The Thessaloniki Summit was encouraging and I hope the EU will ensure a practical follow-up when it comes to sharing the burdens faced by developing countries hosting large refugee populations and focusing on achieving durable solutions. On the negative side, the highly politicized environment in which much of the asylum debate has taken place has prompted increasingly restrictive measures in many areas of asylum law and practice. It has also complicated the process of EU harmonization of asylum policies. I continue to urge Governments of EU countries not to lose sight of their aim of turning Europe into a common "asylum space". Without harmonization, human trafficking and "asylum shopping" will only continue, to the detriment of both those in need of protection and of the individual States concerned.

The "UNHCR 2004" process and the "Convention Plus" initiative

Ladies and Gentlemen,

During my first year as High Commissioner I set up a process known as "UNHCR 2004". Its aim was to review how UNHCR is situated within the United Nations system vis-à-vis States and partners, and to determine how it could be better positioned to carry out its mandate.

The report has now been finalized and will shortly be submitted to the Third Committee of the General Assembly. The consultations that took place over the last nine months guided me in the preparation of the report. A draft was also shared with the Secretary-General and relevant bodies within the United Nations system. The final report reflects their comments and has their endorsement. I would like to thank all those who committed so much time and energy to this process, and particularly Ambassador Boulgaris for his skilful leadership of the consultations process, and Paula Lynch, the Rapporteur, for so successfully steering the negotiations on the draft conclusion.

There will be a panel discussion this afternoon on implementation of the conclusions in the report, so I will not go into this in detail now. But allow me to highlight a number of key issues that have arisen during the "UNHCR 2004" process.

With a growing understanding of the important interconnections among peace and security, humanitarian action, human rights and development policies, it is clear that my Office needs to create more effective linkages both within and outside the United Nations system. It is a pleasure to have with me on the podium today the new United Nations Emergency Relief Coordinator, whose Office plays the central role in ensuring well co-ordinated United Nations' responses to humanitarian crises. I intend to work closely with Jan in improving strategies aimed at ensuring better preparedness, timelier interventions and more comprehensive delivery of services and solutions, both for refugees and for internally displaced persons. I will also continue to focus on strengthening UNHCR's engagement with the peace and security pillars of the United Nations – particularly the Departments of Political Affairs and Peace-keeping Operations – and with the development actors. Over the last year I have strengthened the UNHCR Office in New York as a step in this direction.

Concerning situations of internal displacement, I remain convinced that there is a strong need for more predictability in the UN response. My Office will continue to work closely with OCHA, others in the UN system, operational partners such as ICRC, and NGOs in addressing the needs of the internally displaced. Over the last year we have been focusing increasingly on post-conflict situations, where there are clear linkages between repatriation of refugees and returns of internally displaced persons.

Another important theme during the "UNHCR 2004" process has been that of enhancing prospects for finding durable solutions for refugees. The Framework for Durable Solutions, which has been shared with you, brings together three initiatives we have developed in recent years: "DAR" (Development Assistance for Refugees), "4Rs" (Repatriation, Reintegration, Rehabilitation and Reconstruction) and "DLI" (Development through Local Integration). I count on the continued support of donors for these initiatives.

As the Secretary-General pointed out in his recent Report on the Work of the Organization, there is a wide gap between the rhetoric of inclusion and the reality of exclusion. In the case of refugees and returnees, until now they have all too often been excluded from the development agenda. It is time to reverse this trend. UNHCR recently joined the United Nations Development Group, and I hope this will help us to ensure that refugee needs are kept firmly on the development agenda. Responding to the HIV/AIDS pandemic, we are also seeking co-sponsorship of UNAIDS.

Another central theme of the report is that of ensuring that the rights of refugees and asylum seekers are respected and that their special needs are met within the broader context of migration management. Over the past year, many States have expressed interest in finding ways to manage migration flows in a more orderly and systematic manner. This has led to new initiatives, and UNHCR is now an active participant in a number of these. The Secretary-General has himself identified international migration as a priority issue for the United Nations.

Together with our partners, we will continue to develop policies relating to the nexus between asylum and migration. UNHCR will also continue to strengthen its strategic alliance with the International Organization for Migration (IOM), on the basis of a clear division of labour. Last month our two organizations joined with the International Labour Organization (ILO), the Office of the United Nations High Commissioner for Human Rights (OHCHR) and the United Nations Office on Drugs and Crime (UNODC) to form the Geneva Migration Group. We hope that the United Nations Conference on Trade and Development (UNCTAD) will also soon join the group. Through the Geneva Migration Group, I hope that we will be able to improve cooperation and develop a broader understanding of the activities undertaken by different agencies during the various stages of the migration cycle.

The deliberations on UNHCR's governance structure during the "UNHCR 2004" process centered on how to give a higher profile to the refugee issue. My initiative of convening a ministerial meeting every five years is aimed at strengthening its multilateral character. Likewise, the proposal to streamline the reporting requirements is aimed at enabling my Office to bring the refugee issue to ECOSOC and the General Assembly in a more meaningful manner. I trust your governments will support these measures to strengthen the capacity of my Office when the General Assembly decides on this later in the year.

Concerning the recommendations on funding in the "UNHCR 2004" report, I intend to begin implementing the 30% Base Level model with those countries that wish to apply it. I will keep you regularly informed on this pilot project. As for UNHCR's share of the United Nations Regular Budget, I count on the continuing support of Executive Committee members to support additional incremental increases.

One of the indirect outcomes of both "UNHCR 2004" and the Global Consultations process is the "Convention Plus" initiative. This is all about enhancing burden sharing and achieving durable solutions for refugees through special agreements. Since the inaugural meeting of the Forum in June this year, we have made considerable progress. Denmark and Japan will shortly co-host a meeting amongst a number of interested States on the targeting of development assistance to help achieve durable solutions for refugees in regions of origin. Switzerland has agreed to facilitate discussions on how to deal with secondary movements of asylum-seekers and refugees, and Canada will soon co-host a meeting on how resettlement can be used more strategically.

We are also making progress in developing criteria for identifying specific situations which may become Convention Plus initiatives, drawing on lessons from recent experience in places like Afghanistan, Angola and West Africa. A range of situations are already being considered on the basis of these criteria, including new refugee emergencies, major repatriation operations and protracted situations. I am confident that a number of these lend themselves to the development of multilateral special agreements. I intend to convene another meeting of the Forum in conjunction with the first meeting of the Standing Committee in 2004, and I look forward to a detailed discussion of these issues on that occasion.

Performance and management

Ladies and Gentlemen,

In all our operations, our effectiveness depends on our ability to ensure quality performance and management. Let me end, therefore, with a few words on this.

On human resource management, last year I announced my intention to conduct a thorough review aimed at improving existing policies. I am pleased to report that we have made significant progress in this area. I recently approved a new human resource policy which includes an enhanced role of the Appointments, Postings and Promotions Board, the introduction of an annual promotions session, revised policies on contracts, postings and rotation, and a new strategy for recruitment.

The new policy clarifies the joint responsibilities of staff members, managers and the Board to ensure that vacancies are filled in a timely manner and that the most suitable candidates are appointed. It introduces new mechanisms to minimize the number of staff members in between assignments and to maximize the contribution of staff members who occasionally find themselves in this situation. In revising policies on promotion and on indefinite appointments, the bottom line has been that of ensuring that good performance is rewarded and that underperformance is properly addressed. The recruitment policy includes the establishment of a roster, which will make it easier for those who have already gained valuable experience as General Service staff, Junior Professional Officers or United Nations Volunteers, to be appointed to posts in the international professional category.

We have taken a number of steps to enhance transparency and accountability in the management of our operations, by strengthening our internal oversight capacity. My Inspector General's office now has a dedicated investigative capacity and is currently looking into some 60 allegations of misconduct involving either our own staff or the staff of implementing partners. The tenfold increase in this area in recent years is a reflection of the improved mechanisms we now have in place. I believe it is also a result of the increased confidence of staff, partners and refugees in bringing forward complaints. Through the Inspector General's office and our internal auditors, we will continue to send a strong message of deterrence to those whose actions may otherwise damage the reputation of the entire Office. This applies equally to misconduct, mismanagement and waste of resources.

We recently launched our revised guidelines on preventing and responding to sexual and gender-based violence. The revised guidelines are intended not only for UNHCR staff but for all humanitarian and development partners working with refugees and other displaced people. They are an important milestone in our attempts to ensure better delivery of protection and assistance to refugee women and children. Accountability and the prevention of sexual and gender-based violence are also prominent themes in regional protection management workshops now being conducted by our Department of International Protection.

We have also made progress in revising our administrative systems. The Management Systems Renewal Project, for example, is a crucial part of our ongoing efforts to modernize and strengthen management capabilities through the latest technology. It also reflects our continuing commitment to ensure the most efficient use of the resources provided to us by donors.

On financial management, let me start with some good news: there has been a modest but steady increase in contributions since 2001. This is encouraging, and I am grateful for all your continued support. The increase in contributions is partly a reflection of the large Supplementary Programmes that we have had. I am particularly grateful to those donors who have increased their total contributions to UNHCR over this period. I also appreciate the efforts that donors have made this year to make their contributions to UNHCR early on. This has facilitated our work.

The bad news is that we had to make two budget cuts this year. Unlike last year, we made these two cuts early in the year. First, we reduced the level of allocations by US$ 54 million and froze some US$ 37 million of the Operational Reserve. Then we made additional cuts to compensate for increased costs of some US$ 42 million due to exchange fluctuations and UN salary increases. Even though Headquarters and administration took the brunt of these reductions, they also inevitably had a negative impact on our protection and assistance activities.

Although we are in a better position than we were this time last year, we still need US$ 56 million in fresh contributions toward the 2003 Annual Budget if the risk of further cuts is to be completely avoided. I appeal to you to assist in closing this gap. We cannot afford to make further cuts this year.

In the past, donors have on many occasions offered additional funds for activities not specified in the UNHCR budget. This year, in cases where such activities are in line with our mandate and would clearly be beneficial to refugees and other persons of concern, I intend to accept such funds and implement the programmes. Internal procedures have been adjusted for this purpose on a pilot basis for 2004.

The 2004 Annual Budget that I am presenting to the Executive Committee for approval is US$ 955 million. This is significantly higher than in recent years. The main reason for this is that many of the activities which have been funded through Supplementary Budgets over the last few years are being absorbed into next year's Annual Budget, in accordance with our financial rules.

While the overall level of contributions to UNHCR has steadily increased each year since 2001, the amount of funding received for the Annual Budget has remained relatively constant. This trend will need to change if next year's higher than usual Annual Budget is to be adequately funded. I count on your support in funding the 2004 Annual Programme Budget.

Ladies and Gentlemen,

Over the last three years I have set in motion various initiatives aimed at strengthening UNHCR's partnerships. An important innovation introduced this year was that of inviting partners at the country level to work more closely with UNHCR in assessing needs, setting objectives and preparing budgets. The idea is to move away from the resource-driven budgeting of recent years towards a more needs-based approach.

In planning next year's activities, I have asked staff in the field to focus on three key areas: first, making better use of services provided by partners in cases where they are able to carry out activities in a more cost effective manner than UNHCR; second, exploring opportunities for partners currently funded by UNHCR to continue the same activities with funding from other sources; and third, supporting – other than financially – projects aimed at meeting unmet refugee needs not included in the UNHCR budget. A copy of the message that I sent to staff describing this process is available. Ultimately, this is not just about funding; it is about adopting an entirely new approach to the whole concept of partnership. It is about putting refugees first, and institutional needs second. We will continue to strengthen our relations with the NGO community and international organizations, drawing on their expertise and capabilities and looking for further ways to enable them to provide input into our policy-making. I would like to thank NGOs for the many constructive ideas put forward at the "Pre-Excom" meeting last week, which I was sorry to miss.

Ladies and Gentlemen,

Finally, as many of you already know, Mary Ann Wyrsch, my Deputy High Commissioner, will be leaving us in December. Mary Ann informed me of her plans to leave UNHCR for reasons which are both personal and professional in nature, and I have agreed to her wishes, although not without regret. I would like to thank her for the vital contribution that she has made to the work of the organization, particularly on the management side, over the last three years. We will all miss her. On behalf of everyone in UNHCR, I wish her every success in the future.

Thank you.