20 - 26 December 2001
Issue No.565
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Al-Ahram Weekly Online 20 - 26 December 2001 Issue No.565 |
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Everywhere but home
For the stateless and dispossessed, the UNHCR is often the only hope. Fifty years after its formation, the compassion that brought this agency into being is needed more than ever, writes Amira El-Noshokaty
In the wake of World War I, the global map was changed beyond recognition, altering the lives of millions and giving birth to a massive refugee crisis. The response was the United Nations refugee convention of 1951, which established the United Nations High Commissioner For Refugees (UNHCR) as a subsidiary organ of the UN.
Today, the world population stands at an estimated 6.2 billion; more than 22 million are refugees. The UNHCR, celebrating 50 years of aid to the displaced victims of persecution and war, remains a vital agent in fighting off the burgeoning refugee problems the world over.
"Every one has a right to seek asylum," declares Karim Atassi, senior external relations officer for the Middle East at the UNHCR. Countries that ratified the 1951 refugee convention are required to have a national system that both receives and accommodates refugees -- although this is not always the case. Those who have fled their nation of origin take a desperate risk, gambling on making a convincing case for their asylum.
Those applying for refugee status are assessed by the UNHCR through a standard procedure that deals with each case on an individual basis. The UNHCR offers those given refugee status legal protection, namely, residence permits and refugee identity cards. Material assistance, like a monthly financial stipend, medical care, education and training courses, are also provided.
Who is a refugee? "A refugee is a person who has left his country for fear of persecution," Atassi told Al-Ahram Weekly. "His life and freedom are seriously endangered because of his race, religion, nationality, political beliefs or membership in a certain social group." Unlike the economic migrant, a refugee cannot return to his country of origin for fear of being prosecuted.
In 2001 the number of refugees in Egypt reached 7,000. Half of these are Sudanese and the majority of the remaining 50 per cent are Somalis (see related articles). Refugees are granted monthly financial assistance ranging from LE100 to LE600, depending on the individual and his case assessment. An estimated 35 per cent of refugees in Egypt are under the age of 18 and consequently, the UNHCR sponsors an education through high school. "For those who do not have a grip of the Arabic or English language, or have no papers to verify their schooling status, there is a special system," explained Sherif Fatouh, a UNHCR officer who has been working on the programme since 1993.
Ever since the early 1990s, the UNHCR has worked with "implementation partners" like the Saint Andrews Church, in Cairo's downtown Al- Isaaf district. At Saint Andrews, the UNHCR organises education classes for students from six to 16 years old. The classes aim to prepare children for entry into the mainstream schooling system. Vocation training is also offered, including classes in computer skills, first aid, sewing and handicrafts.
According to Atassi, a card for refugees issued by the Egyptian government became standard procedure in 1998. The move was hailed as a considerable achievement as Egypt is the first country in the Arab world to introduce this type of identity card. "Prior to this, refugees didn't have anything," says Atassi. "They were registered at our office. There was no ID recognised by the government of Egypt. Now this residence permit is a card that allows them to stay in Egypt and is fully endorsed by Egypt."
Another big step forward is the right for the children of refugees to have access to Egyptian public schooling -- a right that was obtained only a few months ago and will hopefully be implemented quickly.
The process of developing a body of international law, conventions and guidelines to protect refugees began in the early part of the 20th century under the League of Nations. On 1 January 1951 the UNHCR became functional and on 25 July of the same year the UN General Assembly approved the convention relating to the status of refugees. Since then, it is estimated that the UNHCR has serviced 50 million refugees.
It has never been an easy mandate to fulfil, given the complexity of dealing with political sensitivities, government agendas and organisational red tape. One salient example was the refugee crisis created by the Bosnian war. UN Secretary- General Kofi Anan described the safe havens as "lacking safety and protection, in accordance to the International Human Law." Atassi, commenting on the crisis, recalls the vulnerability of the UNHCR staff. "We were there to protect refugees, but we were directly attacked and 11 of our colleagues were killed," he recounted. "We came to protect people and ended up needing protection ourselves. It was a degradation of the international and humanitarian principle."
The UNHCR says it prefers to deal with governments as they are often forced to abide by some semblance of international law and the codes of conduct that protect humanitarian workers. Increasingly, however, the agency finds itself dealing directly with militias and political groups that do not consider themselves bound by these standards. "Last year we had three of our colleagues killed in East Timor and West Africa. Others were kidnapped," says Atassi, adding that "Humanitarian assistance to displaced people is becoming more and more dangerous for humanitarian workers."
UNHCR has a staff of over 5,000 personnel helping some 22.3 million people in more than 120 countries. These are the men and women who run a complex asylum network. In many cases refugees will reside temporarily in countries considered a stepping stone to their final destination. In some cases, the job of an UNHCR office is to integrate refugees into a country; at other times, they may send them on to a third country (12 to 15 countries open their doors annually to accept refugees). In some cases, the UNHCR will investigate the possibility returning the refugee to his or her home country. In this case, short-term services are offered in the home country to assist the re-assimilation process.
The Cairo UNHCR office has resettled some 1,600 refugees this year. Last year the number was around 3,000. "Egypt is the first country in the Arab region that could begin taking over refugee status determination," explains Atassi. This means that the government will be interviewing asylum seekers, assisting refugee claims and taking final decisions on refugee status. "In principle, the decision is there, we are now discussing the practical steps and phases with the Egyptian authorities," he added, noting that this does not mean that the UNHCR will abdicate its role in the region. "We will continue to be here in Egypt with the refugees and with the Egyptian government, but our role will change."
In the last half-century, the UNHCR has expanded to spread its services throughout the world, earning it two Nobel Peace Prizes, in 1954 and 1981. Funded almost entirely by voluntary contributions -- principally from governments but also from inter-governmental organisations, corporation's and individuals -- it is estimated that the agency has provided assistance to at least 50 million people. Headquartered in Geneva, the UNHCR has offices in more than 140 countries worldwide.
Among the major contributors to UNHCR funds are the United States and European countries. The UNHCR's annual budget for the year 2001 is $850 million -- $1.5 million of which is targeted for UNHCR work in Egypt. According to the UNHCR, contributions from North America, Japan and Western Europe made up 97 per cent of all contributions to the agency in 1999. However, nothing is free: contributing countries will often earmark money for specific projects that reflect national priorities. Only 20 per cent of donated money is not earmarked, a topic of constant and heated debate within the UNHCR.
This practice leads to enormously skewed aid. Some 90 per cent of the former Yugoslavia's requirements were met thanks to Western aid, while only 60 per cent of Africa's were. Yugoslav refugees may receive monthly financial aid of up to $120, while an African refugee may only get $30. "We try to convince our donors to give to the areas that need most help," assured Atassi.
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