| United Nations | A/50/413 |
General Assembly
Distr. GENERAL
7 September 1995
ORIGINAL:
ENGLISH
Fiftieth session
Item 111 of the provisional agenda*
REPORT OF THE UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES,
QUESTIONS RELATING TO REFUGEES, RETURNEES AND DISPLACED
PERSONS AND HUMANITARIAN QUESTIONS
Assistance to refugees, returnees and displaced persons in Africa
Report of the Secretary-General
Introduction
1. By its resolution 49/174 of 23 December 1994, the General Assembly,
inter alia,
(a) Called upon the Secretary-General, the High Commissioner, the
Department of Humanitarian Affairs of the Secretariat and United Nations
humanitarian organizations to continue their efforts to mobilize
humanitarian assistance for the relief, repatriation, rehabilitation and
resettlement of refugees, returnees and displaced persons, including those
refugees in urban areas;
(b) Called upon Member States and intergovernmental and non-governmental
organizations to continue to provide the necessary support and financial
assistance to the High Commissioner to enhance her capacities and abilities
to implement emergency operations, care and maintenance activities and
repatriation and reintegration programmes for the benefit of refugees,
returnees and, as appropriate, certain groups of internally displaced
persons;
(c) Requested the High Commissioner to continue her efforts with the
appropriate United Nations organizations, the Organization of African Unity
and
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* A/50/150.
95-27227 (E) 121095/...
*9527227*
intergovernmental, governmental and non-governmental organizations to
consolidate and increase essential services to refugees, returnees and
displaced persons;
(d) Also requested the High Commissioner to review her general
programmes in Africa, taking into account the increasing requirements in
that region;
(e) Appealed to Member States and international and non-governmental
organizations to provide adequate financial, material and technical
assistance for relief and rehabilitation programmes for the large number of
refugees, voluntary returnees and displaced persons and victims of natural
disasters and to the affected countries;
(f) Expressed deep concern at the serious and far-reaching consequences
of the presence of large numbers of refugees and displaced persons in the
countries concerned and the implications for the security environment and
their long-term socio-economic development;
(g) Called upon the international donor community to provide material
and financial assistance for the implementation of programmes intended for
the rehabilitation of the environment and infrastructure in areas affected
by refugees in countries of asylum;
(h) Requested the Secretary-General to continue his efforts to mobilize
adequate financial and material assistance for the full implementation of
present and future projects in rural and urban areas affected by the
presence of refugees, returnees and displaced persons.
I. ACTION TAKEN BY THE OFFICE OF THE UNITED NATIONS
HIGH COMMISSIONER FOR REFUGEES
Overview
2. Since the General Assembly adopted resolution 49/174 on 23 December
1994, Africa has continued to be plagued by refugee crises. The continent
currently hosts nearly 50 per cent of the world's refugees. This year,
UNHCR assisted nearly 8 million refugees in Africa, as well as almost 5
million internally displaced persons and returnees.
3. During the reporting period, the main causes of population
displacements and refugee flows were man-made, provoked by political,
ethnic and economic conflicts. Widespread famine, insecurity, violence
exacerbated by poverty, and environmental degradation also incited new
population movements.
4. Following the massive exodus of more than 2 million people from Rwanda
to neighbouring countries last year, the situation in the Great Lakes
region throughout the reporting period remained extremely fragile and
displacement continued. Abuse of human rights, violence, uncertainty and
insecurity have been widespread. Refugee flows also continued in other
parts of Africa, most notably in Liberia, Sierra Leone, Somalia and the
Sudan, with little hope of an early solution. The number of those in need
of protection and assistance grew daily. The traditional generosity
towards refugees in Africa has become strained. Thus, the institution of
asylum is under threat, and more restrictive policies and practices are
becoming evident in a number of countries.
5. In at least two major incidents in early 1995, borders were closed to
refugees fleeing danger in their countries of origin. Large numbers of
refugees have been forced to return to the life-threatening situations from
which they fled. Some have been killed in refugee camps, others have been
brutally attacked and terrorized. In several cases, Governments have
expressed their inability to receive new or additional influxes. In other
cases, they have been reluctant to receive refugees from countries not
immediately adjacent to them.
6. In spite of this sombre picture, the peaceful democratic changes that
have occurred in several parts of Africa have created opportunities for
large numbers of refugees to return to their homes. There are improved
prospects for voluntary repatriation of refugees and reintegration of
returnees. Today, nearly all of the 1.6 million Mozambican refugees to
whom UNHCR was providing assistance have returned home. In the Horn of
Africa, over 600,000 Ethiopians have returned from Djibouti, Kenya, Somalia
and Sudan since 1991. The repatriation of Eritrean refugees is under way,
with some 25,000 having so far gone back under a pilot programme which
started in November 1994. In May this year, the repatriation of 8,000
Chadian refugees from the Central African Republic was completed. UNHCR is
currently finalizing arrangements for the voluntary repatriation of the
Togolese refugees in Benin and Ghana.
7. The Office also is following closely developments in Mali, in the hope
that the 150,000 Malian refugees of Tuareg origin in Algeria, Burkina Faso
and Mauritania will soon be able to go back home. The peace process in
Angola, which should pave the way for the 300,000 Angolan refugees in the
Congo, Namibia, Zambia and Zaire to repatriate, is also a source of
encouragement to UNHCR. Planning for the operation has been completed in
close consultation with the Government of Angola and with the neighbouring
host countries. A series of agreements has been concluded between the
concerned Governments and UNHCR, concerning the process of return and
reintegration.
8. Whether in the case of Eritrea or Angola, Mozambique or Ethiopia,
refugees are returning to countries in the process of profound change, to
villages which have been devastated by war, homes which have been
destroyed, schools and hospitals left in ruins, roads and fields heavily
mined. The reintegration of returnees is a major challenge under these
circumstances but, given the mandate of UNHCR, what it can do is limited.
As in the case of Mozambique, UNHCR has set up small-scale quick impact
projects (QIPs) that promote self-sufficiency of returnees and their
communities. But these fall far short of the overall needs.
9. More comprehensive, timely and sustained efforts are needed to
rehabilitate war-torn societies. They must be comprehensive in order to
address both the range of needs faced by the country and the diversity of
beneficiaries, whether they be returning refugees, internally displaced or
those who remained behind. The efforts must be timely because peace is most
fragile in its infancy, and must be seen to pay early dividends to those
who are most affected by war or conflict. While recognizing the work of
development agencies and financial institutions, the international
community must press for new means and methods to respond faster and to
meet rehabilitation needs earlier. Development should not follow in the
footsteps of humanitarian relief but, wherever possible, should be launched
simultaneously, and in a complementary and mutually supportive manner.
Most importantly, for peace to be consolidated, development and
rehabilitation resources must be provided in a sustained manner.
10. The persistence of population movements and refugee flows calls for a
comprehensive approach focusing on three principal elements: prevention,
the adverse impact of refugees on asylum countries, and the search for
durable solutions.
(a) Prevention. Poverty, environmental degradation, population
pressures and competition for scarce resources often fuel ethnic, social,
political and religious tensions. They, in turn, provoke violence which
leads to refugee flows. Therefore, economic development is essential for
the prevention of refugee problems. But this cannot be pursued in
isolation from political efforts to promote respect for human rights, the
rule of law and accountable governance;
(b) Impact on asylum countries. The impact of displacement on countries
of asylum is often damaging to the local socio-economic infrastructure and
to the natural environment. Countries like the United Republic of Tanzania
and Zaire, hosting large numbers of refugees, cannot be expected to bear
fully this burden without the financial support and solidarity of the
international community. However, international assistance does not
compensate for the collateral negative impact of refugees on the host
country. A concerted effort on the part of the international community to
provide comprehensive development assistance would relieve, to some degree,
the considerable strain often caused by large refugee populations on their
host countries. While acknowledging the burden borne by asylum countries
and the generosity which they have shown, the application of more
restrictive policies and practices by some countries has been a cause for
concern. The High Commissioner has urged Governments to continue to
receive refugees and to provide them with the safety and protection they
need, in accordance with internationally recognized principles;
(c) Durable solutions. Development is crucial in promoting durable
solutions to refugee problems. The prospects for voluntary repatriation,
the most favoured durable solution, are considerably improved when refugees
have some assurance of assistance in rebuilding their home communities.
Large-scale population movements, as most recently experienced in the Great
Lakes region, threaten regional peace and security when left too long
unresolved. Successful voluntary repatriation depends on political action
to achieve peace, and economic action to rehabilitate war-torn societies.
West Africa
11. The refugee situation in West Africa has continued to be characterized
by further substantial outflows, including 170,000 Liberian refugees into
Cote d'Ivoire and Guinea, as well as some 50,000 Sierra Leonean refugees
into Guinea. In response, UNHCR mobilized and provided emergency
assistance to these new groups of refugees.
12. Although no efforts have been spared to establish peace and
stability, and to find a lasting solution to the humanitarian crisis in
Liberia, attempts to restore peace have failed during the reporting period,
despite the full deployment of the West African Economic Community
Monitoring Group (ECOMOG) and the United Nations Observer Mission in
Liberia (UNOMIL) in the country. The reconciliation initiative brokered by
the leaders of the Economic Community of West African States (ECOWAS) never
really went into effect, despite the signing of the Akosombo Agreement on
12 September 1994 by the Liberian warring factions. Instead, hostilities
increased in the north-eastern region, forcing Liberians to flee into
neighbouring countries. As a result, the prevailing precarious security
conditions made it impossible to implement the planned organized
repatriation. On 20 August 1995, leaders of all Liberia's warring factions
met at Abuja and signed a peace accord. It is hoped that this may lead to
improved security in Liberia, which could allow UNHCR to begin its long-
planned voluntary repatriation programme for displaced and exiled
Liberians. However, some spontaneous return continued despite the
prevailing uncertainty and violence. In 1994, UNHCR assisted 6,700
spontaneous returnees from neighbouring countries. The repatriation of
Sierra Leonean refugees has also been adversely affected by intensified
conflict and the continuing state of insecurity in the country.
13. While overall developments in the region give cause for concern, there
is now renewed hope for the organized voluntary repatriation of Togolese
refugees from Benin and Ghana, and of Malian Tuareg refugees, who have
begun to return spontaneously to northern Mali. UNHCR is closely
monitoring these developments with a view to planning assisted return and
reintegration programmes.
The Horn and Eastern Africa
14. Throughout the Horn of Africa, large-scale situations of internal
displacement, ethnic conflict, drought, and refugee and returnee
emergencies take place in the context of poverty and environmental
degradation. The resulting immense humanitarian needs require imaginative
and flexible approaches in the planning of assistance programmes, resource
mobilization and cost-effective means of delivering assistance to all those
in need.
15. Since the beginning of 1994, a number of donor Governments, member
States of the Intergovernmental Authority on Drought and Development
(IGADD), United Nations agencies, as well as non-governmental organizations
(NGOs), have developed various initiatives addressing the political,
humanitarian, social and economic development concerns of the region.
UNHCR is following these initiatives with the intention of formulating a
conceptual framework and programme for durable solutions in the region.
The framework would focus on voluntary repatriation of refugees and the
linkage of returnee operations to national and regional programmes,
benefiting all categories of persons in need in the same geographical area.
16. A major repatriation operation of camp-based Ethiopian refugees was
implemented from September 1994 to March 1995. During this period, about
17,000 refugees repatriated voluntarily from Camps in Djibouti through
UNHCR's organized movements. Consequently, Aour-Aoussa camp was closed at
the end of February 1995. The remaining 1,500 refugees at Aour-Aoussa (625
Ethiopians and 875 Somalis) were all transferred to Ali-Ade refugee camp.
Of the remaining 23,000 refugees in three camps, 87 per cent are Somalis,
most of whom are women and children of nomadic origin.
17. Following the signing of the "Peace and Reconciliation" agreement on
26 December 1994 between the Government of Djibouti and the opposition
movement Front pour l'Unite et la Democratie (FRUD), the authorities in
Djibouti expressed readiness to facilitate the repatriation and
reintegration of Djiboutian refugees of Afar origin who fled to north-
eastern Ethiopia during the years 1991 to 1993. The agreement has also led
to a general normalization of the socio-political situation in Djibouti and
has encouraged the return of many families to their places of origin.
18. UNHCR and the Governments of Djibouti and Ethiopia agreed in January
1995 to continue transfer operations for the remaining 15,000 unassisted
and unregistered urban refugees and displaced persons in Djibouti-ville,
out of the 30,000 estimated in 1993. The transfer operation is being
carried out in the context of voluntary repatriation whereby it is intended
that repatriates will not stay for a long period of time in a transit
centre.
19. The continuation of the transfer programme and the repatriation of
about 18,000 Djiboutian refugees of Afar origin from Ethiopia were the
subject of a letter of "Mutual Understanding" signed by both Governments
and UNHCR on 15 January 1995.
20. During the course of 1994, two separate Memoranda of Understanding
were signed by UNHCR with the Governments of Eritrea and the Sudan. These
provide the framework for the voluntary repatriation of Eritrean refugees.
The pilot phase, which planned for the repatriation of 25,000 Eritreans
from the Sudan within the Programme for Refugee Reintegration and
Rehabilitation of Resettlement Areas in Eritrea (PROFERI), began in
November 1994. Some 24,200 Eritreans were assisted to return at the end of
the pilot project. In addition, 29,530 Ethiopians and 172 Zairians
benefited from UNHCR's assistance in their voluntary repatriation movements
during 1994-1995.
21. As of May 1995, Ethiopia was hosting nearly 365,000 refugees,
comprising 284,200 Somalis in the east, 53,300 Sudanese in the west, 18,000
Djiboutians, 8,700 Kenyans and 640 urban refugees of various nationalities.
22. The planned repatriation of Somali refugees from eastern Ethiopia to
north-west Somalia in 1994 was suspended due to renewed fighting in
Hargeisa. The fighting resulted in a fresh influx of some 80,000 Somali
refugees into eastern Ethiopia. With relative calm returning to north-west
Somalia, plans have been revived to pursue the voluntary repatriation of
Somali refugees during the second half of 1995. The repatriation of about
10,000 Somali refugees is foreseen for the end of 1995 under a pilot
project, while the repatriation of some 100,000 is envisaged in 1996.
23. Reintegration assistance to 530,000 Ethiopian returnees from Somalia
and some 60,000 from the Sudan, Kenya and Djibouti who had repatriated in
earlier years was phased out, concluding on 31 December 1994. However,
reintegration assistance is continuing in 1995 to some 35,644 Ethiopians
who repatriated in 1994 from Djibouti, Kenya and Sudan. Repatriation of
some 60,000 Ethiopian refugees in the Sudan had been planned for 1995 but
the slow pace of return led to a revised plan for an expected total of only
30,000 returnees in 1995, with the remainder in 1996. In addition,
repatriation started in 1995 of some 35,650 Ethiopian refugees from
Djibouti (25,000), Kenya (10,000) and other countries (650). By the end of
May, about 3,000 refugees had returned from Kenya, and 9,256 from Djibouti.
The majority of returnees in 1994 and 1995 have received individual
reintegration packages in the form of agricultural implements,
reintegration grants and, where feasible, income generation grants.
24. The year 1994 saw a marked decline in the influx of refugees to Kenya
with a substantial increase in repatriation movements. In 1994, only 926
persons were recorded as arrivals in Kenya while more than 81,520 persons
returned to their countries of origin. By 31 March 1995, there were
195,094 registered refugees in Kenya, the majority of whom were Somalis.
25. A combination of repatriation and relocation movements allowed UNHCR
to close and consolidate several camps. Refugees who did not wish to
return or could not return to their home areas were relocated to the Dadaab
axis camps or to Kakuma camp.
26. Marafa camp, which hosts 31,000 Somali refugees, is scheduled to be
closed during the second half of 1995. The planned closure of the smaller
coastal camps hosting minority Somali ethnic groups suffers from serious
constraints. The relocation of these minority Somalis to Dadaab axis camps
or their repatriation to Somalia is not feasible without jeopardizing their
personal security. Therefore, UNHCR is negotiating with the Government of
Kenya for the retention of these coastal camps or the identification of
suitable alternative sites.
27. The repatriation from border sites in the North-East Province of Kenya
to the Gedo and Lower Juba regions of Somalia was completed in the first
half of 1994. In 1995, an organized voluntary repatriation programme to
Lower Juba has been ongoing from Dadaab camps. With the withdrawal of the
United Nations Operation in Somalia (UNOSOM II) in March 1995 and
subsequent insecurity, all international staff members in Somalia had to be
withdrawn temporarily. Implementation of QIPs, the main UNHCR reintegration
assistance in Somalia, was suspended.
28. In addition to the above movements to Somalia, UNHCR completed on 4
June 1995 the voluntary repatriation of 1,554 Ethiopians of Somali origin
from Dadaab camps. Repatriation from Kenya to Rwanda and Uganda is also
ongoing in 1995.
29. In view of the relative peace and stability which north-west Somalia
enjoyed from mid-1993, a number of preparatory activities were undertaken
by UNHCR during 1994 to encourage and facilitate the voluntary return of
the Somali refugees in neighbouring countries, mainly Ethiopia and
Djibouti. However, with the outbreak of fighting in and around Hargeisa in
November 1994, the plan for organized repatriation of 10,000 refugees from
eastern Ethiopia to north-west Somalia was suspended pending resolution of
the conflict.
30. In June 1995, the central administration in Hargeisa gave written
approval to UNHCR for the repatriation of 10,000 Somali refugees from camps
in eastern Ethiopia under a pilot project. At the same time, the central
administration also approved the voluntary return of all Somali refugees
from asylum countries. In view of this positive development, the UNHCR
Office in Hargeisa, in consultation with the UNHCR Regional Liaison Office
in Addis Ababa, is planning the reception, onward movement and
reintegration of returnees to their homes. This pilot project began in
August 1995. Lessons learned will pave the way for the implementation of a
large-scale repatriation programme from Ethiopia planned for 1996.
31. Although some 727,000 refugees are reported to be in the Sudan, the
exact number is difficult to assess because there has been no recent census
of the refugee population. A UNHCR technical and interdisciplinary mission
to the Sudan in March 1995 recommended that a registration exercise be
carried out jointly with the United Nations Population Fund (UNFPA), the
Office of the Commissioner for Refugees (COR) and the Government in
collaboration with UNHCR. The registration exercise is scheduled for the
last quarter of 1995.
32. In the Sudan, continuing armed conflict, often combined with natural
disasters such as floods, have taken an enormous toll on the civilian
population. This has led to a continuous flow of Sudanese refugees into
the Central African Republic, Ethiopia, Kenya, Uganda and Zaire. It has
also resulted in the massive internal displacement of over 1.7 million
persons in southern Sudan, the transitional areas between the north and the
south, and in urban areas, particularly Khartoum. These persons are in
desperate need of a broad range of assistance, including food, medical
supplies, water and shelter. United Nations agencies and NGOs participating
in Operation Lifeline Sudan are continuing their efforts to provide aid,
but access to those in need has been problematic, owing to ongoing security
problems.
33. Since mid-1994, some 60,000 Sudanese refugees have sought asylum in
Uganda, bringing the total number of assisted Sudanese refugees to 325,000.
The influx of new refugees necessitated the launching of emergency
assistance and rural settlement programmes in early 1995. Care and
maintenance assistance, including basic aid, food, water and health
facilities, are being provided by UNHCR in coordination with the Ugandan
Government, WFP and a range of NGOs.
Central Africa
34. During the reporting period the refugee situation in Central Africa
has been marked by continued uncertainty in Rwanda, with over a million
Rwandans still living in exile; the resurgence of ethnic conflict in
Burundi followed by the simultaneous return and exodus of Burundian
refugees; the outflow of Sudanese refugees into the Central African
Republic and Zaire; a new era of national reconciliation in Chad; and the
repatriation of Rwandan refugees from Uganda.
35. In February 1995, UNHCR and the Organization of African Unity (OAU)
organized the Regional Conference on Assistance to Refugees and Displaced
Persons in the Great Lakes Region, which was held at Bujumbura. The
Conference adopted a plan of action addressing a wide range of concerns and
agreed that no meaningful solution could be found to problems of this
magnitude without active cooperation between States and relevant
international and regional organizations.
36. Following the dramatic events which provoked large-scale population
movements from Rwanda in 1994, UNHCR has been providing protection and
assistance to varying refugee caseloads in Burundi. Between June and
December 1994, a total of 250,000 Rwandan refugees crossed into Burundi.
During the first months of 1995, the number of arrivals increased, with the
closure of internally displaced person (IDP) camps in Gikongoro Prefecture
in Rwanda. More than 20,000 new arrivals were reported during the first
four months of the year.
37. UNHCR transferred refugees from the unstable border area to seven
different camps and established a care and maintenance programme for their
assistance. By the end of 1994, basic services were available in all
refugee camps: access roads were opened and sanitation, health and water
facilities were established. Individual assistance in the form of plastic
sheeting, blankets, jerrycans and cooking sets was provided to refugees
upon their arrival in the camps. These programmes continued in 1995.
38. Following a series of security incidents affecting refugees in
Burundi, some 30,000 Rwandan refugees fled to the United Republic of
Tanzania during 1994. During 1995, a further 80,000 Rwandan refugees
attempted to cross into the United Republic of Tanzania.
39. A Tripartite Agreement for the voluntary repatriation of Rwandan
refugees was signed between the Governments of Burundi and Rwanda and UNHCR
on 14 December 1994. The planning assumption for the 1995 UNHCR assistance
programme was that, while care and maintenance assistance needed to
continue, at least 100,000 Rwandan refugees accommodated in camps, as well
as "old" caseload refugees, would opt for voluntary repatriation in 1995.
It is expected that refugee interest in repatriation from Burundi can be
enhanced through confidence-building measures currently being implemented:
dissemination of factual information on the situation in Rwanda; refugee
visits to their areas of origin; and, whenever possible, visits of
returnees already resettled in Rwanda to their former camps in Burundi.
40. Beginning in 1994 and continuing in 1995, assistance to returnees
(some 200,000 who returned to Burundi from the United Republic of Tanzania
in early 1994 and 300,000 who fled to Rwanda in the aftermath of the
October 1993 events and then returned to Burundi after April 1994) has been
disrupted by several factors: lack of security in areas of return; the
geographical spread of areas of return; and the priority given to providing
assistance to Rwandan refugees in Burundi. Some 50,000 have benefited from
UNHCR's assistance, principally through the distribution of seeds and
tools.
41. A total of 400 Burundi returnees who have so far repatriated from
Rwanda during 1995 are being assisted in one site by UNHCR, pending the
allocation of land for their resettlement by the Burundian authorities. It
is expected that a further 2,500 Burundian refugees currently in Rwanda
will repatriate during 1995. Reception facilities, as well as some
reintegration activities, principally the distribution of repatriation kits
consisting of seeds and agriculture tools, are being established. However,
a significant number of these returnees may remain dependent upon aid from
the international community until a solution is found to the issue of land
scarcity.
42. UNHCR, in collaboration with WFP and several NGOs, provided assistance
to IDPs located in sites close to the refugee camps. This helped to
alleviate tension between refugees, the local population and IDPs in the
north of Burundi. Assistance consisted mainly of complementary food
assistance provided by WFP. Basic camp planning, water and sanitation
infrastructure and basic health facilities were provided by UNHCR through
its implementing partners.
43. Following the constitution of a new Government in mid-July, UNHCR
resumed its activities in Rwanda, assisting and monitoring the return of
refugees and IDPs to their communes of origin. UNHCR concluded an
agreement with the International Organization for Migration (IOM) for the
transport of returnees and IDPs. NGOs have been providing technical
support for the transport operation and are running the "way stations", the
"reception" and "transit" centres in which returnees and IDPs have been
receiving the necessary assistance on their way home. UNHCR has also been
providing returnees with a repatriation package containing soap, blankets,
jerrycans and mats. In addition to individual assistance, UNHCR has
supported activities towards community rehabilitation, focusing on four
main sectors - water, health, housing and primary education - in the areas
most affected by the return of refugees and IDPs.
44. Several NGOs, the International Committee of the Red Cross (ICRC),
UNICEF and UNHCR are working towards developing solutions to the problem of
unaccompanied minors through family tracing and support to foster families.
UNHCR has set up a Regional Support Unit for Refugee Children which carries
out a coordinating function within the framework of UNHCR's policy on
"Refugee Unaccompanied Minors". UNHCR is also assisting the Ministry of
the Family and Promotion of Women (MIFAPROFE) to help returnee women
reintegrate into Rwandan society.
45. Since September 1994, the Government of Rwanda (and notably the
Ministry of Rehabilitation) has been confronted with the particular problem
of the massive return of refugees from the "old" caseload. The lengthy
duration of their exile implies that these returnees do not have property
or land to return to. A large proportion of them have settled in urban
areas, principally in Kigali and Butare, where they live in houses owned by
"new" caseload refugees. Smaller groups have also settled in other urban
areas and along the main roads. UNHCR is helping the Government to settle
"old" rural caseload returnees in new, Government-designated rural
settlements and providing them with building materials.
46. Voluntary repatriation continues to be the preferred durable solution
to the refugee problem in the region, but the recurring internal security
problems in Rwanda, coupled with arbitrary arrests throughout the country,
have emerged as major obstacles preventing refugees from returning. The
forced closure of IDP camps and the outbreaks of violence in Kibeho camp
also have had a negative impact on refugee repatriation movements.
47. In the United Republic of Tanzania, the number of Rwandan refugees
grew from practically none to almost 575,000 in the Kagera region,
beginning in April 1994 when about 200,000 Rwandans crossed the border
within a period of 24 hours. The influx from Rwanda continued from May to
the end of October with a daily average influx of some 1,500 persons. From
November 1994 to March 1995, Rwandan refugees in Burundi also started
entering the United Republic of Tanzania to escape insecurity in the camps
in Burundi. A massive emergency response was initiated by the Government
of the United Republic of Tanzania, UNHCR, donor countries, other United
Nations agencies, notably WFP and UNICEF, and NGOs.
48. At the beginning of 1994, about 250,000 Burundi refugees repatriated
spontaneously. About 45,000 of them remained in the Kigoma region at the
United Republic of Tanzania. A new influx of about 60,000 refugees,
however, took place in March 1995, following disturbances in Muyinga
Province. On 31 March 1995 the Government of the United Republic of
Tanzania closed its border with Burundi. The Government has maintained
that positive steps must be taken towards implementation of the
recommendations of the January 1995 Nairobi Presidential Summit on the
voluntary repatriation of Rwandan refugees before reopening of the border
can be considered.
49. Other developments in the United Republic of Tanzania during the
reporting period included the organized voluntary repatriation of 13,000
Mozambicans, completed on schedule in October 1994.
50. In Zaire, the signing of a peace accord in 1994 paved the way for the
repatriation of 5,370 Ugandan refugees during the latter part of 1994 and
the beginning of 1995. A total of 4,640 Ugandans are expected to
repatriate in 1995.
51. Meanwhile, the political and security situation in Sudan heightens
fears of yet another influx of Sudanese into Zaire. Some 6,000 arrived
during the first months of 1995. On the other hand, there is hope that
Angolan refugees may return home following the signing of the Lusaka Peace
Accord between the National Union for the Total Independence of Angola
(UNITA) and the Government of Angola on 5 May 1995.
52. Prior to the massive influx of Rwandan refugees into Zaire in July
1994, there were 18,000 Rwandan refugees in North Kivu and 106,000
Burundian refugees in South Kivu. The arrival of over 1.7 million Rwandans
into both North and South Kivu called for the mounting of a large emergency
aid programme, including the use of international military resources, to
allow the international aid community to address this unparalleled
humanitarian disaster.
53. The first few weeks of the emergency were especially tragic.
Thousands of refugees died from waterborne diseases and dehydration; the
towns of Goma, Uvira and Bukavu were completely overwhelmed by the
transient refugee populations; violence and insecurity dominated daily life
in the camps; food distribution was manipulated by the refugee leaders to
the detriment of vulnerable refugees; the population of unaccompanied
minors swelled as mothers abandoned children to the NGO community in a
desperate attempt to ensure their survival; and the unique ecological
preserve of the Virunga National Park was violated daily in the quest for
cooking fuel and supplementary food.
54. Through the massive effort of United Nations agencies, donors and
NGOs, the crisis had eased by the end of August 1994 and the rudiments of
order and calm emerged over the next six months. The majority of refugees
moved out of the towns into the camps and UNHCR began the consolidation of
camp and agency activities. UNHCR field staff succeeded in effecting food
distribution to heads of households and ensured a more equitable access to
food. Through the tremendous efforts of the health-oriented NGOs,
mortality rates dropped considerably. After many delays and much
resistance on the part of the refugee community, UNHCR successfully
registered all refugees. By the end of March 1995, the population size was
known for all camps.
55. Security remained the greatest problem in the camps. Serious
intimidation of any individual expressing a desire to return to Rwanda
occurred frequently and was a major deterrent to repatriation. Other
security problems, such as banditry, weapons smuggling, rape,
misappropriation of humanitarian assistance, violent attacks against aid
workers, rioting and looting also abounded. By January 1995, agreement had
been reached on an experimental solution - the Zairian Camp Security
Operation. Deployment of both the Zairian Camp Security Contingent,
composed of Zairian security agents, and the Civilian Security Liaison
Group, composed of expatriate police and military officers, began
immediately in the North Kivu camps, and was completed by 15 May in South
Kivu as well.
56. At the end of October 1994, the Governments of Zaire and Rwanda and
UNHCR signed a tripartite agreement which established the conditions for
the voluntary repatriation of Rwandan refugees in safety and dignity. By
mid-December 1994 the situation had calmed to the extent that organized
repatriation could begin; in 1994 at least 154,000 Rwandans returned home,
most of them spontaneously. Organized repatriation numbers peaked in
February 1995, with nearly 1,000 refugees per day registering for return.
However, there was a sharp decline following the deterioration of
conditions in Rwanda and incidents of intimidation in Kibeho camp in April
1995.
Southern Africa
57. Continuing political stability in Mozambique, and the successful
conclusion of free and fair elections in October 1994, encouraged the
repatriation and reintegration of some 1.6 million Mozambican refugees from
Malawi, South Africa, Swaziland, the United Republic of Tanzania, Zambia
and Zimbabwe, including 316,118 whose return transportation was organized
by UNHCR. Only a few thousand Mozambican refugees remain to be assisted in
their return home. Almost all the refugee camps and settlements in the
countries of asylum, as well as the associated infrastructure, have been
handed over to the respective Governments for alternative uses.
58. The repatriation programme for Mozambican refugees was one of the
largest in UNHCR's history. Organized movements at the peak period reached
well over 4,000 individuals per day and took place simultaneously by truck,
bus, train and boat to a variety of locations inside Mozambique. The
successful conclusion of this complex operation has been due largely to
concerted cooperation between UNHCR and the participating Governments,
other United Nations agencies and NGO implementing partners.
59. Until June 1996, UNHCR will consolidate its activities in returnee
areas to ensure sustainability of its reintegration programme.
Rehabilitation projects for major returnee areas are being implemented in
close cooperation with the Government and other field partners. At the
same time, UNHCR's Branch Office in Maputo will gradually phase out all
field offices charged with reintegration projects by mid-1996 and is
actively pursuing a linkage of UNHCR activities to longer-term
developmental programmes now under way in the country.
60. These positive developments in Mozambique paved the way for a regional
approach which includes the fostering of close working relationships with
Governments and regional institutions such as the Southern African
Development Community (SADC) as well as local NGOs on issues of regional
concern such as population movements, emergency preparedness and irregular
refugee movements.
61. In Angola, since the signing of the November peace agreement ending
nearly two decades of civil war, prospects for the return of Angolan
refugees have improved. As a result, some 5,500 refugees have returned
spontaneously to their country. In June 1995, the Government of Angola and
UNHCR signed a Memorandum of Understanding at Luanda for the promotion of
voluntary repatriation of some 300,000 Angolan refugees. In this
connection, UNHCR has prepared an integrated regional plan of action for
the voluntary repatriation and reintegration of Angolan refugees over a 30-
month period starting from July 1995 and continuing through until December
1997.
62. During the first year of the operation, UNHCR will focus on activities
aimed at establishing the necessary conditions within Angola for the
reception and integration of returnees. UNHCR will coordinate with the
other agencies and bodies within the United Nations system, including the
Office of the Coordinator of Humanitarian Assistance to Angola (UCAH) and
the United Nations Angola Verification Mission (UNAVEM) on matters of
primary concern to help assure the conditions of safe return, such as
accessibility, mine awareness and de-mining activities, water, health,
sanitation and basic agricultural assistance.
63. The second phase of the operation, from July to December 1996, will
focus on a programme of organized repatriation. An estimated 82,000
Angolan refugees in neighbouring countries may require organized transport
to return. Refugees who repatriate through UNHCR-organized programmes will
be transported from countries of asylum through designated border entry
points to reception centres in Angola. From the reception centres,
returnees will be transported on trucks to final destinations near their
home communities.
64. It is planned to begin phasing down the operation by mid-1997.
Emphasis will be placed, during the last phase of the programme, on
consolidation of reintegration assistance to provide a solid basis for
effective integration of the returnees into their communities, and to
engage them in a productive sustainable economic life. The efforts which
have already been initiated, in the first phase of the operation, will be
intensified in order to ensure that the returnee programme remains an
integral part of the national development plan by coordinating the
implementation strategies with bilateral and multilateral programmes.
These concerted efforts, in coordination with the Government, other United
Nations agencies and NGOs, should ensure that the activities initiated for
the benefit of the returnees and their communities during the initial phase
are sustained and continued by the development agencies.
Other developments
65. Recognizing the dual impact of the presence of refugees on the
environment and of the hostile environment on the well-being of refugees,
UNHCR has reassessed environmental and related socio-economic issues with a
view to reinforcing its efforts to address environmental problems in the
following ways:
(a) By adopting a more ecologically sensitive approach in the planning
and implementation of refugee site management. For instance, an expanded
provision of fuel and fuel-efficient stoves is increasingly being
considered and an improved design for a drainage/waste water system is
being applied at many sites;
(b) By undertaking studies in the sectors of shelter, water and
sanitation to minimize the negative impact on the surroundings and improve
the conditions of refugee camps and settlements in an ecologically sound
manner;
(c) By recognizing that refugees themselves are an important collective
force for positive change. Through the People-Oriented Planning (POP)
training programme and greater refugee participation in the development and
implementation of UNHCR programmes, awareness of environmental conservation
is being promoted;
(d) By promoting environmental rehabilitation programmes aimed at
attracting development assistance funds for the rehabilitation of refugee-
affected areas.
Expenditure
66. UNHCR expenditure and allocations for assistance in Africa in 1994
totalled $506.1 million of which $167.4 million were made available from
General Programmes funds and $338.7 million from Special Programmes funds.
The revised 1995 General Programmes target approved by the Executive
Committee at its forty-fifth session is $163.1 million. The amount
required for Special Programmes in 1995 is estimated, at mid-year, at
$387.6 million.
II. ACTIVITIES OF THE DEPARTMENT OF HUMANITARIAN AFFAIRS
67. During the period covered by the present report, the Department of
Humanitarian Affairs (DHA), on behalf of the United Nations system and in
pursuit of its humanitarian coordination function under General Assembly
resolution 46/182, issued appeals for emergency assistance to the
populations affected by the political and humanitarian crises in Angola,
Burundi, Kenya, Liberia, Mozambique, Rwanda, Sierra Leone, Somalia and the
Sudan.
68. Operations in Angola have, since November 1994, been reoriented
towards relief, resettlement, demobilization, reintegration and mine
clearance action. In connection with the ongoing crisis in Burundi, the
work of the humanitarian agencies has focused on those fleeing within the
country and into the United Republic of Tanzania and Zaire. The successful
response to humanitarian needs has so far offset the likelihood of a major
humanitarian crisis.
69. For Kenya, a consolidated appeal was launched in early 1994 to cover
one year; the donor response amounted to $54.9 million (57 per cent of the
amount sought for a target population of 1,620,000). Over 200,000 Somali
refugees are still in Kenya. In the case of Liberia, a new appeal was
launched for January through June 1995: $65.3 million for food aid,
agriculture, food security, health, water, sanitation, shelter and
education. Less than 50 per cent was donated in response to the appeal.
While the humanitarian assistance community issued a joint statement in
October 1994 regarding its decision not to operate without minimum security
guarantees, the United Nations system and NGOs nevertheless provided
assistance to 1.5 million out of 1.8 million Liberians requiring such
assistance. The intensification of fighting since early 1995 has resulted
in an increased flow of IDPs.
70. The successful programme in Mozambique has addressed the emergency
needs of 4 to 5 million IDPs, 1.6 million returning refugees and 90,000
demobilized soldiers. There was an 82 per cent response rate to the appeal
for the $775 million consolidated Humanitarian Assistance Programme. In
Rwanda, as of 6 June 1995, only 43 per cent of the $219 million
consolidated appeal had been donated. For the subregion, of $588 million
required only 61 per cent had been received. Serious food shortages in
Rwanda and in the region are especially harmful for refugee camps and for
the large numbers of internally displaced. About 2 million refugees remain
in the region. There is great concern that the pressure of returning
refugees and tensions from neighbouring countries will result in further
deterioration of the situation. The danger of a major humanitarian
emergency in Sierra Leone has worsened since late 1994; rebel attacks have
resulted in an estimated 500,000 IDPs and in an overconcentration of
persons in some areas. An inter-agency appeal on behalf of new refugees
and populations affected by the humanitarian situation in Sierra Leone in
the amount of $14.6 million for March through December 1995 has so far
received very little response.
71. For the post-UNOSOM II humanitarian programmes in Somalia, a
consolidated appeal was launched in January 1995 ($70.3 million requested
for a six-month period, less than 20 per cent met by donations). The
programme addresses the needs of refugees, returnees and IDPs for relief
and rehabilitation. As long as no stable Government exists, assistance
programmes aim at self-reliance and community initiatives. Rehabilitation
activities are initiated where security conditions allow. For the Sudan, a
new appeal for $101 million to benefit some 4,250,000 people was recently
launched. The donor response so far has been poor. Operation Lifeline
Sudan (OLS) has made considerable progress and its area of operation has
been expanded. The improved harvest of 1994 has allowed the scaling down
of the United Nations consolidated appeal by 45 per cent. Renewed large-
scale fighting and denial of access by air have impaired delivery of
humanitarian assistance, although the two-month cease-fire brokered by
former United States President Jimmy Carter has offered some respite in the
ongoing civil strife. A basic review of OLS is planned for late 1995.
III. ACTIVITIES OF THE WORLD FOOD PROGRAMME
72. Refugees and internally displaced were again the main beneficiaries of
WFP relief assistance during 1994. In Africa, during 1994, WFP assisted
more than 17 million refugees, internally displaced and war-affected
persons with a commitment of more than 1.4 million tons of food. New
commitments in the first half of 1995 already reached 1 million tons for 7
million beneficiaries.
73. For the region of Africa (23 countries), five protracted refugee
operations and 18 emergency operations were approved for a total of $68
million in 1994.
74. WFP continued to strengthen collaboration arrangements with UNHCR in
refugee, returnee and internally displaced feeding operations. A further
revision of the joint working arrangements was introduced in early 1994 to
improve the effectiveness of joint feeding operations. Under this
arrangement, the programme has further extended its responsibility by
taking over management of the extended delivery points (EDP).
75. In the protracted, post-emergency phase of relief operations,
attention has increasingly focused on identifying appropriate interventions
which merge relief and rehabilitation objectives. This has been the case
in major long-standing operations such as those in Liberia, Rwanda and
Burundi. In order to achieve better targeting and to facilitate the
transition to long-term self-security, general food distribution is
progressively phased out in favour of: (i) food-for-work (FFW) schemes for
construction/rehabilitation of agricultural and community infrastructure;
and (ii) special feeding programmes to provide safety nets for vulnerable
groups.
76. The concept of a "continuum from relief to development" has been a
major focus in the preparation and implementation of WFP interventions
during 1994 and the first half of 1995. These activities have included
rehabilitation programmes, resettlement and implementation of household
surveys in various countries. These surveys were to identify the
beneficiaries' needs and to help develop a proper targeting strategy.
77. A comprehensive study of WFP's policy and practice with regard to
gender in emergencies was initiated in 1995. The objective of this review
was to look into the diversity and persistent character of certain
obstacles hampering the welfare of women and to see how their special needs
could be integrated in programme planning and implementation.
78. WFP, together with UNHCR, is actively interested in promoting and
ensuring, particularly in post-crisis situations, a better interface
between humanitarian interventions and development, with the aim of
ensuring sustainable solutions. Humanitarian assistance is used to
facilitate reintegration of displaced people into a process of social and
economic recovery. WFP, in conjunction with UNHCR, continues to review
significant reintegration experiences in order to draw upon lessons
learned. Future evaluations will cover Mozambique and Rwanda/Burundi.
79. WFP is involved in the major refugee and IDP operations in Africa, a
summary of which is provided below.
A. West Africa
Liberia region
80. WFP continues to provide food assistance to over 2.5 million Liberian
and Sierra Leonean refugees and IDPs in Cote d'Ivoire, Guinea, Liberia and
Sierra Leone. Employment and income-generation activities in agriculture
and trade exist for refugees (many of whom are now integrated into host
families) both in Guinea and Cote d'Ivoire. A progressive phasing-out
strategy has been introduced for these beneficiaries while a safety net has
been maintained for vulnerable groups and new arrivals. Under the new
phase of assistance, integration of agricultural development projects and
other efforts to encourage self-sufficiency will be intensified by United
Nations agencies and donors.
Togo region
81. The appointment of a new Government in Togo led to some improvement in
the economic situation of the country. A household survey carried out
among refugees in Benin and Ghana revealed that most refugees have been
integrated and have been able, with the support of WFP and UNHCR, to reach
a certain level of self-sufficiency. A programme of repatriation is also
beingplanned. WFPhas continuedits assistance to displacedpersons in Ghana.
B. Great Lakes region
82. As of June 1995, an estimated 2 million refugees had sought refuge in
Zaire, the United Republic of Tanzania and Burundi. They continue to
receive WFP food assistance. The food aid requirement for this refugee
feeding emergency programme amounted to 60,000 tons of commodities a month.
83. In Rwanda and Burundi, WFP began working closely with the respective
Governments to channel needed assistance for rehabilitation work. In
Rwanda, priorities since September 1994 and for 1995 have been the seed
protection programme and local integration of returnees in their home
communities. In addressing the emergency and rehabilitation and
reconstruction initiatives in Rwanda, WFP is planning to cover the needs of
beneficiaries in the form of FFW schemes rather than free distribution to
avoid food aid dependency among the target population. In Burundi, WFP
successfully initiated programmes to resettle IDPs. "Returnee" packages,
which included a one-month food ration, seeds and tools, were made
available to the 35,000 displaced families who resettled in 1994.
C. Eastern and southern Africa
84. WFP activities with UNHCR during the period under review focused on
attaining durable solutions, with particular emphasis on voluntary
repatriation. Repatriation of Eritrean refugees in the Sudan began at the
end of 1994 and continued in 1995. It is expected that 135,000 refugees
will return. WFP, together with UNHCR, is making plans to assist the
voluntary repatriation of Ethiopian refugees in the Sudan and Somali
refugees in Kenya.
Mozambique
85. During the reporting period, reintegration activities were intensified
in major returnee areas with the distribution of seeds and tools together
with food rations.
86. WFP has also contributed to the rehabilitation of feeder roads,
schools, health centres and basic urban services. Furthermore, food
assistance was extended to health and malnutrition-rehabilitation centres
and training institutes. The monthly allocation of food aid amounted to an
average of 25,000 tons.
87. Food delivery improved during the reporting year with most of the
returnee areas accessible and the monitoring and reporting capacities at
the provincial level enhanced.
Angola
88. The resumption of the Angolan civil war in 1992 had a dramatic impact
on the living conditions of the Angolan population. During 1994 and the
first half of 1995, WFP emergency food assistance was provided to nearly 2
million people including displaced persons, returnees and conflict- and
drought-affected victims.
Other
89. WFP is also assisting with the supply and delivery of food to several
smaller refugee operations in the Central African Republic, Mauritania,
Senegal, Guinea-Bissau, Uganda, Zambia and Burkina Faso.
IV. ACTIVITIES OF THE DEPARTMENT FOR POLICY COORDINATION
AND SUSTAINABLE DEVELOPMENT
90. In the recent past, political conflicts and civil wars have been
responsible for dramatic increases in the number of refugees and displaced
persons. The Department for Policy Coordination and Sustainable
Development is co-organizing, with the Government of Japan, a high-level
symposium in October 1995 at Tokyo on Peace and Development: Conflict
Prevention, Management and Resolution in Africa. The purpose is to respond
to the need to attack the root causes of massive population displacements
in Africa.
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