ENGLISH VERSION
CHECK AGAINST DELIVERY IN FRENCH
GLOBAL CONSULTATIONS ON INTERNATIONAL PROTECTION
Palais des Nations, Room XIX
Geneva, 8-9 March 2001
(iv) Mechanisms of international cooperation to share responsibilities/burdens in mass influx situations.
NGOs recall the words of the 1995 Note on
International Protection that “the lack of tangible international
solidarity has remained an obstacle to the positive development of international
refugee protection”. We do not need to say anything more about the
importance of responsibility-sharing other than to point to the effects which a
lack of an international system to help first asylum states had in Tanzania,
had in Macedonia, and is having as we speak in West Africa.
NGOs
hope that the discussions on responsibility-sharing here will be more than a
sterile debate on the North-South divide, and that today will provide the
impetus and a platform for further discussion. We urge delegations to focus on
the tangible aspects of solidarity.
A
striking feature of the discussion on the overall protection framework was the
stress on prevention of displacement. This is also relevant to the question of
responsibility-sharing. Much of the focus was on development, eradication of
poverty, mediation and conflict resolution, and these are discussions which
will have to be followed up outside of a UNHCR-led consultation process. NGOs
would add that observance of human rights is the key element in preventing
displacement. The export of weapons, conflict and persecution contribute
massively to displacement. This is an issue which states can usefully carry on
debating in the forthcoming Human Rights Commission.
The
burden of refugee protection which poor countries are labouring under is one
which requires, first of all, money. The phrase
“responsibility-sharing” emphasises that states have freely
undertaken responsibilities under the Refugee Convention and to underline that
a rights-based approach to responsibility-sharing is required. This
rights-based approach stresses that refugee protection is an international
concern and responsibility which, as the Preamble to the Refugee Convention and
the OAU Convention recognizes, requires states to act together.
It
is undeniable that the rich need to help the poor, who are protecting the
majority of refugees. However, at a time of increasing wealth for the rich,
development aid has decreased, rather than increased and some countries offset
within their aid budgets their own costs of receiving asylum-seekers. NGOs
believe that off-setting the costs of receiving asylum-seekers is deplorable,
particularly where this includes the cost of often illegal and arbitrary
detention. But responsibility-sharing is not just about the transfer of
resources from rich to poor. Within regions there is little
responsibility-sharing, with some countries deeply affected by displacement,
while others do little to help their neighbours. This underlines the complexity
of the responsibility-sharing debate and the need for a deeper discussion than
is possible in the Global Consultations.
With
an appeal to devote more time to this question then, NGOs will devote our
remaining limited time here to underlining some points which need to be
considered and throwing out some questions we believe should be answered. They
are in no particular order.
· Responsibility-sharing must also include clear
differentiation of roles between UNHCR and other UN agencies and NGOs in the
protection of and assistance to refugees. It must be made clear that UNHCR
should not be left alone in protection and assistance activities and other
agencies have a responsibility to come in. A clear division of responsibilities
should protect UNHCR’s core mandate.
· While we welcome the UNHCR background paper
EC/GC/01/7, paragraph 7 refers to the need for stand-by arrangements to provide
greater flexibility to states. Our view is that greater predictability of response to situations of mass influx is needed.
There is an inevitable tension between flexibility and predictability, but
certainty that people will find protection when they flee has to be of
paramount concern.
· Several other parts of the paper risk the surely
unintended effect of supporting the restrictive asylum policies of the rich. It
is quite conceivable, for example, that the hoped for linkage of broader
development concerns (at para.13 of the paper) with support to countries of
first asylum could be used to “buy out” protection
responsibilities, becoming the refugee protection equivalent of carbon
emissions trading. The corollary is that hosting large refugee populations
could become a perverse form of human rights conditionality in development aid.
It is also hard to see how those states who see no strategic interest in
supporting, for example, Iran or Pakistan, will be encouraged to devote greater
support to them for refugee protection.
· As the UNHCR paper notes, resettlement can be a useful
protection tool, especially in long-standing refugee situations. We agree. But,
as paragraph 16 of the UNHCR paper notes, there is a need for caution. The
current interest in expanding the pool of resettlement countries may not aid
responsibility-sharing. The United Kingdom interest in becoming a resettlement
country is closely linked with its desire to reduce the number of refugees
seeking asylum there. The Home Secretary has openly stated that he desires a quid
pro quo: the greater the number of
asylum-seekers, the fewer refugees will be taken under a resettlement quota.
The paragraph 17 recommendation should include a reference to the need for
resettlement programmes not to prejudice the rights of refugees seeking asylum.
· The UK proposals highlight another problem for
responsibility-sharing agreement, upon which the UNHCR paper is tactfully
silent. The layer upon layer of immigration control, in particular visa
regimes, carriers sanctions, safe third country policies, interception and
detention, which has been built up over the past decade or so is expressly
anti-responsibility sharing. Will the rich be encouraged to dismantle these
layers of control? There is little on the horizon to encourage us. The European
Union’s much-vaunted High Level Working Group Action Plans (which include
Afghanistan), self-consciously supposed to provide a comprehensive response to
displacement, contain concrete proposals on the “easy” areas of
immigration control aimed at restricting the movement of refugees, only with
rather vaguer, longer-term, suggestions about aid to regions affected by
displacement.
· People fleeing in a mass influx will, by definition,
have experienced a series of deeply traumatic events leading to flight. Flight
itself is a traumatic experience. A responsibility-sharing mechanism will have
to include medical aid to countries of first asylum, providing for both
physical and mental health needs. The latter is especially important if
refugees are to receive information- a key protection issue not covered in
these consultations- and to process it effectively, as trauma and continuing
anxiety blocks retention of information.
· Thailand asserted yesterday that voluntary
repatriation is the lack of an objection by the refugee to repatriation. We
disagree. Under this agenda item, if physical transfer of refugees is
envisaged, under an evacuation programme or other form of responsibility-sharing,
then the informed consent of the
person concerned must be obtained in order to create a “double voluntary
action” between receiving state and refugee. Informed consent means that
information should be given to refugees about their possible legal status in
the receiving state.
· In no circumstances should families be separated by
transfer. If they are, then reunification should be facilitated as soon as
possible.
· Finally, states can share responsibility for refugees by honouring the right of people to return to their countries of origin. In the context of mass displacement, this right finds concrete expression in the 1995 Dayton Accords. The right to return places an onus on the country of origin to facilitate return of its citizens and on the international community to find solutions to crises causing displacement.