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UNITED  NATIONS  HIGH  COMISSIONER  FOR  REFUGEES    Welcome   to   the   Executive   Committee   of   the  UN  High  Commissioner  for  refugees  (UNHCR)—  colloquially   referred   to   as   ExCom   for   short   or  the   UN   Refugee   Agency.   The   Executive  Committee   is   the   body   of   the   UNHCR   that  gathers   representatives   from   over   70   nations  to  address  the  challenges  of  refugees  crises  and  refugee-­‐hosting  nations,  It  is  the  primary  agent  that   deals   with   crafting   and   and   driving   the  work  of  the  UNHCR.    

 The   UNHCR   plays   a   very   important   role   politically,   economically   and   in   terms   of  humanitarian  response.  Refugees  are  often  found  living  in  extremely  difficult  conditions  —  sometimes  forced  to  remain  for  extended  periods  of  times,  from  years  to  decades,  in  overpopulated  camps  without  proper  access  to  housing,  food,  education  or  health  care.  Work   permits   or   other   forms   of   independent   income   are   often   difficult   to   come   by.  Other  more  pressing  issues,  like,  food  security,  malnutrition,  violence,  and  public  health  concerns   contribute   to   this   deadly   combination.   In   the   middle   of   such   refugee-­‐producing  crises,  UNHCR  becomes  active  in  participating  as  a  provider  of  humanitarian  aid  and  to  coordinating  the   international  networks  for  refugee  recognition,  settlement  and  protection.    

HISTORY  OF  THE  UNHCR    After   the  Second  World  War,  Europe  was   confronted  with  a   serious   refugee   scenario.  Millions  of  displaced  peoples  had  remained  scattered  across  the  continent.  There  were  little  opportunities  for  repatriating  these  refugees  back  to  their  home  societies.  Global  leaders   had   tried   on   several   occasions   to   create   a   political   body   tasked   with   looking  after  European  war  refugees  and  displaced  persons.      Initially,   two   organizations   were   created,   the   Supreme   Headquarters   Allied  Expeditionary  Force  and  United  Nations  Relief  and  Rehabilitation  Agency  (UNRRA),  but  were  unsuccessful  in  resolving  the  plight  of  post-­‐World  War  II  refugee  problems.  As  the  world   settled   into   the  bipolar   conditions  of   the  Cold  War,  Western  officials   sought   to  return  refugees  in  the  West  to  countries  that  were  now  located  behind  the  Iron  Curtain.  Sending   these   displaced   peoples   back   would   have   meant   risking   these   individuals’    political  freedoms  and  the  lives.      In   1947,   the   International   Refugee   Organization   (IRO)   was   introduced,   designed   to  globalize  refugee  problems  by  distributing  responsibilities,  costs  and  refugees  among  a  

 

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large  number  of  nations  willing  to  take  them  on.  The  IRO  was  more  successful  resettling  tens  of  thousands  of  refugees  under  its  UN  mandate.  However,  hundreds  of  thousands  remained   in   refugee   camps   even   up   to   1950.   With   other   refugees   crises   emerged  beyond   Western   Europe,   it   had   become   clear   that   more   efforts   needed   to   be  undertaken.  Hence,  the  United  Nations  High  Commissioner  for  Refugees  was  created  in  1950  with  the  scope  of  “leading  and  co-­‐ordinate  international  action  to  protect  refugees  and  resolve  refugee  problems  worldwide...and  to  safeguard  the  rights  and  well-­‐being  of  refugees.”      In   our   six   decades   of  work,   the  UNHCR   has   faced  many   challenges,  meeting   some   of  them  with  success,  others  with  failure.  While  the  UNHCR  has  received  better  funding  for  its   projects,   which   has   produced   successful   examples,   several   cases   of   forced  repatriation  have  lead  to  human  rights  violations.  The  mandate  of  the  UNHCR  is  another  challenge  for  the  agency.  Saduko  Ogata,  a  former  High  Commissioner,  summarized  the  dilemma   of   the   UNHCR   well   by   stating,   “There   are   no   humanitarian   solutions   to  humanitarian  problems.”    

COMMITTEE  TOPIC:    SETTLING  REFUGEES  IN  THE  URBAN  ENVIRONMENT  

 The  Syrian  crisis  has  produced  hundreds   of   thousands  refugees,   with   a   particularly  large   contingency   arriving   in  neighboring   Jordan.   Indeed,  the   effect   of   over   600,000  displaced   Syrian   citizens  seeking   asylum   is   becoming   a  serious   issue,   stretching   the  capacity   of   the   Jordan   to   deal  with  greater  inflows.      The   Jordanian   infrastructure  

and  its  institutions  are  working  to  accommodate  the  massive  arrival  of  even  more  Syrian  refugees,  who  comprise  nearly  10%  of  its  overall  population.  Of  these  displaced  conflict  refugees,   over   three-­‐fourths   reportedly   reside   in   urban   areas,   negatively   impacting  Jordan’s  health,  sanitation,  and  education  systems.  There  are  over  150,000  school-­‐age  refugee  children  in  Jordanian  primary  and  middle  schools.  As  thousands  of  adult  Syrians  are   continuing   to   enter   Jordan’s   urban   centers,   seeking   temporary   employment   and  housing,  demand  and  competition  are  skyrocketing.  As  housing  aid  in  non-­‐governmental  and  humanitarian  organizations,  the  price  of  housing  has  drastically  increased.  There  are  serious   concerns   that   these   socioeconomic   stressors  may   become   political   in   nature,  potentially  destabilizing  an  otherwise  stable  Middle  Eastern  country.    

Refugees   settled   in   Nairobi,   Kenya   are   rarely   given   any  documents,  work  papers  or  other  permits.  They  often   live  in  squalid  conditions  in  make-­‐shift  camps.    

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 Hence,  the  topic  of  urban  refugees  is  a  thematic  area  that  required  greater  international  attention.  This  is  hardly  surprising.  In  fact,  as  is  clear  after  even  a  brief  overview  of  the  history  of  the  UNHCR,  challenges  and  solutions  to  the  world’s  refugee  problem  over  the  last   few   decades   have   been   anything   but   stable   and   consistent.   Differing   priorities,  goals,   levels  of  authority,   funding   inflow,  and   ideals  have  continuously  changed.  More  than  that,  however,  the  needs  of  refugees  themselves  and  the  challenges  that  they  face  also  vary  dramatically.  Whereas  a  main  area  of  concern  to  the  UNHCR  was—and  still  is,  to   a   large   extent—how   to   care   for   and   protect   refugees   located   in   large   settlement  camps,   today   the   world   is   shifting   towards   urbanization,   and   the   refugee   problem   is  shifting  along  with  it.    The  UNHCR  has  estimated  that  over  half  of  the  world’s  nearly  11  million  global  refugees  live  in  urban  areas.  In  2015,  after  the  events  of  the  Arab  Spring,  continued  violent  crises  in  central  Africa,  and  weak  states  in  the  Horn  of  Africa,  this  number  has  only  increased  even  more.   In  urbanized  areas,  such  displaced  persons  have  virtually  no  recourse,  can  destabilize  already  overstretched  host  countries  and  are  exposed  to  poverty,  violence,  and  discrimination.    

HISTORY  OF  THE  PROBLEM:    DEFINING  A  REFUGEE    According   to   the   UNHCR   mandate,   we  can   define   a   refugee   as   someone   who  is,  owing  to  a  well-­‐founded  fear  of  being  persecuted  for  reasons  of  race,  religion,  nationality,  membership   of   a   particular  social   group   or   political   opinion,   is  outside   the   country   of   his   nationality,  and  is  unable  to,  or  owing  to  such  fear,  is   unwilling   to   avail   himself   of   the  protection  of  that  country.    Beyond   this   strict   definition   of   what   a  refugee   is,   the   work   of   the   UNHCR  regularly  comes  into  contact  with  other  forms   of   displaced   persons,   for  example,   a   political   asylum   seeker.   An  asylum   seeker   is   forced   to   flee   their  country   of   origin   based   on   a   host   of  variable,   ranging   from   violence   or   persecution.   Asylum   seeks   typically   have   yet   to  receive   refugee   status.   They   will   register   with   the   UNHCR   and   host   government   and  asked  to  be  given  protection  as  a  refugee.    

The   Syria   crisis   is   overstretching   the   ability   of  neighboring  countries,  like  Turkey,  Lebanon  and  Jordan.    

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 Some  asylum  seekers  will  be  given  some  official  status;  others  will  not  be  so  fortunate.  Therefore,  the  UNHCR  also  tries  to  resolve  the  needs  of  persons,  like  internally  displaced  persons,  returnees,  and  stateless  persons.  While  the  UNHCR  mandate  does  not  formally  include   non-­‐refugee   status   persons,   the   UNHCR’s   stance   as   the   primary   UN   refugee  agency,   suggests   that   it   has   the   expertise   and   material   capacity   to   deal   with   the  challenges  of  these  individuals.    EXISTING  FRAMEWORKS  AVAILBLE  TO  THE  UNHCR    The   1951   Refugee   Convention   has   served   as   the   primary   platform   for   dealing   with  refugees.  But   it  has  not  been  without   criticism   from  global  and   regional   stakeholders.  For  one,  it  represents  a  collective  effort  by  the  international  community  to  establish  the  rights   of   asylum-­‐seekers   and   refugees.  It   outlines   the   practice   of   non-­‐refoulement.  Non-­‐refoulement  prevents  refugees   from   being   returned   to   their  country   of   origin   against   their   will,  especially   if   that   means   endangering  their   lives   or   face   possible   violence,  arrest   and   imprisonment,   persecution,  or   death.   Many   countries   have   yet   to  become   signatories   to   the   1951  Convention,   including   such   central  players   as   the   United   States,   most  Middle  Eastern  countries  and  much  of  Southeast  Asia.    One  can  make   the  argument   some  of   the  most  pressing   refugee   situations   take  place  these  regions  of  the  world.  The  Syrian  conflict  and  the  recent  emergence  of  the  Islamic  State  or  the  continued  human  rights  violations  of  religious  minorities  in  Burma  are  two  of  several  such  examples.  Some  might  claim  that  the  1951  Convention  does  not  go  far  enough.  How  we  define  a   refugee  was   influenced  by   the  constraints  of   the  Cold  War.  Also,   mechanisms   for   distribution   and   burden   sharing   are   not   properly   delineated  leaving   some   states   bear   more   responsibility   than   others.   Additionally,   there   are  inconsistencies   in   the   rights   and   assistance   granted   to   refugees—some   are   granted  asylum   in   one   country  while   others   are   denied.  Other   criticisms   focus   on   “exile”   as   a  solution.  Rather  than  removing  individuals  who  could  be  persecuted,  some  members  of  the   international   community   and  observers  would   like   to   see  efforts   to   raise  national  capacity  to  combat  persecution  and  violence  within  their  countries.  Hence,   in  place  of  focusing  on  protecting   individual  refugees  that  make   it   into  safer  havens,   in  which  the  UNHCR   works,   leaving   other   potential   victims   of   displacement   to   their   own   fates.   A  focus   on   internationalism,   globalism,   and   stabilization   should   therefore   be   an   option  that  should  be  evaluated  and  explored.  

 

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MECHANISMS   FOR  DEALING   WITH   URBAN  REFUGEES    A   central   challenge   in   addressing  the   humanitarian   needs   of   urban  refugees  is  to  create  innovative  and  effective  methods   for  assuring  their  registration   with   the   UNHCR   and  host   governments.   Registration   of  urban   refugees   is   fraught   with  challenges   for   several   reasons:  because   refugees’   prefer   to   keep   a  

low  profile  from  political  organizations  and  security  agencies  that  they  will  be  detained  or   even   returned   to   their   home   states   in   conflict.   Sometimes,   they   do   not   want   to  endure  the  hardships  associated  with  traveling  to  a  UNHCR  site;  finally,  there  is  a  lack  of  information   about   the   UNHCR   as   being   a   resource   for   improvement.   National  governments   also   play   an   important   role   in   registering   refugees:   if   they   prevent  refugees   from   registering,   they   are  not   considered   refugees   and   therefore  do  not   fall  under  the  UNHCR  mandate.      Hence,  registration  and  documentation  are  important  mechanisms.  One  way  to  improve  registration   is   to  directly  address  the  question  as  to  why  refugees  might  avoid  UNHCR  and  government  offices.  Another  suggestion  is  directly  engage  the  refugees  themselves.  Indeed,   the  UNHCR   has   gone   into   communities,   using   “mapping   tools”   to   locate   high  concentrations  of  unregistered  displaced  persons.  In  some  cases,  the  UNHCR  found  out  that   refugees   were   poorly   informed   on   the   benefits   from   receiving   refugee   status.  However,  too  many  refugees  go  unnoticed.  Typically,  Syrian  refugee  woman  head  one-­‐in-­‐four   households,   only   one   in   three   say   they   leave   their   homes.   If   they   are   not  registered,  children  may  also  not  be  either.  Corruption  and  prejudice  also  continue   to  hamper   registration  efforts.   Lastly,   registration  does  not   guarantee   that   refugees   stay  put  –  they  could  be  forced  to  move  again.      BLOC  POSITIONS    A   small   number   of   countries   are   currently   are   doing   the   “heavy   lifting”   of   urban  refugeeism.   Iraq,   Jordan,   Lebanon,   and   Turkey   are   housing   nearly   2.5   million   Syrian  refugees.  Conflict  refugees  from  the  wars  in  Afghanistan  and  Iraq,  those  was  faced  with  violence   and   famine   in   East   Africa,   or   refugees   being   persecuted   in   Colombia,   seek  refuge   in   urban   areas   close   by,   increasing   the   pressure   on   neighboring   countries’  infrastructures.   Refugee-­‐receiving   states   often   require   large   amounts   of   foreign  assistance  to  cover  the  costs  of  humanitarian  response.  The  UNHCR  estimates  the  cost  

 

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of  Syrian  refugees  at  over  3  billion  USD  for  Jordan.  Hence,  countries  directly  affected  by  these   refugee-­‐generating   crises   have   significant   incentives   to   push   the   international  community  to  collaborate  for  distributing  refugees.    UN  member   states   located   faraway  from   refugee-­‐producing   crises   do  not   automatically   feel   the  challenges   of   urban   refugeeism   as  much   as   bordering   states   or   states  close   to   conflict   zones.   As   a   result,  they  can  often  be  more  selective   in  selecting   which   refugees   are  awarded  resettlement  in  their  cities.  It   proceeds   from   this   that   some   of  states  become  the  target  of  criticism  for   deterring   the   arrival   of   new  refugees   by   increasing   border  controls   and   detaining   asylum  seekers.   Nations   in   this   bloc   are  developed,   and   include   the   United  States,  Canada,  and  many  members  of  the  European  Union.  Similarly,  Australia  has  been  criticized  for  turning  away  asylum  seekers  and  refusing  asylum.  The  United  States  also  faces  its  share  of  criticism  for  the  way  it  deals  with  child  asylum-­‐seekers  on  border  with  Mexico,   often   times   deporting   thousands   of   minors   conflict   refugees   from   Central  America.      

QUESTIONS  A  RESOLUTION  MUST  ANSWER    

• Should  the  committee  consider  changing  the  UNHCR’s  definition  of  refugee?  • Should  the  UNHCR  alter  its  focus  to  help  asylum  seekers  before  they  cross  

borders  or  enter  cities?  • What  measures  should  be  implemented  to  work  with  the  refugee-­‐producing  

countries  in  order  to  stop  violence  and  persecution  before  they  occur?  • Which  mechanisms  facilitate  the  quicker  registration  of  urban  refugees?  • Is  reintegration  into  new,  local  communities  or  are  resettlement  and  repatriation  

the  better  options?    

 

Antonio  Guterres  is  the  current  UN  High  Commissioner  on  Refugees.