Alternative viewpoints: resolutions and recommendations

A Message to the Second International Conference on

Assistance to Refugees in Africa (ICARA II)

The Symposium, 'Assistance to Refugees in Africa: Alternative Viewpoints', held in Oxford, England, 27-31 March 1984, and comprising 150 participants, including representatives of refugees, governments, national and international bodies, refugee workers and academics, welcomes the fact that ICARA II has been convened. The Symposium recognizes that ICARA II is just the beginning of a process of infrastructural development in refugee-affected areas. The Symposium hopes that following the financial pledges made at the Conference, the implementation of projects will entail the full participation of refugees and refugee organisations as well as host governments. A primary concern of the Symposium is to ensure that any material assistance to refugees is linked to the protection of those refugees within the host country. This protection, which includes both physical and economic security, is the responsibility not only of the host country, but also of the international community. The Symposium emphasizes the necessity for refugee involvement in all aspects of protection, voluntary repatriation, and material assistance. The Symposium also strongly believes that a durable solution to the refugee problem in Africa can best be achieved by tackling the root causes that generate refugees.

Resolutions of the Symposium

1. The Symposium calls upon the international community to address itself urgently and seriously to the root causes of refugee exoduses; to take the measures necessary to obviate further refugee exoduses, and facilitate the return of refugees to their country of origin if and when they wish to do so. The Symposium calls upon the international community to examine the pressures that can be brought to bear on governments that provoke refugee exoduses. The members of the Symposium express their commitment to the cause of refugees and oppressed peoples, and call on all other individuals to work towards the goal of a world without refugees.

2. The Symposium welcomes the commitment of African governments to instruments such as the United Nations Universal Declaration of Human Rights and OAU Convention on Refugees, and welcomes the decision of the Organization of African Unity to establish an African Commission on Human and Peoples' Rights. The Symposium calls on all African governments to remove the conditions which create refugees and to protect existing refugees by observing the provisions of these instruments, above all by observing the principle of non-refoulement. The Symposium also calls on all African governments to make every effort to resolve national conflicts and protect minorities.

3. The Symposium recognises the important financial contribution of those countries which give assistance to refugees in Africa, urges those countries to increase their contributions, and calls on all countries currently not making such contributions to do so. The Symposium calls on all countries to desist from the pursuit of any political, economic, or military policy that creates or perpetuates the conditions that provoke refugee exoduses in Africa and elsewhere.

4. The Symposium calls on the UNHCR, host governments, donor governments and NGOs urgently to promote the participation of refugees in all decision-making structures and procedures affecting their conditions of life.

(i) At the local level, this would involve an obligation on the part of the UNHCR, host governments, donor governments and NGOs to develop appropriate fora and procedures for refugee participation in decision-making and in the monitoring of local expenditures on refugees. This obligation should be reflected in the text of implementing agreements.

(ii) At the national level, existing refugee organizations should be recognized and involved in policy-making procedures on relevant issues. This would include the vetting of implementing partners, and monitoring the extent to which money raised in the name of refugees is spent on refugees. Where refugee organizations do not exist or where they are not fully representative, other forms of refugee participation should be facilitated.

(iii) At the international level, efforts should be made to find ways to allow refugee participation in relevant structures and procedures, without compromising the humanitarian, non-political status of host countries.

(iv) The Symposium urges the UNHCR, NGOs and host governments to employ refugees.

(v) Above all, refugees must participate in any decisions concerning voluntary repatriation.

Recommendations of the Symposium

1. Economic Development

The Symposium recommends:

1.1 That refugees and refugee communities be enabled to become economically self-reliant as quickly as possible. The Symposium therefore welcomes the UNHCR's report on Refugee Aid and Development, and calls on the international community to provide the resources that would enable its recommendations to be implemented.

1.2 That relevant bodies place greater emphasis on allowing refugees and refugee organisations to administer development funds and projects.

1.3 That where integrated development plans are introduced, equal access to the available resources is guaranteed for refugees.

1.4 That where refugees are leaving a country in which a civil war or liberation struggle is taking place, development funds be made available for areas not under the control of the central government in order to prevent or reduce the outflow of refugees from that area.

2. Education and Training

The Symposium recommends:

2.1 That educational programmes for refugees, including vocational training, be prepared with regard to the fact that refugees come from diverse backgrounds and into different situations. They cannot, therefore, be treated as a single unit.

2.2 That relevant organizations aim to provide a balance in educational provisions for refugees, allocating scarce resources between non-formal primary, secondary, vocational and further education sectors in accordance with the specific needs of each situation.

2.3 That in the light of the above recommendations, educational liaison committees be established in each host country, bringing together refugee representatives, relevant NGOs, UNHCR staff and Education Ministry officials, to formulate appropriate educational policies and practices.

2.4 That information on all aspects of education be urgently made available to all refugees through the development of refugee educational counselling services, manned by professionally qualified staff with appropriate information relevant to all levels of education.

2.5 That a system of examination, assessment and certification be devised for implementation by the UNHCR and local Ministries of Education which will be equivalent in standard across countries, which will be recognized by governments and academic institutions, and which will provide better access to education to refugees without certificates and documents.

2.6 That the UNHCR, relevant NGOs and host governments give much greater emphasis to non-formal modes of education in view of the fact that it affects the largest number of refugees, including the majority of refugee women.

2.7 That within the area of non-formal education, special attention be paid to the development of projects organised by refugees, and to the training and proper payment of non-formal educators. Non-formal education (distance teaching, radio broadcasts, village class, home and community teaching) must also be used to teach refugees in areas such as health, agriculture, child-care, nutrition, hygiene, and practical skills such as sewing, weaving and pottery.

2.8 That vocational training programmes for refugees be devised only after a careful study of job opportunities in both host and home countries.

2.9 That vocational training be linked to productive work, and that agencies sponsoring such training assist refugees to find their first job through the provision of equipment, advice, introductions and temporary material support.

2.10 That the search for a larger number of appropriate educational opportunities and bursaries for refugees at post-secondary level be intensified, and that students and placements be selected by professionally qualified panels and with regard to future employment opportunities.

2.11 That refugee education policy always be developed with regard to the host country's educational policy, in order to optimize the use of resources for the good of both refugees and the host community.

2.12 That as refugee education is preferably integrated into the national education system of the host country, instruction will be in the language of the host country. If this is the case, however, refugees require two special provisions: first, that extra language training be provided; and second, that additional classes to maintain the refugees' own language and background t also be given.

3. Health

The main health problems in refugee settlement areas are brought about by failures in public health. The Symposium therefore recommends:

3.1 That a strong emphasis be placed on preventative health care without removing refugees' rights to receive adequate curative care.

3.2 That primary health care be implemented in refugee settlements in line with the host government's policy, and that health facilities be provided where they do not exist for both refugees and the host community.

3.3 That the UNHCR mandate be re-examined so that it is able to provide health and other forms of assistance to internally displaced people.

3.4 That the host governments and implementing partners increase their efforts to employ suitably qualified refugees in their refugee health programmes, and that refugees be trained in the prevention and treatment of common diseases.

3.5 That the UNHCR co-ordinate and support programmes in the areas of countries that are likely to host a refugee influx, and train personnel and prepare contingency plans so as to effect a rapid response to refugee emergencies.

3.6 That greater co-ordination be achieved in the health programmes of different agencies operational in the same area. That the drugs used are only those recommended by the UNHCR and World Health Organization. That greater efforts be made to monitor the standards and success of such programmes.

3.7 That greater access to relevant research be provided to refugee health workers. That further research be conducted into the provision of health care to urban refugees and into health care generally.

4. The Media

The refugee situation is regrettably one of the most dramatic in Africa today. The Symposium recommends:

4.1 That the media make a much greater effort to understand this situation, of which the traditional image of starving children is but a caricature.

4.2 That all those involved in refugee situations recognise the importance of a partnership with the media. Equally, the media must recognize its responsibility to publicize the plight of refugees. This is often essential to their security. NGOs must actively seek to inform the media in their home countries on the refugee issue.

4.3 That the media are encouraged to understand the political and economic contexts of refugee situations, and the ability of refugees to play a substantial part in the management of their affairs. Refugee self-help is a better story than the usual one of helpless dependency.

4.4 That refugees be encouraged to gain experience in dealing with the media, and to supply the media with more and better information.

4.5 That the right of refugees to information and communication services be formally recognized in the international instruments governing the status and conditions of refugees.

4.6 That within refugee settlement areas, efforts be made to ensure that no single group of refugees has control of these information and communication services.

4.7 That host governments be encouraged to give journalists free access to refugee communities within their countries.

4.8 That the local media in host countries be encouraged to give coverage to refugee issues and to allow the refugees' voices to be heard.

5. Protection

The Symposium recommends:

5.1 That all countries which have not yet acceded to the relevant international legal instruments on the subject of refugee protection be urged to do so at an early date.

5.2 That countries which have acceded to the relevant instruments reexamine any reservations which they may have made at the date of accession or subsequently, with a view to the lifting of such reservations, and to review any relevant national legislation for the same purpose.

5.3 That the UNHCR be actively involved in the monitoring of the protection offered to refugees by host governments and insist of the granting of refugee status to all those eligible.

5.4 That identity cards and other necessary documents be issued as a matter of course to all refugees at an early date following their arrival in the country of asylum. That funding be made available for such documents, and that all information obtained in the registration process remain confidential and not divulged to the country of origin. That in no circumstances should refugees incur expenses in connection with the registration and documentation process.

5.5 That the rights and duties contained in any relevant legislation be made known to all persons affected, including refugees members of the host community, and officials of the host government particularly those in the police and immigration services.

5.6 That consideration be given by the responsible parties to the development of appropriate methods of encouraging the absorption of the concept and context of refugee rights into the ethics of the host community.

5.7 That all UNHCR staff members be adequately trained and equipped to handle protection issues.

5.8 That the international community strongly condemn the recent occurrence (in flagrant violation of international law and human morality) of the refoulement of refugees in East Africa, involving Kenya, Tanzania and Uganda. That the international community give urgent attention to the present position of these refugees, addressing itself to every means of alleviating their plight. That the international community consider appropriate methods of strengthening the machinery for the international protection of refugees, in particular, methods aimed at the prevention of such incidents and the possibility of imposing sanctions following contraventions of the fundamental legal principle of non-refoulement.

5.9 That all countries adopt a more liberal policy in connection with the granting of asylum, in particular, those European countries which have introduced legal or administrative barriers to the granting of asylum.

5.10 That NGOs and the UNHCR strengthen their co-operation in every aspect of refugee protection.

5.11 That host governments be helped by the international community to resist military incursions designed to weaken or violate the protection of refugees.

6. Repatriation

The Symposium recommends:

6.1 That voluntary repatriation be a decision taken by the refugee alone. The role of UNHCR is to provide information which will help the refugee arrive at that decision. Fact-finding missions undertaken by refugee leaders are an important part of this information-gathering process.

6.2 That only when the decision to repatriate is taken should be UNHCR and governments concerned effect arrangements for the return. In particular, the UNHCR should not make formal arrangements whithout consulting refugees and where there has been no major political change in the country of origin.

6.3 That neutral observers from bodies concerned with human rights be involved in the assessment of the situation in a country of origin and that these observers monitor the whole process of voluntary repatriation.

6.4 That the UNHCR introduce appropriate methods of verifying the safety and protection of refugees who have voluntarily returned to their countries of origin.

6.5 That in the light of these recommendations, the UNHCR refrain from entering into further tripartite arrangements such as those governing the process of repatriation from Djibouti to Ethiopia, and that the UNHCR urgently explore ways in which refugees and refugee organisations can be directly involved in the planning, implementation and monitoring of future voluntary repatriation programmes.

7. Resettlement

Africa prefers to solve refugee problems within the African context. However, it is recognised that there are special cases where resettlement is the most suitable durable solution. The symposium recommends:

7.1 That refugee resettlement be the subject of a special study, which examines the opportunities for the resettlement of African refugees in areas other than North America and Western Europe.

7.2 That when this study is completed, the UNHCR, NGOs, relevant governments and refugee representatives meet to discuss its recommendations, make proposals for action, and implement these proposals.

7.3 That in view of the fact that resettlement often deprives refugee communities of their most skilled and talented members, relevant organizations and refugee representatives consider methods of reducing the demand for resettlement where it is not essential to the health and safety of the refugees concerned.

7.4 That resettlement countries examine their current selection procedures and consider granting priority to

(i) vulnerable refugees, especially the handicapped.

(ii) refugees who have failed to gain recognition from the host government.

(iii) refugees who have been granted mandated status.

(iv) refugees with or without the recognition of the host government and whose protection cannot be guaranteed in the host country.

(v) refugees whose skills are not required in the country of first asylum and whose prospects of returning to their country of origin are remote.

7.5 That selection for resettlement always be determined on the basis of real need, and not on the basis of special connections or any other form of discrimination, and that, except on special protection cases, the host government also be involved in ensuring fair selection according to the priorities cited above.

7.6 That, where possible, resettlement be carried out on a family basis.

8 . UN HCR/Host Government/N GO Relations

The Symposium recommends:

8.1 That all refugees be provided with full and accurate information regarding their own rights and the obligations of the host government, the UNHCR and relevant NGOs.

8.2 That all refugees be provided with full and accurate information regarding the roles of and the relationship between the host government, the UNHCR and relevant NGOs.

8.3 That the UNHCR consider expanding the brief of its Public Information Officers to include information for refugees, and provide funding for the publication of that information.

8.4 That the UNHCR finance the production of "Blue Books" by refugees for refugees.

8.5 That the UNHCR guarantee all refugees access to a regular postal service.

8.6 That refugees be provided with regular, full and accurate information regarding any events in their settlement area, in the host country generally, in their country of origin or elsewhere that is relevant to their situation.

8.7 That refugee representatives, however chosen, receive orientation and training that will enable them to perform their duties in an effective and efficient manner.

8.8 That, in drawing up projects for UNHCR funding, governmental and non-governmental agencies include information on the nature of refugee participation in the planning, implementation, monitoring and evaluation of the project, and that funding be withheld from proposed projects which fail to include such information.

8.9 That refugee organizations engaged in humanitarian work be given NGO status in the country or countries in which they are operational.

8.10 That NGOs refrain from withdrawing from projects before their planned completion dates, and that NGOs work through and with local staff, refugees and refugee organisations, thereby allowing projects to continue after the withdrawal of the NGO.