2010 UNHCR country operations profile - Democratic Republic of the Congo

Working environment

The context

Joint action by the armies of the Democratic Republic of the Congo (DRC) and Rwanda against the Democratic Forces for the Liberation of Rwanda (FDLR) rebel group in Eastern DRC had raised hopes of stability in this restive region. However, various armed groups, such as the Lord's Resistance Army in Province Orientale and FDLR in North Kivu province, continue to be active. The rest of the country remains relatively calm.

The DRC continues to host some 155,000 refugees from Angola, Burundi, Central African Republic, the Republic of the Congo, Rwanda, Sudan and Uganda. Most live in rural areas and have been recognized as prima facie refugees. They enjoy relative freedom of movement, though possibilities for local integration are limited.

The return of Congolese refugees from Zambia and Tanzania is progressing steadily and will continue throughout 2010. On the other hand, the return of Congolese refugees from Rwanda and Burundi remains problematic; any unorganized or forced return of these people from Rwanda is likely to jeopardize peace and stability in eastern DRC.

In 2008 and early 2009, the scale of displacement of civilian populations in eastern Congo was of grave concern to the humanitarian community. By the end of December 2008, there were some 1,617,600 internally displaced persons (IDPs) in eastern DRC, with 840,000 in North Kivu, 335,000 in South Kivu, 282,600 in Province Orientale and 160,000 in Haut Uele District.

The needs

Despite a noticeable trend of IDPs returning to North Kivu, the political situation in the province is expected to remain volatile and will continue to keep those in the camps, with host families and at other sites, displaced. Though the number of IDPs in UNHCR-run camps is expected to decrease, protection and assistance needs will remain high.

UNHCR reintegration programmes facilitate the life of returnees and promote peaceful co-existence between the communities. Disputes concerning land and property, which are numerous, are settled by local and traditional leaders and by mediation and conflict-resolution committees supported by UNHCR.

The Office also supports the reintegration of IDPs by conducting needs assessments in protection, peace building and reconciliation, shelter and income generation.

While Angola declared the end of voluntary repatriation to the country in 2007, the repatriation of thousands of Angolan refugees still living in the DRC will need to be considered.

Main objectives

Fair protection processes

• Provide legal and protection assistance to refugees.

• Help build the capacity of the Government to conduct refugee status determination (RSD).

Security from violence and exploitation

• Promote the prevention of, and rapid response to, sexual and gender-based violence, and HIV and AIDS.

Basic needs and services

• Provide transitional shelter to IDPs and host families in order to reduce protection risks and conflict.

• Ensure that IDPs living with local communities benefit from protection and material assistance as appropriate.

Community participation and self-management

• Improve inter-agency cooperation in areas of return so that returnees are included in the development programmes of other UN agencies.

Durable solutions

• Foster the local integration of refugees through income generation activities and vocational skills training.

• Advocate for durable solutions for Burundian and Rwandan refugees, not limited to voluntary repatriation.

• Develop and implement conflict prevention, peace building and reconciliation projects in areas of return.

• Facilitate the return of IDPs and provide assistance to sustain their reintegration in areas of origin.

• Facilitate the return of refugees from the DRC in Tanzania, Zambia, Uganda and Rwanda, and create an environment conducive to their sustainable reintegration, through a community-based approach, in preparation for a gradual phasing out of UNHCR programmes.

• Resume the voluntary repatriation of refugees from Angola and the Republic of the Congo under UNHCR auspices.

Key targets for 2010

• All refugees and asylum-seekers are registered individually.

• All asylum-seekers have immediate access to RSD procedures.

• All reported survivors of sexual and gender-based violence receive support from UNHCR and its partners.

• Some 90 per cent of refugee children aged 6 to 11 are enrolled in primary education in all camps.

• All individuals identified as having a need for urgent resettlement leave for third countries.

• All repatriating refugees receive safe and secure transport to their areas of origin and the most vulnerable returnee households are equipped with adequate shelters.

• Transitional shelters are provided to 65 per cent vulnerable IDPs and host families in order to reduce protection risks and conflict.

• At least 80 per cent of land and property disputes are successfully mediated or referred to appropriate bodies for solution.

Strategy and activities

UNHCR will search for durable solutions by enhancing the RSD capacity of the authorities, seeking local integration opportunities and advocating for the regularization of the status of refugees in the DRC.

Urban refugees will continue to receive legal protection and targeted assistance. Rwandan refugees willing to repatriate voluntarily will be assisted. The Government will also be assisted with finding durable solutions for those who are not willing to return to Rwanda. UNHCR will encourage the Government to include people of concern in its national development plans. The Office will also continue to provide protection and assistance to Burundian refugees and seek durable solutions for them.

Most IDPs are expected to have returned to their areas of origin before the facilitated return of Congolese refugees from Rwanda begins. UNHCR will nonetheless design a contingency plan in case of a sudden return of Congolese refugees from Rwanda.

UNHCR will continue the voluntary repatriation of Congolese refugees from Zambia and Tanzania in 2010. A detailed reintegration plan focusing on reconciliation and community-based activities will be put in place, and the mediation of conflicts over land and property will be a priority.

UNHCR will advocate for greater involvement of the Government and UN development agencies in return areas. The Office will also work closely with local communities and returnees in implementing reintegration activities.

Within the framework of the cluster approach to IDP issues, UNHCR leads the protection and camp coordination and management clusters. As part of these responsibilities, the Office will focus on IDP profiling and the need to preserve the civilian nature of IDP camps. It will also seek to prevent and respond to sexual and gender-based violence.

Constraints

As conflict continues to prevail in Province Orientale and North Kivu, people of concern to UNHCR are subject to continued abuse by armed groups, and there is an increase in sexual violence. At present, some areas where intervention is deemed necessary remain inaccessible, and some return areas have only a small presence of UN agencies and development actors. State authority is tenuous in the remote areas where the majority of returnees live.

An almost total lack of basic social infrastructure has had a negative impact on the voluntary return process. Meanwhile, refugees of Rwandan and Burundian origin are subject to frequent harassment due to the perception that rebel forces engaging in armed conflict in the DRC are backed by Rwanda and Burundi. Administrative delays are standing in the way of durable solutions, and the Government is reluctant to grant legal status to refugees.

Organization and implementation

Coordination

UNHCR will continue to work closely with WFP, ICRC, FAO, UNDP, UNICEF, WHO and some 28 implementing partners, eight of which are national NGOs. In the context of UN reform, partnerships with other UN agencies are given priority.

UNHCR participates in the UN Country Team, Programme Management Team and the UN Development Assistance Framework, the UN Stabilization Plan for the East of Congo and the Humanitarian Action Plan.

Through the Commission Nationale pour les Réfugiés, the Government of the DRC supports UNHCR's protection efforts. However, the Government's financial assistance is limited due to the decade-long internal conflict and other constraints.

Financial information

The comprehensive needs assessment for 2010 identified significant gaps in the provision of basic assistance, particularly shelter for both refugees and IDPs. In addition, UNHCR plans to increase self-reliance programmes for both groups and expand activities to facilitate and support return and repatriation.

Source: UNHCR Global Appeal 2010-2011