Global Needs Assessment

Zambia began hosting refugees fleeing wars in nearby countries just two years after becoming independent in 1964. UNHCR's operations have continued ever since, expanding and contracting as the situation demanded. At its peak in 2001, Zambia hosted over 280,000 refugees - mainly from the Democratic Republic of Congo, DRC, and Angola.

With improved political stability and security in many of the countries generating refugees, UNHCR's voluntary repatriation operation in recent years has helped tens of thousands return home to Rwanda, Burundi, Uganda and especially Angola and the DRC. As of August 2008, the number of refugees in Zambia has been significantly reduced to around 88,000.

Country Operations Profile

Working environment

The context

At the end of July 2008, Zambia was host to some 88,200 refugees. The majority, 52,300, were from the Democratic Republic of the Congo (DRC), while another 27,200 were from Angola. About 66 per cent of these refugees live in settlements and camps, and another 5 per cent in urban areas. The rest are spontaneously settled in different parts of the country, mainly along its borders with Angola and the DRC.

The Zambian authorities require refugees to reside in designated camps or settlements. Those refugees residing in urban areas must have special permission to do so. Zambian law does not allow refugees to obtain citizenship. However, the Government has indicated that it will grant permanent residence to some long-staying refugees.

The vast majority of refugees in settlements have been granted refugee status on a prima facie basis, while others have been accepted as refugees on the basis of individual refugee status determination (RSD) conducted by the National Eligibility Committee.

Although Zambia is party to the 1951 Refugee Convention and its 1967 Protocol as well as the 1969 Convention of the Organization of African Unity, it maintains a reservation to the 1951 Convention with regard to the right of employment. In practice, however, refugees may be employed or self-employed. Nevertheless, legal restrictions on their freedom of movement limit their ability to work and achieve self-reliance, particularly for those living in the settlements and camps. Nonetheless, most urban refugees have attained some degree of self-sufficiency.

UNHCR has been advocating for the adoption of a new refugee law that would be in line with international protection principles. This law would include explicit prohibition of refoulement, provide for the right to documentation of refugees upon arrival, and clearly spell out the refugee status determination procedure.

The needs

UNHCR's programme in Zambia has been guided by joint planning sessions with refugees, as well as implementing and operational partners. Participatory needs assessments enable the Office to prioritize activities, in order to find sustainable solutions for the most pressing problems faced by refugees.

UNHCR relies on operational data and key standards and indicators to identify, verify and quantify needs. The main gaps are in the areas of legislation, documentation, freedom of movement, education, health, vocational training and livelihoods. Physical security has been identified as an important concern for urban refugees, many of whom also face pressure to leave urban areas. The promotion of self-reliance has been highlighted as an area requiring more efforts by all stakeholders.

Main objectives

• Improve the capacity of the Government and civil society to protect and assist refugees and asylum-seekers in accordance with Congolese refugee women carry food after a distribution in Kala camp. international standards.

• Ensure that refugees and asylum-seekers have access to national social services, including

• Promote more flexible criteria for refugees to receive education and health care. urban residence permits, which would allow them to

• Find durable solutions for refugees, including work and benefit from health care services. voluntary repatriation in safety and dignity; local

• Improve knowledge of refugee law among government integration for those with few prospects of returning officials, including immigration officers, home; and resettlement for a limited number of Parliamentarians, members of the Refugee Status individuals. Determination Eligibility Committee, and the Sub-Committee on Urban Refugees.

Key targets

• Refugees are not targets for violence.

• 1,270 refugees are resettled in third countries.

• 15,000 Congolese, 7,000 Angolans and 210 refugees of other nationalities are assisted to return home.

• Parliament passes a new refugee law.

• 1,900 Angolan refugees are granted permanent residence permits.

• A government-operated refugee registration system is fully operational.

• Refugees receive key documents such as birth certificates and marriage certificates on a regular basis.

• Angolan refugees improve their self-reliance by participating in income-generating activities.

• All refugees have access to basic and essential services such as health care and education.

Strategy and activities

UNHCR will seek durable solutions for Angolan refugees, including voluntary repatriation, local integration in Zambia, and limited resettlement, while also ensuring that refugees are protected and assisted as the operation winds down. In the Meheba and Mayukwayukwa settlements, UNHCR will focus on strengthening protection mechanisms, including registration, the issuance of documentation and access to justice through mobile courts.

In addition, UNHCR will maintain prevention and response mechanisms to address sexual and gender-based violence through a task force established for this purpose, while also ensuring the continued functioning of Victim Support Units, the HIV task force, multi-functional teams and neighbourhood watch groups. Individuals with specific needs will be identified and monitored to ensure they receive appropriate protection and assistance.

UNHCR will promote self-reliance among refugees to reduce the need for continued support in the education, health, agriculture, water and sanitation sectors. While resettlement opportunities for Angolan refugees are limited, UNHCR will continue to pursue this solution for those with specific protection needs.

UNHCR will facilitate the voluntary repatriation of Congolese refugees residing in the Kala and Mwange refugee camps. Refugees considering repatriation will receive information about the socio-economic conditions prevailing in the areas of return. Those opting to go home will be registered and transported to Katanga Province by road and ship. While these refugees are in Zambia, the Office will ensure that they receive basic assistance and services in education, water, sanitation and health.

Due to the progress achieved in facilitating voluntary repatriation, UNHCR will review the possibility of closing Mwange camp and merging the remaining population in Kala camp. It will also ensure sustainable environmental management in the refugee camps and their surroundings, including areas where camps have been closed.

While policies, requiring refugees to reside in camps, remain unchanged, UNHCR will encourage the Government to make the criteria for urban residence more flexible. This would benefit refugees by allowing them access to better medical assistance and more job opportunities.

Constraints

UNHCR views local integration as the most appropriate durable solution for many long-staying Angolan refugees, and has promoted both self-reliance and changes in the law to make it possible for them to gain permanent resident status. Although the Government has recently taken steps towards the revision of relevant laws, it has moved slowly because of political sensitivities related to the integration of refugees into Zambian society. As a result, the Angolan refugee population dependent on UNHCR has remained larger than expected.

Repatriation to the DRC began in May 2007. The goal was to help at least 20,000 Congolese refugees to return by the end of the year and another 20,000 by the end of 2008. But security problems in the main areas of return in Katanga Province during the second half of 2007 and other concerns among the refugees, such as the availability of services in areas of return and lack of money for school fees, have kept levels of return lower than projected. The slow pace of the repatriation has put an unexpected burden on the 2009 programme, as more refugees than planned for remain in the settlements.

Organization and implementation

Coordination

UNHCR coordinates country-wide refugee assistance operations in collaboration with the Commissioner for Refugees of the Ministry of Home Affairs. The Office has 10 implementing partners: one local and three international NGOs as well as six government departments. UNHCR will also work closely with WFP and other UN agencies. As part of the UN Country Team, UNHCR will liaise with other UN agencies regarding issues of common interest and participate in the UN thematic groups on gender and HIV and AIDS. The Office will conduct joint programmes with UN agencies to improve the provision of targeted development assistance in refugee-affected areas.

Financial information

UNHCR's requirements increased significantly in 2006 due to the peak period in the Angolan repatriation. Since 2006, the budget has steadily declined. In 2009, the budget will increase again as a result of the Global Needs Assessment initiative, which will target unmet needs for USD 4.9 million.