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Global Needs Assessment

Yemen lies on a historical migration route linking the poverty-stricken and politically volatile Horn of Africa with the oil-rich countries of the Arabian Gulf. As a consequence, the country faces unique challenges. With the help of smuggling networks, thousands of people cross the Gulf of Aden each year fleeing conflict and poverty. Some are refugees escaping conflict while others are migrants in search of a better life.

This trend has persisted for almost two decades despite the perils of the voyage, the ruthlessness of the smugglers and a rising annual death toll. In the first nine months of 2008, almost 30,000 people had arrived in Yemen, while several hundred died or went missing during the voyage across the Gulf.

The people crossing from Somalia and Djibouti include Somalis and Ethiopians, refugees and economic migrants. Yemen has a generous open-door policy for Somalis, granting arrivals refugee status but many Ethiopians are arrested and either detained or deported. Some arrivals are fearful of the security forces and go underground as soon as they reach the country, avoiding assistance and advice available at UNHCR reception centres.

Yemen's limited economic and social structure affects its ability to continue absorbing large numbers of boatpeople. According to conservative estimates, some 150,000 Somalis may currently live in Yemen. Not all of them refugees. Most refugees reside in urban areas particularly in Sana'a and around Basateen in the port city of Aden, while more than 10,000 are accommodated in the isolated Kharaz refugee camp. Meanwhile, conflict in northern Yemen has created an internally displaced population of about 77,000 people of whom about 20 percent are in Sa'ada city.

With the precarious security situation in Somalia it is unlikely that Somali refugees will return home anytime soon.

The Global Needs Assessment in early 2008 identified protection shortfalls and gaps in essential and basic services including limited access to hospitals; insufficient food rations in Kharaz camp; limited opportunities to improve livelihoods and become self-reliant; and lack of programmes to address sexual abuse and violence. The government also identified gaps in its response to protect refugees and asylum seekers including the need for a structure such as a bureau of refugees; legislation to address the needs of asylum seekers; and enhancing policy on refugees and migration issues. Funding under the GNA could help address these issues.

Related GNA Documents

2010 UNHCR country operations profile - Yemen

Working environment

The context

Yemen is host to some 155,000 refugees, 95 per cent of whom are Somalis who have been granted prima facie refugee status by the Government. Other refugees in the country include Iraqis, Ethiopians and Eritreans, most of them living in Sana'a and Aden. The Kharaz refugee camp hosts some 13,500 people.

Mixed migration from the Horn of Africa to Yemen continues unabated, with 2008 witnessing more than 50,000 new arrivals - a 70 per cent increase from the previous year. Most of the new arrivals travel across the Gulf of Aden, but a rising number are crossing the Red Sea. This trend continued throughout 2009, which also saw a marked increase in the arrivals of non-Somalis. The Government arrests Eritreans and Ethiopians on arrival, deports most of them, and restricts access to those detained.

Yemen is one of the poorest countries in the region, with high unemployment and inflation. A severe drought and food shortages, combined with the effects of the global financial downturn, have limited the Government's ability to absorb the growing tide of mixed migrants.

The security situation in the country is volatile. Tensions between the northern and southern regions have been exacerbated by the cancellation of parliamentary elections and tribal conflicts, including ongoing clashes between Government forces and the Al Houthis tribe in the Sa'ada Governorate. The five-year-old conflict between the authorities and the Al Houthis tribe escalated in August 2009, leading to the displacement of some 150,000 people.

Access to the Sa'ada region remains difficult. Indeed, UNHCR's operations are generally constrained by concerns about staff security, as rebel groups have stepped up their attacks on Government and foreign interests, while Al-Qaeda has threatened to target UN operations.

The needs

With the political situation in Somalia expected to remain volatile and the prospects for any general economic recovery in the Horn of Africa waning, more mixed-migration movements are expected to affect Yemen. In this context, the establishment of a national asylum system and relevant legislation is an urgent priority. Yemen is the only State Party to the 1951 Refugee Convention on the Arabian Peninsula.

The number of people in Kharaz camp is expected to increase and more assistance and infrastructure will be required to support them. Better relations with the host community are a priority if a favourable protection environment is to be preserved. As the refugees are squeezed by the increased competition for scarce resources and a contracting labour market, expanding vocational training could improve their self-reliance and decrease their dependence on assistance. Programmes will be planned and implemented in coordination with Government moves to expand public infrastructure. UNHCR will also work with the newly established refugee committees throughout the country, to improve coordination and communication.

An increase in piracy and the growing presence of international naval forces in the region surrounding the Arabian Peninsula, highlight the need for awareness of the humanitarian principles and practices associated with rescue at sea.

As the ongoing conflict in the north of the country intensifies, the number of internally displaced persons (IDPs) increases and so do their needs. UNHCR will seek access to all populations of concern to ensure that they are protected and provided with urgently needed assistance.

Main objectives

Favourable protection environment

  • Improve implementation of the 10-Point Plan of Action in response to mixed migration, in coordination with the Government.

  • Strengthen the legal framework and the capacity of institutions to protect and assist refugees, asylum-seekers and IDPs.

  • Expand the Government's capacity to discharge its international protection obligations.

Fair protection processes

  • Ensure effective protection for all refugees, asylum-seekers, IDPs and others of concern, with particular attention to women and children.

  • Improve the reception conditions for non-Somalis, particularly along the Red Sea coast.

Basic needs and services

  • Provide basic humanitarian assistance and services to refugees, asylum-seekers and IDPs in camps, urban areas and IDP settlements.

Community participation and self-management

  • Maximize the self-reliance of refugees.

Durable solutions

  • Facilitate voluntary repatriation, whenever possible, in conditions of safety and dignity.

  • Use resettlement as a strategic protection tool and a durable solution.

  • Improve reception facilities and assistance for new arrivals.

Key targets for 2010

  • The modalities of a national asylum system, including draft legislation; a Department of Refugee Affairs with a national presence; and a National Eligibility Committee are in place by the end of 2010.

  • The Government agrees to a detention monitoring system and UNHCR has access to all detained people of concern.

  • UNHCR develops a training plan benefiting some 500 officials, including at least five Government trainers.

  • The waiting period for refugee status determination is reduced to seven weeks.

  • The prevalence of anaemia is reduced, and the global acute malnutrition rate is cut by 50 per cent.

  • The number of children with psycho-social needs who receive assistance goes up by 50 per cent.

  • The number of children enrolled in primary and secondary education increases by 30 per cent, and dropout rates decline.

  • All reported survivors of sexual and gender-based violence receive support.

  • Some 80 per cent of people of concern, including IDPs, are profiled.

  • UNHCR's lead role in the IDP protection cluster is enhanced by means of regular cluster meetings and coordination of project implementation.

  • Conditions in the IDP camps meet standards.

2010-11 UNHCR planning figures for Yemen
TYPE OF POPULATION ORIGIN JAN 2010 DEC 2010 - JAN 2011 DEC 2011
TOTAL IN COUNTRY OF WHOM ASSISTED
BY UNHCR
TOTAL IN COUNTRY OF WHOM ASSISTED
BY UNHCR
TOTAL IN COUNTRY OF WHOM ASSISTED
BY UNHCR
Total 268,540 268,540 231,510 231,510 235,500 235,500
Refugees Somalia 158,180 158,180 178,360 178,360 201,000 201,000
Iraq 5,310 5,310 6,020 6,020 6,780 6,780
Ethiopia 2,520 2,520 2,890 2,890 3,250 3,250
Various 1,520 1,520 1,740 1,740 1,970 1,970
Asylum-seekers Iraq 80 80 200 200 200 200
Ethiopia 410 410 1,020 1,020 1,020 1,020
Eritrea 140 140 340 340 340 340
Various 380 380 940 940 940 940
Internally displaced 40,000 40,000 20,000 20,000 10,000 10,000
Returnees (IDPs) 60,000 60,000 20,000 20,000 10,000 10,000

Strategy

UNHCR's strategy in 2010 will focus on improving the protection of refugees and asylum-seekers, while seeking durable solutions, and particularly resettlement. The Office will advocate for the development of a national asylum system, upgrade reception conditions for refugees and asylum-seekers, and improve relations with host communities.

Within this strategy, a comprehensive protection training programme for Government authorities, combined with support for the newly established Centre for Migration and Refugee Studies, will serve to increase the understanding of protection principles and encourage the establishment of an asylum system. Through capacity-building, UNHCR aims to increase the role of the Government in refugee affairs.

UNHCR will increase efforts to improve the living conditions of refugees and asylum-seekers, pending durable solutions, and will identify refugees with specific protection needs to be prioritized for resettlement. The Office aims to ensure basic care, safety, security and maintenance in the camp, while also seeking to improve living conditions in urban areas.

In addition, UNHCR will improve the access of refugees to education and vocational training, address the needs of women refugees, and raise awareness on HIV and AIDS. A particular focus in 2010 will be on encouraging refugees to become involved in their own protection through the newly established refugee committees.

As the lead agency for the IDP protection and camp management clusters, UNHCR works to ensure an accurate profile of populations of concern through increased access to them and enhanced protection monitoring. The Office will also offer psycho-social and legal counselling to IDPs and returnees, help build the capacity of local authorities and provide emergency relief to displaced populations and returnees. Furthermore, it will aim to improve the living conditions of vulnerable IDPs and returnees, identify protection problems in areas of return, and promote the search for durable solutions.

Another major aspect of UNHCR's strategy is to reinforce coordination with donors, UN organizations, NGOs and the authorities.

Constraints

Strategies on mixed-migration flows are dependent on the political and economic situation in Somalia and the Horn of Africa. Security concerns affect UNHCR's access and operations. Meanwhile, the Government of Yemen is concerned with balancing its goodwill towards new arrivals with its internal security and other concerns. The volatile political and economic situation and the growing numbers of refugees and mixed migrants are straining the State's security, political, economic and social foundations. This may lead the Government to review its policy of granting prima facie refugee status to Somalis. With regard to the growing IDP situation in the north, access to the area remains a challenge, as does the need to convince all parties of the United Nations' neutrality and impartiality.

Organization and implementation

Coordination

UNHCR will continue to expand coordination with the Government, through the opening of registration centres, the provision of land for Kharaz camp and for the reception centre. Collaboration will also focus on joint assessment missions and the drafting of national refugee legislation.

UNHCR will expand partnerships with international and national NGOs. It will also work with the various inter-agency mechanisms and the UN Country Team, and sector working groups. Agreements will be developed with UN agencies to formalize joint commitments for long-term projects. UNHCR will continue to work with the Yemeni Red Crescent and explore new partnerships, with other actors in 2010, in order to improve the delivery of assistance to people of concern.

Financial information

Until 2007, UNHCR's budget in Yemen averaged USD 4 million, which fell short of meeting the basic needs of refugees. To further support the Government and address the protection and assistance gaps for people of concern, UNHCR increased its budget from USD 6.8 million in 2007 to USD 19.9 million in 2008.

In 2008, the pilot global needs assessment focused on developing activities to address gaps in basic needs, as well as ensuring a favourable protection environment, fair processes and a responsive asylum system during 2009. As a result, the 2009 budget has progressively been increased. The 2010 budget stands at USD 28 million, out of which some USD 5 million is to cover IDP needs and some USD 22 million is for refugee programmes.

A dramatic deterioration of the internal conflict in Sa'ada province in late 2009 has led to additional sizeable population displacements. Therefore, the budgetary requirements are being revised to respond to the needs of the tens of thousands of new IDPs.

2010 UNHCR budget for Yemen (USD)
RIGHTS GROUPS AND OBJECTIVES REFUGEE
PROG.
PILLAR 1
IDP
PROJECTS
PILLAR 4
TOTAL
Total 22,813,582 5,365,031 28,178,613
Favourable protection environment
National legal framework 1,200,902 0 1,200,902
Policies towards forced displacement 0 377,810 377,810
Public attitudes towards persons of concern 334,416 0 334,416
Non-refoulement 1,370,138 0 1,370,138
Subtotal 2,905,456 377,810 3,283,266
Fair protection processes and documentation
Reception conditions 675,352 0 675,352
Registration and profiling 746,027 151,135 897,162
Fair and efficient status determination 659,639 0 659,639
Individual documentation 0 148,135 148,135
Subtotal 2,081,018 299,269 2,380,287
Security from violence and exploitation
Impact on host communities 322,517 0 322,517
Law enforcement 400,020 0 400,020
Community security management system 177,244 0 177,244
Gender-based violence 541,482 169,778 711,260
Protection of children 194,710 154,384 349,093
Freedom of movement 160,399 0 160,399
Subtotal 1,796,372 324,162 2,120,533
Basic needs and essential services
Food security 374,244 0 374,244
Nutrition 800,747 0 800,747
Water 1,230,716 0 1,230,716
Shelter and other infrastructure 1,147,709 2,799,679 3,947,387
Basic domestic and hygiene items 1,981,510 774,548 2,756,058
Primary health care 1,982,346 0 1,982,346
HIV and AIDS 362,073 0 362,073
Education 1,112,726 0 1,112,726
Sanitation services 514,139 0 514,139
Services for groups with specific needs 572,466 0 572,466
Subtotal 10,078,675 3,574,226 13,652,901
Community participation and self-management
Participatory assessment and community mobilization 284,025 82,951 366,975
Community self-management and equal representation 306,434 0 306,434
Camp management and coordination 890,175 76,844 967,019
Self-reliance and livelihoods 1,306,856 0 1,306,856
Subtotal 2,787,490 159,794 2,947,285
Durable solutions
Durable solutions strategy 651,198 159,678 810,876
Voluntary return 519,558 0 519,558
Resettlement 461,125 0 461,125
Subtotal 1,631,881 159,678 1,791,559
External relations
Partnership 399,626 0 383,435
Public information 427,788 0 390,009
Subtotal 827,415 0 773,444
Logistics and operations support
Supply chain and logistics 360,064 0 538,354
Programme management, coordination and support 345,211 470,091 690,984
Subtotal 705,275 470,091 1,229,338

Source: UNHCR Global Appeal 2010-2011

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Statistical Snapshot*
* As at January 2009
  1. Country or territory of asylum or residence. In the absence of Government estimates, UNHCR has estimated the refugee population in most industrialized countries based on 10 years of asylum-seekers recognition.
  2. Persons recognized as refugees under the 1951 UN Convention/1967 Protocol, the 1969 OAU Convention, in accordance with the UNHCR Statute, persons granted a complementary form of protection and those granted temporary protection. It also includes persons in a refugee-like situation whose status has not yet been verified.
  3. Persons whose application for asylum or refugee status is pending at any stage in the procedure.
  4. Refugees who have returned to their place of origin during the calendar year. Source: Country of origin and asylum.
  5. Persons who are displaced within their country and to whom UNHCR extends protection and/or assistance. It also includes persons who are in an IDP-like situation.
  6. IDPs protected/assisted by UNHCR who have returned to their place of origin during the calendar year.
  7. Refers to persons who are not considered nationals by any country under the operation of its laws.
  8. Persons of concern to UNHCR not included in the previous columns but to whom UNHCR extends protection and/or assistance.
  9. The category of people in a refugee-like situation is descriptive in nature and includes groups of people who are outside their country of origin and who face protection risks similar to those of refugees, but for whom refugee status has, for practical or other reasons, not been ascertained.
The data are generally provided by Governments, based on their own definitions and methods of data collection.
A dash (-) indicates that the value is zero, not available or not applicable.

Source: UNHCR/Governments.
Compiled by: UNHCR, FICSS.
Residing in Yemen [1]
Refugees [2] 140,169
Asylum Seekers [3] 831
Returned Refugees [4] 0
Internally Displaced Persons (IDPS) [5] 100,000
Returned IDPs [6] 0
Stateless Persons [7] 0
Various [8] 0
Total Population of Concern 241,000
Originating from Yemen [1]
Refugees [2] 1,777
Asylum Seekers [3] 473
Returned Refugees [4] 0
Internally Displaced Persons (IDPS) [5] 100,000
Returned IDPs [6] 0
Various [8] 0
Total Population of Concern 102,250
Government Contributions to UNHCR
Contributions since 2000
YearUSD
2009 0
2008 0
2007 2,158
2006 0
2005 0
2004 0
2003 0
2002 0
2001 2,160
2000 2,160

Yemen UNHCR Fundraising Reports Rss FeedUNHCR Fundraising Reports

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Yemen UNHCR Maps Rss FeedUNHCR Maps

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2010-11 UNHCR partners in Yemen
Implementing partners
Government agencies: Registration Team
NGOs: Adventist Development and Relief Agency; Al-Tadamon; Al-Amel Charitable Community for Social Welfare; Al-Takamal; CARE; Charitable Society for Social Welfare; Danish Refugee Council; Interaction in Development Foundation; INTERSOS; Islamic Relief; Save the Children Sweden; Society for Humanitarian Solidarity
Others: Yemeni Red Crescent
Operational partners
Government agencies: NACRA/NASCRA; Ministry of Interior/Immigration and Passport Authority; Ministry of Human Rights; Sana'a University
NGOs: Médecins Sans Frontières (Spain)
Others: FAO; ILO; IOM; UNDP; UNFPA; UNICEF; WFP; WHO

New Arrivals in Yemen

The Gulf of Aden: Sharp Rise in Crossings and Deaths

Gulf of Aden People-Smuggling: International Help Needed

Crossing the Gulf of Aden