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.

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.

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.

Source: UNHCR Global Appeal 2010-2011