2010 UNHCR country operations profile - Russian Federation

Working environment

The context

The Russian Federation is a country of asylum as well as of transit, as many irregular migrants and refugees seek to cross its territory to reach other European countries. However, an increasing number of people apply for asylum in the Russian Federation, which currently hosts 5,625 refugees and asylum-seekers.

The Government's focus on migration management and the corresponding strengthening of the Federal Migration Service (FMS), has provided an opportunity to reinforce institutions related to asylum. This has led to a steadily increasing number of asylum applications being resolved by the competent authorities. The national asylum procedure now renders up to 3,000 decisions annually. However, the creation of adequate protection structures outside the largest cities remains a challenge.

In the Northern Caucasus, it is estimated that there are still more than 80,000 internally displaced persons (IDPs) in need of durable solutions, while approximately 1,000 IDPs have recently returned to their homes. UNHCR and the Government have agreed to promote a recovery strategy to reduce internal displacement in the Northern Caucasus. However, the volatile security environment in the region hinders UNHCR's access to people of concern and impedes the identification of solutions for the remaining IDPs.

The working environment is also affected by the global economic downturn. Retrenchment in the labour market of the Russian Federation has focused attention on migrants, including those from Central Asian countries as well others from further afield. An increase in xenophobic attitudes and acts of violence toward foreigners complicates efforts to protect asylum-seekers and refugees.

The needs

Legal protections for asylum-seekers and refugees in the Russian Federation have improved in recent years. This has been primarily due to a number of changes which have eased access to asylum procedures, improved documentation and provided greater authority to administrative bodies dealing with refugees. UNHCR has been invited to comment on a proposed new refugee law. Access to the territory in order to seek asylum is a fundamental right, and UNHCR will continue to its efforts with the Russian authorities to ensure that it is guaranteed. The lack of reception facilities is a serious difficulty for asylum-seekers, who find no immediate assistance upon arrival in the Russian Federation. UNHCR is working to ensure that people of concern are included in the national medical and social assistance systems.

The efforts undertaken by the Russian Federation to reduce statelessness, along with the increased number of people who have acquired Russian citizenship in recent years, indicate that significant progress is being made in this field. An important additional step would be accession to the 1954 and 1961 Conventions on statelessness. Increased collaboration among stakeholders will help to identify the extent of the remaining problem, as people residing in the Russian Federation without residence registration may encounter problems to confirm their nationality.

Though not all are officially registered, an estimated figure of more than 80,000 IDPs remain in need of durable solutions, and face problems of poverty, unemployment and housing. Local surveys suggest that up to 42 per cent of the displaced would like to integrate in their places of displacement. To that end, UNHCR will strive to ensure that both the displaced and their host communities benefit from federal government development programmes. UNHCR will provide complementary assistance, particularly housing solutions for the most vulnerable, and especially for those who have not benefited from national assistance programmes.

Main objectives

Favourable protection environment

• Build the capacity of the national asylum system to meet international standards and ensure full and unhindered access to asylum and protection.

• Promote accession to the two international Conventions on statelessness, while establishing effective partnerships aimed at reducing and resolving such situations.

Basic needs and services

• Assist the authorities with limited housing projects, in a bid to ensure access to long-term or transitional shelter for IDPs.

Durable solutions

• Identify and implement durable solutions for refugees.

• Help the authorities to establish conditions which allow IDPs to return voluntarily, in safety and dignity.

• Work with development and other actors to facilitate the return and reintegration of IDPs, as well as those who wish to integrate in their places of displacement, and support local civil-society initiatives.

Key targets for 2010

• No deportation of individuals pending their final asylum decision

• 95 per cent compliance of refugee status determination (RSD) procedures with the national asylum legislation

• Thirteen legal counselling centres throughout the country provide advice and support to asylum-seekers, refugees, IDPs and returnees.

• A comprehensive participatory assessment conducted with the participation of stateless people, as well as officials, identifies the root causes of statelessness as well as solutions to prevent and resolve it.

• More than 1,500 vulnerable asylum-seekers and refugees receive assistance to meet their material and health needs, pending a durable solution.

• Up to 2,925 vulnerable IDPs have their shelter needs met in the Northern Caucasus.

• Up to 50 quick impact projects are implemented on behalf of the more than 80,000 vulnerable IDPs in the Northern Caucasus.

Strategy and activities

To promote the building of a national asylum system, UNHCR will contribute to the development of asylum legislation; work to improve the quality of national RSD procedures, in particular by providing legal advice, analysis and training; and strengthen reception capacity.

UNHCR will seek gradually to phase out direct material assistance to the most vulnerable asylum-seekers, and hand this responsibility to other actors by the end of 2011. The Office plans to create a pilot accommodation facility for vulnerable asylum-seekers. UNHCR will work to counter racism and xenophobia, which can impede durable solutions for refugees, and to create an environment conducive to local integration.

Improvements in the current asylum practice in the Russian Federation are expected to be confirmed as a result of the new Refugee Law to be passed by Parliament in 2010. It is expected that the new legislation will include provisions for the Government to provide social, medical and material support to the most vulnerable asylum-seekers and refugees. This will enable UNHCR to relinquish its assistance activities for these groups.

UNHCR will pursue existing and new partnerships to ensure that the standards of the asylum system are considerably improved at both the administrative and judicial levels. It will advocate for the coverage of refugees and asylum-seekers by State assistance mechanisms.

The Office's strategy on statelessness will address gaps in available data and promote accession to international instruments. A comprehensive study of statelessness in the Russian Federation will be initiated in cooperation with the authorities. A partnership strategy to address related issues will also be developed and implemented.

To ensure that IDPs are able freely to choose their preferred durable solution, and be supported in their decision, UNHCR will advocate for better assistance and protection for them. The Office will support the development of national legislation which would enable IDPs to recover lost property, or receive appropriate compensation or other forms of reparation.

UNHCR will focus on four priorities: the provision of free, professional and independent legal counselling; the capacity-building of civil society; the dissemination of protection information; and protection monitoring. The aim is to facilitate access to public services in a fair and transparent manner and ensure that the most vulnerable IDPs receive assistance, taking into account their specific needs.

UNHCR will complement the Government's programmes for the voluntary return of IDPs and target aid to the most vulnerable, especially those still in collective accommodation. The Office hopes to be able to disengage from direct operational involvement in the Northern Caucasus by the end of 2011, contingent on the Government's resolve to address the protracted nature of displacement.

With respect to IDPs who decide to return to their homes, UNHCR works to provide assistance for their sustainable reintegration. The strategy is implemented through extensive monitoring and a variety of interventions, including the provision of free legal assistance and, though limited in scope, shelter-related assistance.

Assumptions and constraints

The Office's strategy to address statelessness in the Russian Federation is linked to the expectation that the Government will accede to the two international Conventions on statelessness. Comprehensive research into the current statelessness situation will require time and be resource-intensive and require the participation of all stakeholders.

It is assumed that the overall security environment in the Northern Caucasus will allow for the planned activities, including unimpeded access to people of concern, to be carried out, as well as continued good relations with all stakeholders, in particular, the local authorities.

Organization and implementation

Coordination

UNHCR will continue to work closely with the Federal Migration Service, its main interlocutor on migration and asylum issues. It will join forces with the Service to mobilize partnerships and generate awareness of displacement issues, alongside regional visits to renew local NGO contacts. The Office will also strengthen its work with Government bodies, the Parliamentary Committee and civil society on statelessness.

The Federal Government has made investments in the Chechen Republic and elsewhere in the Northern Caucasus, and has announced more comprehensive support for the region. UNHCR works with the members of the UN Country Team as well as with the larger community of local stakeholders, donors and NGOs working on recovery programmes. UNHCR will pursue a stronger coordination framework, including with partners such as UNICEF, FAO and ILO. It will also coordinate its approach with the ICRC.

Financial information

The 2010 comprehensive budget of USD 25 million covers refugees (32 per cent), stateless people (5 per cent), IDPs (50 per cent) and reintegration activities (13 per cent). Legal assistance and protection activities account for half of the budget. The most pressing and costly unmet needs relate to shelter, which represents a major challenge for UNHCR and the authorities.

Source: UNHCR Global Appeal 2010-2011