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United Nations
Report of the United Nations High
Commissioner for Refugees
General Assembly
Official Records: Sixteenth Session
Supplement No.11 (A/4771/Rev.1)
United Nations, New York, 1961
INTRODUCTION
1. During the period under review (1 May 1960 to 31 March 1961[1]1), the Office of the High Commissioner has continued to carry out its humanitarian task in accordance with the provisions of the Statute and of the resolutions and directives adopted by the General Assembly, the Economic and Social Council and the Executive Committee of the High Commissioner's Programme.
2. The two most striking features of the period covered by this report have been the effects of World Refugee Year and the increased interest shown in many quarters in the problems of groups of persons who may be regarded as refugees, but who do not come within the immediate competence of the United Nations.
3. World Refugee Year, which began in June-July 1959, was extended in many countries beyond the official closing date of June-July 1960. Ninety-seven countries and territories participated in the Year. World Refugee Year has been an effort both of Governments and of peoples, as evidenced by the fact that approximately two-thirds of the total of nearly $16 million contributed to UNHCR for 1960 came from non-governmental sources.
4. Owing in large part to World Refugee Year, the necessary funds are now available to complete the clearance of camps and also to assist the refugees in becoming firmly settled once they have left camp. The necessary projects are ready and are being put into effect as rapidly as possible.
5. World Refugee Year has contributed to the solution of the problem of refugees of European origin in the Far East, which has now been reduced to manageable proportions. If the present rate of resettlement can be maintained this tragic problem will be solved in the near future, thanks to the helpful attitude of the British authorities in Hong Kong and the Governments which admit these refugees to their territory for resettlement.
6. World Refugee Year has also enabled UNHCR to alleviate the problems of non-settled refugees living outside camps who still require varying degrees of assistance in order to become firmly settled. In accordance with the policy laid down by the Executive Committee of the High Commissioner's Programme, the physically and socially handicapped among these refugees are being given priority in the granting of assistance. In a few countries where non-settled refugees living outside camps can profit from existing favourable economic conditions, a certain number may be able to solve their problems without further international help. Others may benefit from the liberalized immigration criteria introduced during World Refugee Year and still being applied by several immigration countries which have found that handicapped refugees can be rehabilitated and again become useful citizens.
7. In determining the degree of assistance to be given to the remaining non-settled refugees living outside camps the utmost care is taken to ensure that the limited funds available are used to help those who, owing to the fact that they are refugees, do not have the same opportunities as other persons in the country in which they live. The amount of assistance given is determined by the conditions of the refugee concerned and the economic situation of the country of residence. If the favourable economic situation in Europe continues and if the liberal conditions introduced by immigration countries for the admission of refugees are maintained, it is expected that the remaining problem of non-settled refugees living outside camps can, in the near future, be clearly defined in terms of its size, scope and financial requirements and that a definite time-limit can be set for its solution.
8. The completion of the above-mentioned programmes, as well as the effectiveness of the future work of this Office, will, of course, depend on its sustained efforts in co-operation with Governments, other organizations and voluntary agencies.
9. The other tasks of the Office which, within the framework of its mandate, are considered as of "continuing concern", comprise international protection and its useful complement, the promotion of legal assistance, the current promotion of permanent solutions through repatriation, resettlement or local integration, and such aid as might be required in cases of individual emergencies.
10. The promotion of permanent solutions through other agencies working for refugees should make it possible to deal effectively with the, at present limited, number of new refugees and to solve their problems as and when they arise. A few small material assistance projects for the handicapped among these refugees may also be required.
11. International protection, which is the basic task of UNHCR, has been further developed in the interest of some 1,350,000 refugees living in over forty different countries. As in the case of all aspects of the work of UNHCR, it must be carried out in close and continuing co-operation with the Governments of countries of residence of refugees. Through the permanent delegations in Geneva and the branch offices and correspondents of UNHCR as well as through personal visits of the High Commissioner and his staff, this co-operation has been considerably intensified. It has helped to bring about the adoption in many countries of a variety of measures designed to improve the position of refugees. Such measures often have a bearing on both the legal status of the refugees and their economic and social position. They constitute therefore an indispensable factor in consolidating the position of beneficiaries under the various material assistance programmes.
12. In the field of emergency relief, the Office is still concerned with the problem of refugees from Algeria in Morocco and Tunisia. The joint programme of this Office and the League of Red Cross and Red Crescent Societies for assistance to these refugees is being continued. The cost entailed in providing the refugees with essential food and clothing amounts to almost $7 million per year. The High Commissioner sincerely hopes that the necessary funds will be made available to enable the League and this Office to continue this essential programme for as long as is necessary.
13. The increasing interest shown by the international community and by people throughout the world in groups of refugees not coming within the competence of the United Nations, many of them outside Europe, was clearly evidenced during World Refugee Year. That interest is also reflected in the resolutions[2] which the General Assembly has adopted authorizing the High Commissioner to use his "good offices" for assistance to these groups of refugees. These resolutions indicate the wish expressed in the Assembly to the effect that UNHCR, in accordance with the universal character of its assignments, should gear its activities to the changing world of today.
14. As stated in more detail in chapter V of this report, the High Commissioner was called upon in several instances to transmit funds for assistance to the groups of refugees concerned or to advise or assist Governments in giving help to them.
15. The High Commissioner considers that in the discharge of his "good offices" functions, his Office should always be prepared to assist Governments in solving new refugee problems in accordance with the humanitarian and social character of the task conferred on his Office. He believes that it should in this way be possible for UNHCR to alleviate the plight of refugees, and to lighten the burden of the Governments concerned and to facilitate solutions for all refugees, including those for whom no provision was made at the time his Office was established.
CHAPTER I INTERNATIONAL PROTECTION
16. Gradually the effects of World Refugee Year are making themselves felt in the field of international protection which is UNHCR's main task. World Refugee Year has created a more general awareness and understanding of the specific legal situation of refugees and of the need for special measures for the improvement of their status.
17. The fact that the Convention relating to the Status of Refugees of 28 July 1951 is being ratified by further Governments, and has been in force for a number of years in some countries, likewise results in the special status of refugees being increasingly recognized in the practice of the judicial and administrative authorities of the countries concerned and in legal doctrine.
18. During the period under review, the protection of some 1,350,000 refugees spread over more than forty countries has been further developed in consultation with the Governments of those countries, as shown in detail in annex II to this report.
19. International protection, it will be recalled, applies from the moment a person becomes a refugee until he has ceased to be a refugee, e. g., through voluntary repatriation or the acquisition of a new nationality. Until this has been achieved, the object of protection is that refugees should receive a status as close as possible to that of the nationals of the country of their residence so that they make take their place in the new community which has received them.
20. Progress continues to be made throughout the various stages of the work of protection. Thus, the draft Declaration on the Right of Asylum, which is to be considered at the sixteenth session of the General Assembly, continues to receive the attention of the United Nations High Commissioner. The determination of the eligibility of refugees plays an increasingly important role in that it is a condition for the granting of the status provided for under the 1951 Convention and is often regarded as a yardstick for the granting of asylum.
21. The existing agreements and conventions have been further extended in terms of the scope of these instruments and of the numbers of contracting parties thereto. The most important instrument for refugees, the 1951 Convention, has now been ratified or acceded to by the Governments of twenty-seven countries spread over the five continents. Further accessions have also been made to other intergovernmental instruments which directly or indirectly benefit the refugees. The rights granted to refugees under these legal instruments and under national legislation are contributing to the consolidation of their legal, economic and social position. They also facilitate the implementation of assistance programmes carried out in the countries concerned. In several instances, improvements in the legal position of refugees are paralleled by practical measures. For example, in several countries where criteria for the access to employment have been liberalized, the labour exchanges have been requested by the Governments to pay special attention to the requirements of refugees.
22. A special mention should be made of refugees in the liberal professions who, though covered to some extent by article 19 of the 1951 Convention, frequently still face considerable difficulty in establishing themselves in their own professions. On the occasion of World Refugee Year, initiatives were taken, particularly in respect of refugee doctors and dentists, by the Council of Europe and the World Medical Association and World Women's Medical Association. Pursuant to a recommendation (number 253) of the Consultative Assembly of the Council of Europe, endorsed by its Committee of Ministers, consideration is now being given by that organization to the possibility of a European convention being drawn up on the subject. A certain easing of the restrictions on the exercise of the liberal professions by refugees has already taken place or is under consideration by several countries in Europe.
23. The conclusion on 5 October 1960 between the Federal Government of Germany and UNHCR of the Agreement concerning payments in favour of persons who have suffered by reason of their nationality is a most important step towards the solution of a problem of international protection of refugees, which the High Commissioner has already mentioned in previous reports as still being unsolved.
24. The Agreement provides that refugees who have suffered permanent injury to body or health under the National Socialist régime by reason of their nationality will receive compensation on the same basis as other victims of National Socialist persecution. This should result in much higher payments. This part of the Agreement will be implemented by the German authorities.
25. Under the Agreement, UNHCR has, in addition, received an amount of DM45 million for measures of assistance to refugees persecuted under the National Socialist régime by reason of nationality and who are not entitled to indemnification under the German Federal Indemnification Law. Pursuant to a decision taken by the General Assembly at its fifteenth session, an allocation of $206,000 was earmarked from the United Nations budget for the administration of this fund by UNHCR in 1961. An indemnification section has been set up within the Geneva Office of UNHCR for this purpose. It is anticipated that it will take approximately three years to deal with all the applications to the fund.
26. The measures of international protection described above tend to safeguard the legitimate rights and interests of refugees and to improve their position in countries of residence. They may also contribute indirectly to the final aim of the Office: "to help refugees to cease to be refugees". Although measures have been taken by several countries to facilitate naturalization, it will be noted from annex I that the number of refugees coming within the mandate of UNHCR has decreased to only a limited extent. As at 1 January 1961, their number was estimated at 1,350,000, including 850,000 in European countries, against 870,000 one year ago. Efforts for the facilitation and speeding-up of naturalization of refugees where desired will continue.
27. Prior to their naturalization the Office is trying to secure for the refugees certain rights granted by regional legal instruments to the nationals of the parties to these instruments in the territories in which they reside. During the period under review further progress was made in this field. The Council of Europe's Agreement on the abolition of visas for refugees came into force in September 1960. The regulations adopted by the European Economic Community in the field of social security apply to refugees resident in member countries in the same way as to nationals of those countries. Consultations are taking place between this Office and the regional organizations concerned on the possibility of extending to resident refugees further benefits granted to nationals of member countries.
28. Progress has been made in the field of international protection due to the understanding attitude of Governments to which the High Commissioner would like to pay tribute. However, a great deal still remains to be done in this important sector of the work of UNHCR. The High Commissioner considers that the legal position of refugees under the mandate of UNHCR, many of whom have benefited to a large extent from international material assistance, should be as favourable and as secure as possible, in order to ensure that refugees who have been able to begin a new life should not, in the event of a change in the economic situation of the country, again become a charge on the international community, and also in order to prevent the recurrence of problems which have once been solved through international co-operation. In accordance with the relevant resolutions of the General Assembly, the High Commissioner will continue his efforts in this field.
CHAPTER II VOLUNTARY REPATRIATION AND RESETTLEMENT
Voluntary repatriation
29. As in previous years, a certain number of refugees have chosen to return to their own country. In accordance with the terms of its Statute and resolution 925 (X) of the General Assembly, the Office has continued to facilitate the repatriation of refugees whenever they expressed the wish to return to their country of origin.
30. In several countries where UNHCR is represented by a branch office, statistical information has been obtained which shows that during 1960 some 2,500 refugees returned to their country of origin. The total number is believed to be somewhat higher.
31. During the last two years, UNHCR has been able to make financial arrangements for the travel of refugees returning to their country of origin in cases where the cost was not borne by the country of residence, the country of origin or the refugees concerned.
Resettlement
32. The activities of UNHCR in the field of resettlement include the promotion and negotiation of resettlement schemes with Governments and other governmental and non-governmental organizations and the implementation of specific projects with the object of preparing certain limited groups of refugees for immigration to other countries. These projects may include vocational training, language training and rehabilitation.
33. In the course of 1960, the Office has also been called upon to promote resettlement in respect of refugees who were not within the competence of the United Nations and for whom the High Commissioner may use his good offices in accordance with resolution 1388 (XIV) of the General Assembly.
34. Resettlement, which was for many years a solution reserved for limited groups of refugees specially selected by immigration countries, has recently become available to practically any refugee, including the old and young, fit and weak, and economically weaker families. During World Refugee Year, the efforts made for many years to obtain liberalized immigration criteria met with wide-spread response both overseas and in European countries, many of which had previously already admitted handicapped refugees. Consequently, it has become possible to resettle many more people and a much larger proportion of physically handicapped refugees in countries of their choice. To illustrate this in terms of figures, in the course of 1960, some 30,000 refugees within the mandate of UNHCR were moved by the Intergovernmental Committee for European Migration which closely co-operates with this Office (see annex III). In the course of World Refugee Year and of the six following months (1 July 1959-31 December 1960), offers of resettlement were received for the immigration of 3,000 handicapped refugees and 4,000 dependants.
35. In addition to the quantitative results achieved during the period under review, the High Commissioner would like particularly to stress the fundamental change which is resulting from the liberal policy which many countries have adopted. The admission of refugees with their families, of handicapped persons rejoining their families abroad and, generally speaking, of those who, owing to a physical or social handicap, would otherwise have been left behind, has had a beneficial influence on the establishment of refugees in immigration countries.
36. A special tribute must be paid to the authorities of the countries concerned for the great care with which the admission and settlement of refugee immigrants, and particularly of the handicapped, has been organized. The successful experiment made by these countries has prompted nearly all of them to continue the same liberal policy after the end of World Refugee Year. They are thereby giving a much greater value to resettlement as a solution to refugee problems, in that they are now enabling this Office to apply this solution to a larger cross-section of the refugee population, including the limited influx of new refugees in Europe which otherwise might create another problem.
CHAPTER III UNHCR REGULAR ANNUAL PROGRAMMES
General observations
37. During the period under review, the Office has carried on the implementation of its regular programme for 1960, besides completing further projects within earlier programmes. Implementation of the UNHCR regular programmes for 1961, for which the Executive Committee of the High Commissioner's Programme fixed a financial target of $6 million from all sources, has also been started.
38. As at 31 December 1960, over 81,500 refugees in twenty-nine countries (over forty if all countries of resettlement are included) had been assisted under the programmes, in finding solutions to their problems, as shown in more detail in annex IV to this report.
39. As hitherto, the main object of the UNHCR regular annual programmes is to achieve permanent solutions for non-settled refugees and, pending such solutions, to give supplementary aid to the neediest among them. One of the guiding principles observed by this Office in carrying out these programmes is that the refugee should in the first place be helped "to help himself". For this reason, assistance has as far as possible taken the form of loans to enable the refugee to acquire the necessary housing or to establish himself in a job, a trade or a profession. Thus, out of over $31 million committed by UNHCR from the inception of the UNREF programme in 1955 until 31 December 1960, nearly one-half had been allocated for housing and establishment assistance. Most refugees assisted by loans are respecting their obligations to repay them. Assistance is given in the form of grants only in the case of the economically weaker refugees, i.e., the handicapped. The proportion of such refugees, however, is increasing since the stronger elements have been the first to become settled. It is therefore increasingly necessary to assist the remaining case-load through grants.
40. In view of the limited earning capacity of some of the beneficiaries, the Executive Committee of the High Commissioner's Programme has agreed to a rent assistance system being applied to housing projects.[3] Under this system the rents for refugees with very low incomes are subsidized from loan repayments made by other refugee tenants to the agency implementing the housing project concerned. This will result in a slight reduction in loan repayments accruing to the Emergency Fund established pursuant to resolution 1166 (XII) of the General Assembly.
41. Another guiding principle is to assist the refugees to become self-supporting as rapidly and effectively as possible in accordance with their own free choice. To this end, a network of counsellors gives guidance to individual refugees and assists them in achieving the type of solution most suited to their needs and likely to be the most appropriate in relation to their particular circumstances. Thus, for example, refugees are informed of particular employment openings for which they are qualified or of a special resettlement project which would enable them to join relatives abroad.
42. In the course of 1960, the $12 million financial target set on the occasion of World Refugee Year for the UNHCR regular programme for 1960 was practically reached. Sufficient funds were therefore available to UNHCR to ensure the financing of the Camp Clearance Scheme. During the period under review, further progress was made in achieving permanent solutions for the camp population and the number of refugees in camps qualifying for the scheme decreased from 15,750 at the beginning of 1960 to 10,700 at 31 December 1960. Further progress was also made in the resettlement of refugees from the Far East.
43. Consequently, the Office was able to devote more of its funds and attention to the problem of non-settled refugees living outside camps whose number decreased from approximately 94,000 at the beginning of 1960 to 74,000 at the end of that year in nine countries or areas where the UNHCR main programmes are being put into effect, including an estimated 65,000 in European countries and 9,000 in the Middle East and in the Far East.
44. Further provision for assistance to non-settled refugees living outside camps and for the Far Eastern Programme constitutes the major part of the $6 million regular programme for 1961.
45. Fewer than 1,200 non-settled new Hungarian refugees will remain in Austria, including 570 in camps who will be able to benefit from camp clearance projects and from the UNHCR regular programme for 1961, in so far as solutions cannot be achieved for them under the special programme which is scheduled to be closed in the course of 1961.
46. The countries of residence continue to contribute in various ways towards the assistance of refugees on their territory. Thus by the end of 1960, UNHCR commitments in the amount of $31,113,627 had generated supporting contributions of over $41 million from within these countries. This figure does not include certain items the cost of which it is practically impossible to assess, such as permanent care of refugees in local institutions, remission of fees and taxes and social security benefits.
Camp clearance
47. The clearance of official camps in Austria, Germany, Greece and Italy, and of non-federal camps in Austria has continued with increased momentum. As it became apparent that the funds required for the completion of the Camp Clearance Scheme[4] would be obtained, solutions were worked out for the remaining camp population in consultation with the implementing agencies and Governments concerned so that appropriate projects could be put into effect as soon as possible.
48. From the inception of the UNREF programme in 1955 until 31 December 1960, the camp population in Austria, Germany, Greece and Italy has decreased from over 75,000 to approximately 15,000 refugees, 10,700 of whom qualify for assistance under the UNHCR Camp Clearance Scheme, while the others will benefit under other programmes.
49. During the period under review, two factors have considerably affected the implementation of the Camp Clearance Scheme: the characteristics of the refugees still living in camps, and the improved economic conditions in the countries concerned. A number of the refugees still in camps can be settled through housing or projects for establishment assistance. However, there is among them an increasing proportion of persons who have been for too long out of touch with the outside world. Projects for their settlement have to be based on the circumstances and requirements of individual refugee families and consequently involve more time and expenditure. Within this group there were, twelve months ago, some 1,500 refugees requiring special assistance to overcome the psychological problems caused by a prolonged period of camp life. As a result of special rehabilitation projects put into effect upon the advice of the UNHCR Mental Health Adviser and in close co-operation with the Governments of the countries concerned, great progress has been made in solving the problems of these refugees. The number of those in camps for whom special measures are still required has decreased and the High Commissioner is hopeful that solutions will soon be found for the problems of the remaining cases.
50. While better economic conditions in the countries of residence of refugees may contribute on the whole to their local integration by creating more employment opportunities, they are at the same time causing an increase in the cost of assistance projects and particularly of housing. This difficulty has arisen in Austria and Germany where there is a shortage of labour and a scarcity of cheap building sites near places of employment. The authorities of these countries are endeavouring to alleviate these difficulties by giving refugees, as far as possible, the same facilities as nationals in respect of housing. Furthermore, a new type of housing of very simple design is being built in certain areas in order to provide refugees in the lowest income brackets with accommodation at a rent which they can afford.
51. Every effort is being made to complete the clearance of camps and to ensure the firm settlement of the camp population as rapidly as possible. In view of the above-mentioned problems, however, some time will still be needed in order to finish this task. In Germany, where the majority of the remaining refugees are living, the considerable number of housing units which are still required may take two years to complete. In Austria, the problem should be solved before the end of 1962. In Italy, also, it is estimated that at least another year will be necessary to achieve the firm settlement of the limited but difficult remaining case-load. In Greece, camp clearance is practically completed. Establishment assistance, however, will still be required to enable the refugees who have left the camps to become self-supporting.
52. It may be stated therefore that while the necessary funds are available, many efforts will still be required on the part of the governmental authorities concerned, of the agencies implementing the programme and of the Office in order to bring camp clearance to a successful conclusion and to achieve permanent solutions for the remaining refugee camp population.
Far Eastern Programme
53. This programme, together with the Camp Clearance Scheme, constitutes one of the priority tasks of this Office. In conjunction with the Intergovernmental Committee for European Migration, another 1,005 refugees were moved via Hong Kong to countries of final resettlement in 1960 and a further 1,135 were moved during the first four months of 1961, leaving on 1 May 1961 approximately 5,700 refugees still to be resettled.
54. In addition to the financial contributions made to this programme through World Refugee Year, the increased number of resettlement opportunities offered by immigration countries, in particular to handicapped refugees, has contributed to the speedy transfer of refugees from the Far East to their final destinations. Visas for approximately 1,000 refugees are still required.
Assistance to non-settled refugees living outside camps
55. Within the $12 million financial target for the 1960 programme an amount of over $5.3 million was allocated for assistance to these refugees. While first priority has been given to camp clearance, the international community has always recognized the needs of non-settled refugees outside camps. The situation of many of these refugees is precarious; they often live in substandard dwellings under conditions which are worse than those of the camp population. They have accepted the challenge of independent life in new surroundings where they often have to face economic and social problems, particularly in those areas where social legislation has not yet been fully developed or has not been extended to all residents. In the course of the past few years, many of these refugees, particularly in countries such as Austria, France and Germany, have succeeded in becoming integrated. Others have benefited from the increased resettlement opportunities offered by immigration countries. Among the remaining non-settled refugee population, however, there is a growing proportion of physically and socially handicapped refugees who are living in the most difficult conditions.
56. The non-settled refugees living outside camps need in particular employment opportunities and vocational training, and the handicapped among them, rehabilitation; they most difficult cases within this group need permanent care in institutions or in housing specially designed for the aged.
57. In accordance with the principles laid down by the Executive Committee of the High Commissioner's Programme, the extent of assistance given to non-settled refugees is determined on the basis of their specific needs, and priority is therefore given to the handicapped. Furthermore, account is taken of the degree of assistance which refugees can receive from within their country of residence. In those countries where economic conditions and the scope of social legislation justify it, assistance projects are restricted to the physically handicapped and to the specially difficult cases who require rehabilitation in order to overcome their psychological problems. In other countries, assistance is also given to the socially handicapped. In a few countries such as Greece and Turkey, where the number of refugees who come within the mandate of UNHCR is limited and where most of the non-settled refugees need some measure of assistance from international sources, permanent solutions projects are being put into effect as the first part of a comprehensive programme, with the object of solving the whole problem in these countries within a limited period of time. From the beginning of 1955 until 31 December 1960, a total of 39,760 non-settled refugees outside camps benefited from the UNHCR programmes and of this number over 25,029 became firmly settled with assistance from this Office.
58. On the basis of investigations made in various countries and of information received from Governments and voluntary agencies, the non-settled refugee population outside camps in Europe was estimated on 31 December 1960 to number approximately 65,000 persons of whom over 20,000 were in the handicapped categories.
59. Of these 65,000, some 55,000 live in Austria, France and Germany, where, it is felt, the economic situation is such as to lead to a gradual integration of the non-handicapped. Some of the refugees in the handicapped category will be able to avail themselves of the increased number of resettlement opportunities offered by immigration countries. Those who are not rehabilitable will require care in institutions or in homes where they can receive permanent care. The most difficult problems arise in respect of those who do not require care in institutions and who are nevertheless too seriously handicapped to be accepted by immigration countries or to be able to establish themselves in their country of residence without special assistance. It is for these refugees that projects for assistance to non-settled refugees are earmarked in the first instance.
60. The guiding principle observed in drawing up projects for this category of refugees is to assist them to the largest possible extent to become self-supporting. With this object in view, all the refugees who can in any way be retrained are included in rehabilitation projects which may take the form of special vocational training work in a protected community or any other help which gives the refugee an opportunity to make a contribution to the community and to take his place amongst his fellow men.
61. Supplementary aid, though strictly limited to the neediest cases, forms a small but important part of the UNHCR regular programmes. It is granted in the form of food, clothing, hospitalization or other medical care and, occasionally, of small cash grants. In countries or areas where destitute refugees cannot receive the necessary facilities from other sources this form of assistance is essential until such time as permanent solutions have been found for them. In the course of 1960,7,957 refugees benefited from this type of assistance.
Legal assistance
62. Legal assistance has a twofold purpose: first, to provide refugees with such legal advice as they may require in judicial cases in view of the fact that they are refugees and, secondly, to assist them in the formalities required for their permanent settlement. This form of assistance has proved most effective in helping refugees to consolidate their economic and social position. It is granted only in those cases where free legal aid is not available and where refugees are not in a position to afford the cost of such aid.
63. Legal assistance, which was already being provided in Austria, Germany, Greece and Italy, has been extended to Latin America and North Africa. Furthermore, provision has been made on a modest scale to cover legal assistance requirements of refugees in various other parts of the world through a central fund at Headquarters.
64. As at 31 December 1960, a total of 9,657 individual services had been given to refugees under the legal assistance programmes. In view of its usefulness legal assistance is being continued and an amount of $120,000 has been included for this purpose in the UNHCR regular programme for 1961.
Emergency Fund
65. In the course of 1960, a further amount of $168,291 accrued to the Emergency Fund established in accordance with the terms of resolution 1166 (XII) of the General Assembly, and as at 31 December 1960 the Fund had reached the amount of $323,906. During that year, emergency aid was granted in an amount of $9,000 from this fund to refugees in Morocco as already mentioned in the previous report[5] An amount of $10,000 was allocated from the Fund on 7 April 1961 for assistance to refugees in Cambodia, as reported in more detail in chapter V of this report.
CHAPTER IV RELIEF PROGRAMME FOR REFUGEES FROM ALGERIA IN MOROCCO AND TUNISIA
66. In accordance with the terms of General Assembly resolution 1500 (XV), the High Commissioner has continued his joint action with the League of Red Cross Societies for assistance to refugees from Algeria in Morocco and Tunisia.
67. In that resolution the General Assembly also recommended that the High Commissioner should "use his influence to ensure the continuation of the operation carried out jointly by the Office of the United Nations High Commissioner for Refugees and the League of Red Cross Societies, and, should this prove impossible, draw up and execute a programme for the assumption by the Office of the High Commissioner of responsibility for those refugees from 1 July 1961".
68. The High Commissioner accordingly consulted the Chairman of the Board of Governors and the Secretary-General of the League of Red Cross Societies in order to explore the possibility of continuing the joint operation beyond 1 July 1961. While this question is not as yet definitely settled, it can be stated that an understanding has been reached as a result of which there is no longer a risk that the operation may be jeopardized.
69. The joint operation has been continued in the humanitarian spirit in which it was conceived, as an emergency relief operation. The main object of the operation, to provide refugees with food and other essentials of life, has been attained. Under the basic programme, food rations providing 1,540 calories per day are issued. In addition, clothing, blankets and tents have been distributed.
70. Under the supplementary programme, 160 milk stations have been set up, 100 in Tunisia and 60 in Morocco, which are attended by some 90,000 children each day. Additional food is also distributed from multi-purpose centres and, in the less accessible mountainous areas of Tunisia, from mobile soup stations. Medical care is provided through dispensaries and mobile and static clinics which have been set up to supplement the medical facilities generously made available by the Governments of Morocco and Tunisia. The state of health of the refugees has, in general, improved during the period under review. However, in view of the living conditions of the refugees and of the marginal rations provided, careful attention will be necessary to prevent the outbreak of disease and especially to preserve the health of the children who represent more than half the total number of refugees. The supplementary programme also includes pilot projects for group work and education, the latter as a supplement to the education facilities placed at the disposal of the refugees by the Governments of both countries.
71. The continuation of, and improvements in, the relief programme have been made possible thanks to generous contributions received from Governments, Red Cross and Red Crescent Societies and other non-governmental organizations, particularly on the occasion of World Refugee year, and thanks to the close co-operation with the League of Red Cross Societies and the Governments and Red Crescent Societies of Morocco and Tunisia.
72. An operational budget for the joint operation for 1961 was approved by the Executive Committee of the High Commissioner's Programme in an amount of $6,963,600, of which $4,111,700 was estimated to be required in kind and $2,851,900 in cash. This budget is based on a total of 275,000 rations for both countries. While no difficulties are expected with regard to the necessary contributions in kind, an amount of $1,200,000 in cash is still required to continue the operation, in particular the basic programme, until the end of 1961. The High Commissioner therefore issued an appeal for additional funds to Governments members of the Executive Committee in February 1961.
73. From the beginning of the joint operation on 1 February 1959 up to 30 April 1961, UNHCR received contributions in a total amount of $4,814,132, of which $588,909 was in kind. During the same period, the League of Red Cross Societies received contributions in cash and in kind in an amount of $10 million.
CHAPTER V ASSISTANCE GIVEN TO REFUGEES[6] UNDER RESOLUTIONS 1167 (XII), 1388 (XIV), PARAGRAPH 2, 1499 (XV), PARAGRAPH (d) OF THE GENERAL ASSEMBLY
74. One of the most significant consequences of World Refugee Year is probably that through its universal character it focused much more attention on those refugees throughout the world who fall outside the competence of the United Nations. The General Assembly of the United Nations had already in 1957 expressed its interest in one of these groups of refugees, the Chinese refugees in Hong Kong, by adopting resolution 1167 (XII) which authorized the High Commissioner "... to use his good offices to encourage arrangements for contributions". The plight of these refugees has since become known throughout the world and there has been an increased flow of financial contributions for assistance to them.
75. Two years later, the Assembly, in its resolution 1388 (XIV), authorized the High Commissioner also to use his good offices in the transmission of contributions designed to provide assistance to other refugees not coming within the competence of the United Nations.
76. The Assembly thereby expressed its interest in refugee problems other than those which had already come within the scope of the activity of UNHCR and which could be alleviated within the general framework of the task of this Office. The combined effect of the above resolutions and of World Refugee Year has been to arouse increased interest for these refugee problems throughout the world and to give Governments, organizations and individuals an opportunity to channel their contributions through an international body which closely follows their development.
77. As at 31 December 1961, contributions in a total amount of $1,073,418 had been received by UNHCR under the above-mentioned resolutions, including $483,828 for assistance to Chinese refugees in Hong Kong and $57,788 for assistance, through the International Committee of the Red Cross, to Tibetan refugees in Nepal.
78. Within the framework of resolutions 1167 (XII) and 1388 (XIV) the High Commissioner was also able to extend his good offices for the assistance of refugees in countries where UNHCR is carrying out some of its most important material assistance programmes, i.e., in Austria and Greece. A total of $2,110,000 was made available to the Austrian Government for the financing of its own programme to provide accommodation for refugees in Austria who do not qualify for assistance from UNHCR. The High Commissioner was likewise in a positions to channel a contribution of $28,000 for persons of Greek ethnic origin who had returned from the Far East to Greece and who were in need of assistance.
79. The implementation of resolutions 1167 (XII) and 1388 (XIV) is proving that the goodwill of many Governments, peoples and organizations can be enlisted for assistance to needy refugees throughout the world and that many refugee problems can be brought nearer to a solution by focusing public attention on them and by co-ordinating the efforts of all those who are interested in their solution.
80. At its fifteen session, the General Assembly gave further expression to the interest of the international community in the problems of groups of refugees not coming within the competence of the United Nations by adopting resolution 1499 (XV) in which, inter alia, it invited States, Members of the United nations and members of the specialized agencies:
"... to continue to devote attention to refugee problems still awaiting solution...”
"(d) By continuing to consult with the High Commissioner in respect of measures of assistance to groups of refugees who do not come within the competence of the United Nations."
81. The implementation of this resolution naturally has to be based to a large extent on consultations between this Office and interested Governments. The High Commissioner will continue to make his services available when so requested by a Government which desires assistance in dealing with a particular refugee problem on its territory.
82. Thus at the beginning of 1961, the Royal Government of Cambodia drew the attention of the Secretary-General to the problems created by the arrival in Cambodia in recent years of refugees from neighbouring countries and requested the assistance of the United Nations to enable it to continue to assure the care and maintenance of these refugees. In accordance with the suggestion of the Cambodian Government, the High Commissioner investigated the situation and came to the following main conclusions:
(a) That several groups of persons have sought asylum in Cambodia since 1945; that the size of the easily identifiable groups could be estimated at a maximum of five to six thousand persons, and that a further group might include several tens of thousands of persons;
(b) That the Royal Cambodian Government has assumed the burden of care and maintenance of these refugees who cannot care for themselves and has facilitated the integration of some groups of refugees in Cambodia;
(c) That the assistance required by a number of these refugees, includes care and maintenance for those refugees who cannot fend for themselves, economic assistance for the establishment in agriculture of some categories, and in certain cases supplementary medical assistance and clothing.
83. In view of the emergency nature of the situation, the High Commissioner made available to the Cambodian Government the equivalent of $10,000 from the Emergency Fund established under the terms of resolution 1166 (XII). Furthermore, the High Commissioner has drawn the attention of the International Committee of the Red Cross to the problem and has also undertaken to make his good offices available to the Cambodian Government.
84. Consultations are still taking place between the Royal Government of Cambodia and this Office. The results of these consultations will be reported to the General Assembly during its sixteenth session.
CHAPTER VI CONTRIBUTIONS OF VOLUNTARY FUNDS
85. The full effect of World Refugee Year on voluntary funds contributed to UNHCR became evident during the period under review when the contributions to UNHCR were more than three times the average amount received during the five preceding years. The total amount paid, pledged or promised to UNHCR for 1960 reached $15,933,927, of which $10,860,550 was contributed on the occasion of World Refugee Year, as indicated in more detail in annex V. The break-down by donors and type of contributions is as follows:
86. The number of Governments which made contributions in cash totalled forty-one. A further thirty-six Governments made contributions in kind to the joint UNHCR/UNRWA Stamp Plan. The geographic distribution of these seventy-seven States is as follows: Africa, 14; Americas, 15; Asia, 24; Europe, 22; and Oceania, 2.
87. Of the total amount of $15,933,927, $11,275,336 was contributed to the UNHCR regular programmes for 1960. Thus, the target of $12 million approved by the Executive Committee for 1960 was almost reached and the financing of all projects planned within those programmes was ensured.
88. One of the most striking features of World Refuge Year is the fact that $4,658,591 was contributed to UNHCR in 1960 for the benefit of refugees other than those assisted under the regular programmes. Almost half of this amount was earmarked for refugees from Algeria in Morocco and Tunisia. Other substantial amounts were earmarked to benefit Chinese refugees in Hong Kong and various other groups of refugees within the framework of the good offices mission entrusted to the High Commissioner under resolutions 1167 (XII) and 1388 (XIV) of the General Assembly. This clearly illustrates the universal spirit of World Refugee year.
89. Non-governmental contributions for 1960, included in the above total amount, reached the unprecedented figure of $9,357,532. In addition to the contributions from national World Refugee Year Committees, mention should be made of the considerable interest shown in the course of World Refugee Year by smaller private groups and organizations and by individual donors.
90. As at 30 April 1961, $4,968,867 had been paid, pledged or promised to UNHCR for 1961. Of this amount, $3.434.349 was paid, pledged or promised by thirty Governments in the following geographical areas: Africa, 6; Americas, 2; Asia, 5; and Europe, 17.
91. The remaining sum of $1,534,518 was raised by private organizations on the occasion of World Refugee Year and paid or firmly pledged to UNHCR in 1961. Of the $4,968,867, some $3 million was earmarked for current UNHCR 1961 programmes, thus leaving a considerable gap between amounts contributed and the target of $6 million. It is expected that most of the remaining funds raised for UNHCR programmes within the framework of World Refugee Year will be paid during the first half-year of 1961. Taking these payments into account, it is expected that non-governmental contributions for 1961 will compare favourably with government contributions. However, since the bulk of World Refugee Year funds have already been received, it is now clear that future UNHCR programmes will again be more heavily dependent on governmental support.
92. It is hoped, however, that many of the non-governmental organizations and individual private donors who have given their support to UNHCR during World Refuge Year will continue their interest in refugee work.
93. It may be stated that World Refugee Year has made a real impact in many areas and in many segments of the population where awareness of the problems of refugees has been followed by a sense of responsibility towards them. Every effort will continue to be made to keep alive the interest of all those who have participated in World Refugee Year so that, in years to come, the effects of this demonstration of human solidarity will continue to make themselves felt to the benefit of refugees.
CHAPTER VII OTHER ACTIVITIES
Relations with other offices and organizations
94. The co-operation of UNHCR with other organizations either directly or indirectly concerned with the problem of refugees has always been indispensable in view of the largely promotional nature of its tasks. Thus, for example, UNHCR projects for assistance to refugees are put into effect by some 150 voluntary agencies under agreements concluded between this Office and the agencies concerned. The transportation of refugees for resettlement is largely the responsibility of the Intergovernmental Committee for European Migration, with which UNHCR maintains a close relationship. It also co-operates closely with the United States Escapee Program.
95. The increasingly varied nature of the work of this Office and the extension of its activities to many parts of the world has further enhanced the need for close co-operation with some of the main specialized agencies and offices of the United Nations such as the International Labour Office, the Technical Assistance Administration, the United Nations Educational, Scientific and Cultural Organization, the United Nations Children's Fund, the Universal Postal Union and the World Health Organization. In the operational field, UNICEF has continued its valuable support of the Joint Relief Operation for refugees in Morocco and Tunisia, by providing blankets and by advising UNHCR on the setting up of milk stations for refugee children. The Technical Assistance Administration has given valuable advice and assistance to this Office particularly in those areas where UNHCR is not represented and where new refugee situations developed during the period under review. The Universal Postal Union has continued its co-operation with UNHCR in connexion with the implementation of the joint UNHCR/UNRWA Stamp Plan.
96. In the field of international protection, the office has continued its co-operation with the International Labour Organisation with regard to manpower and social security problems. In this particular aspect of the work of UNHCR, closer relations with regional organizations are proving increasingly effective: through these organizations attention is drawn to the possibility of extending to refugees within the mandate of UNHCR the facilities granted under arrangements or agreements concluded under their auspices. Consultations to this effect are being pursued with the council of Europe and with the OEEC and, since the beginning of 1960, with the European Economic Community. It is hoped that the co-ordination of UNHCR protection activities with these organizations will lead to a further stabilization of the status of refugees regularly residing on the territory of the member Governments of these organizations.
97. It is also hoped that the increased co-operation of UNHCR with other international and non-governmental organizations throughout the world will facilitate its task in respect of groups of refugees which did not previously come within the sphere of activities of UNHCR.
Award of the Nansen Medal
98. The Nansen Medal for 1960 was awarded jointly to the four Englishmen who conceived the idea of a World Refugee Year (WRY), Messrs.C.Chataway, M.P., C.Jones, T. Philpott and T. Raison, in appreciation of their humanitarian concern and initiative on behalf of refugees. In making the award, the Nansem Medal Award Committee wished to pay a tribute to the devotion and perseverance of the four Englishmen concerned in gaining widespread acceptance of the purposes of World Refugee Year, and also to honour all the individual men and women in all countries who have joined the efforts of Governments and non-governmental organizations to bring about solutions of the problems of refugees. The award ceremony took place in the Palais des Nations, Geneva, on 10 October 1960, the anniversary of Fridtjof Nansen's birth.
Public information
99. Every effort has been made by UNHCR to maintain the keen public interest in refugees which was manifested during World Refugee Year. In many countries, WRY fund-raising campaigns were prolonged and the demand for written and visual information from governmental and non-governmental bodies and from the public in general was maintained. Although World Refugee Year had officially ended, television services in many countries continued to include items on the problems of refugees in their programmes, and several major networks co-operated with UNHCR in presenting actuality programmes on the refugee problems which received the highest TV ratings in Canada, France, the United Kingdom and the United States. At the Monte Carlo TV Festival one of these was awarded the prize for the best news coverage of the year. Others were shown at the main film festivals. The Press has also continued to follow the development of refugee work, and has shown an increasing interest in refugee problems outside Europe.
100. There has been a noticeable shift in the nature of the requests for information received by UNHCR: the public and the organizations which had contributed or were contributing funds to UNHCR projects now wished to receive detailed information on the progress being made with particular projects within the UNHCR annual programmes. A special series of reports has been initiated to satisfy this demand. More information was also called for concerning the problems of refugees not within the immediate competence of the United Nations.
101. In order to give the general public a more up-to-date picture of work which could usefully be undertaken by the international community, special articles and pamphlets were prepared and given a wide distribution in co-operation with the United Nations Office of Public Information.
102. To enlist public support for the programme for non-settled refugees in Europe living outside camps a new film has been produced with the co-operation of leading American, British and French actors, called "Nicolas, Mon Ami". UNHCR was also associated with the production of a film called "My Son is a Viking", made by a voluntary agency in Norway illustrating the resettlement problem of a handicapped refugee family in a new country.
103. New photo material has been made and is being distributed concerning refugee problems in North Africa and in Hong Kong. Co-operation with the United Nations Office of Public Information and a number of radio networks resulted in the production of a series of short broadcasts which were particularly useful in support of fund-raising campaigns.
ANNEX I Over-all statistics
Table I DISTRIBUTION OF REFUGEES PRESUMED TO BE WITHIN THE MANDATE OF UNHCR AS AT 31 DECEMBER 1960
Table II GENREAL DEVELOPMENT OF THE REFUGEE SITUATION IN CERTAIN EUROPEAN COUNTRIES a FROM 1 JANUARY TO 31 DECEMBER 1960
a France, Germany, Greece and Italy.
b Revised figure.
Table III DISTRIBUTION OF NON-SETTLED REFUGEES AS AT 1 JANUARY 1960 AND 31 DECEMBER 1960
a Revised figures.
b Including new Hungarian refugees.
ANNEX II International protection
A. INTERNATIONAL INSTRUMENTS AFFECTING REFUGEES
1951 Convention relating to the Status of Refugees
1. During the period under review three further States became parties to the 1951 Convention: New Zealand on 30 June 1960, Brazil on 16 November 1960 and Portugal on 22 December 1960. On 11 July 1960, the United Kingdom extended application of the Convention to the Federation of Rhodesia and Nyasaland and on 11 November 1960 further extended application of the Convention to Basutoland, the Bechuanaland Protectorate and Swaziland. The Following twenty-seven States have so far become parties to the 1951 Convention: Australia, Austria, Belgium, Brazil, Denmark, Ecuador, Federal Republic of Germany, France, Greece, Holy See, Iceland, Ireland, Israel, Italy, Liechtenstein, Luxembourg, Monaco, Morocco, Netherlands, New Zealand, Norway, Portugal, Sweden, Switzerland, Tunisia, United Kingdom of Great Britain and Northern Ireland and Yugoslavia. In certain other countries the procedure for ratification is under way.
1954 Convention relating to the Status of Stateless Persons
2. This Convention entered into force, after the sixth ratification, on 6 June 1960. Two further States have now become parties to the Convention: Belgium on 27 May 1960, and Luxembourg on 27 June 1960. Thus, the following eight States are now parties to this Convention: Belgium, Denmark, France, Luxembourg, Israel, Norway, United Kingdom of Great Britain and Northern Ireland and Yugoslavia.
1957 Agreement relating to Refugee Seamen
3. In order that this Agreement may come into force, ratification by the eight signatory Governments is necessary. The Governments of Belgium, Denmark, France, the Netherlands, Norway, Sweden and the United Kingdom of Great Britain and Northern Ireland have ratified, and in the Federal Republic of Germany the parliamentary procedure for ratification has been completed. Monaco and Morocco have acceded to the Agreement. All the signatories, as well as Italy, are applying the principles of the Agreement in advance of its entering into force.
4. The UNHCR Branch Office in the Netherlands, in co-operation with the Netherlands port authorities at Rotterdam, has prepared a survey in order to ascertain the present scope of the problem of refugee seamen and further means of solving it.
1956 Convention on the Recovery Abroad of Maintenance
5. The following further States have ratified this Convention: France on 24 June 1960, Poland on 13 October 1960, Brazil on 14 November 1960 and Chile on 9 January 1961. Thus, nineteen States are now parties to this Convention.
1952 Universal Copyright Convention
6. The Government of Belgium ratified on 31 May 1960 the Universal Copyright convention and Protocol No. 1 extending its benefits to refugees habitually resident in contracting States. There are now thirty-five parties to this convention, thirty of which are also parties to Protocol No.1.
Draft Declaration on the Right of Asylum
7. A draft Declaration on the Right of Asylum adopted by the Commission on Human Rights at its sixteenth session was discussed in the Economic and Social Council. The Economic and Social Council adopted a resolution (772 E (XXX)) transmitting the draft Declaration to the General Assembly for its consideration together with comments which have been made by Governments on the draft Declaration. The General Assembly, not having been able to consider this item at its fifteenth session, decided (resolution 1571 (XV)) to take it up as soon as possible at its sixteenth session.
B. INDEMNIFICATION-FEDERAL REPUBLIC OF GERMANY
8. As mentioned in earlier reports, intensive efforts have been made with a view to securing adequate compensation for refugees who were persecuted under the National Socialist régime. The negotiations which had been proceeding for some time between UNHCR and the Government of the Federal Republic of Germany resulted in the conclusion on 5 October 1960 of an Agreement between UNHCR and that Government. The Agreement which will help to solve this long outstanding problem concerns payments in favour of persons persecuted under the National Socialist régime who suffered damage by reason of their nationality.
9. Article 1 of the Agreement provides that refugees who suffered permanent injury to body or health by reason of their nationality will now receive compensation on the same scale as other categories of victims of persecution. This part of the Agreement will be put into effect by the German Federal authorities. An announcement has been made on the manner in which this article will be implemented by the Federal Administration Office (Bundes Verwaltungsamt)at Cologne and on the procedure to be followed. The German Federal Government estimates that he implementation of this article will result in additional indemnification payments of about DM50 million.
10. In the protocol to the Agreement, also signed on 5 October 1960, provision has been made for close consultation between the Federal Administration Office and UNHCR on both general questions and individual cases. The Office will be given an opportunity of stating its views, particularly in cases where the Federal Administration Office considers that an application must be rejected or where questions of fundamental importance arise.
11. Under article 2 of the agreement, the German Federal Government has placed at the disposal of UNHCR the sum of DM 45 million, for measures of assistance to refugees who were persecuted by reason of their nationality but who are not entitled to receive indemnification under the German Indemnification Law.
12. The Fund of DM45 million placed at the disposal of UNHCR in accordance with article 2 of the Agreement is being administered by UNHCR. An Indemnification Section within the headquarters of UNHCR has been established for that purpose. It is anticipated that the handling of claims will take three years. The General Assembly at its fifteenth session included in the UNHCR section of the United Nations budget for 1961 an amount to cover the administrative expenses arising from the implementation of the Agreement in 1961, so that the whole amount of DM45 million, plus interest, can be devoted to the beneficiaries.
13. Implementation of article 2 of the Agreement began in January 1961. Applications are being screened as they are received. A Consultative Committee has been established on which voluntary agencies and the refugees themselves are represented and which advises the High Commissioner, at his request, on matters connected with the Fund. These voluntary agencies and the refugees will also be represented on an Appeals Board to be established to advise the High Commissioner on appeals against negative decisions taken by the Indemnification Section on applications received. The scale of payments and the priorities to be applied will be determined by the High Commissioner according to a points system after having sought the advice of the Consultative Committee referred to above. However, as the number of applicants who may qualify for payments from the Fund cannot be known in advance, it will not be possible immediately to establish the final amounts to be granted.
Indemnification under the German Federal Indemnification Law
14. In addition to implementing the Agreement of 5 October 1960, UNHCR, and particularly its Branch Office for Germany, continues to give assistance to refugee applicants for indemnification under the German Federal Indemnification Law, in particular by establishing whether they were refugees on the date specified in that Law.
C. ADMISSION AND RESIDENCE
15. In those countries of Europe where the Office of the High Commissioner takes part in the procedure established for determining whether refugees come under the scope of the 1951 Convention or within the mandate of UNHCR, 16,232 persons were recognized as refugees during 1960. This number includes 1,526 refugees who went from one country of asylum to another whereas 14,706 are newly arrived refugees or refugees who had been residing for some time in the country in which they have now been recognized.
16. During 1960, Valka Camp near Nuremberg, Germany, which had served as reception centre for refugees in the Federal Republic of Germany for more than ten years, was finally closed, and a new Federal Reception Centre established at Zirndorf, where conditions and accommodation are more satisfactory.
17. The Swiss authorities have decided to make it possible for refugees to be released from control by the Federal Aliens Police after five years residence in Switzerland instead of the statutory qualifying period of ten years applicable to aliens in general. On the basis of this release, favourable consideration can be given to applications for permanent residence permits submitted by the refugees concerned, who will thus be exempt from the requirement of obtaining labour permits.
18. In Tunisia, which is a party to the 1951 Convention, the authorities have agreed to set up an interministerial Committee for the Recognition of Refugees to which all applications for refugee status would be referred for decision. UNHCR will co-operate with the Tunisian authorities in this matter.
19. With regard to United States Public Law 86-648 for the admission of a certain number of refugees on parole from some specified countries, one of the conditions of admission is that the applicants must come within the mandate of UNHCR. The High Commissioner's representatives in the countries concerned are co-operating closely with the United States immigration authorities by determining the refugee status of those applicants whose status has not already been certified by the appropriate authorities of the country concerned.
D. RIGHTS OF REFUGEES IN THEIR COUNTRIES OF RESIDENCE
Right to work
20. In Austria, a decree was issued on 14 February 1961 bringing forward the date-line for the exemption of refugees from the requirement of labour permits. According to this decree, all refugees who were in that country before 1 January 1958 are exempt from such permits. Formerly, this exemption applied to those refugees who were in Austria before 1 January 1957. The exemption now covers the great majority of new Hungarian refugees.
21. In Greece, the Ministry of labour has issued a circular to all labour offices instructing them to do everything possible to help refugees find employment, and to issue them with work permits.
22. In Italy, a Mixed Commission composed of officials of the Ministry of the Interior, the Ministry of Labour, the Asministrazione Aiuti internazionali (AAI) and UNHCR has been established in order to facilitate the procedure for granting permanent residence permits and the right to work to refugees who do not already qualify for work permits under the arrangements referred to in last year's and previous reports.
Liberal professions
23. Whereas most countries grant labour permits to refugees, subject to certain limitations, for wage-earning and salaried occupations and also for the independent exercise of crafts and trades, admission to the majority of the liberal professions had been virtually closed to refugees in many countries because such admission is usually restricted to nationals and the 1951 Convention does not prescribe a treatment more favourable than that accorded to aliens generally. Significant measures towards a liberalization of admission criteria in this field were taken or initiated during 1960, on the international as well as the national level, particularly with regard to medical professions.
24. Following consultations between the secretariat of the Council of Europe and UNHCR, the Consultative Assembly of the Council of Europe adopted in September 1960 a Recommendation concerning the position of refugee doctors and dentists in countries members of that organization, suggesting the elaboration of a European convention on the subject. Under this instrument, the contracting parties would undertake not to prevent refugee doctors and dentists from exercising their profession on grounds of nationality; to grant them, as far as possible and without any condition of reciprocity, recognition of equivalence in respect of professional diplomas obtained in the country of origin, and to facilitate, by scholarships or otherwise, such additional courses and examinations as may be considered indispensable. At the same time, the Medical Women's international Association and the World Medical Association adopted resolutions along similar lines, enjoining the (national) member associations to promote measures designed to facilitate the admission of refugee doctors to medical practice.
25. In Switzerland, a decree was issued on 24 June 1960, permitting certain groups of refugee doctors, dentists, pharmacists and veterinaries to take the qualifying professional examination and, after an internship of two years, to exercise their profession without any restrictions.
26. In the United Kingdom, forty-four refugee dentists passed their statutory examination and were registered under an Act of Parliament passed in 1956.
27. In Austria, draft legislation has been submitted to Parliament providing for refugees to be admitted to medical and dental practice on the same conditions as nationals and for recognition to be granted in respect of professional diplomas obtained in the country of origin, subject only to the passing of such additional examinations as may be determined by the competent authorities.
28. In Germany, where refugees admitted prior to 30 June 1950 can already qualify for the exercise of liberal professions on the same conditions as German nationals, other refugee doctors having foreign degrees and medical students upon graduation in Germany are to obtain permission, under a law recently introduced in Parliament, to exercise their profession; applications are to be examined on a case-by-case basis and licences granted subject to certain restrictions.
29. More comprehensive bills covering other liberal professions (lawyers, architects, engineers, accountants, etc.)are under consideration by the Belgian and French parliaments.
Social security
30. In Austria, refugees in possession of an Austrian identity document were permitted to benefit from unemployment relief (as distinct from unemployment assistance, which is granted to refugees in the same way as to nationals) until 31 December 1960. This benefit has now been extended for a period of two years, until 31 December 1962.
31. In the Federal Republic of Germany, a new Aliens Pension Law was passed in 1960. According to the provisions of this Law, refugees who were in Germany prior to 30 June 1960 are entitled to benefit in certain circumstances with regard to old-age pensions, disability pensions, widows' and orphans' pensions in respect of periods of work completed in the refugee's home country. Several hundreds of refugees have already received social insurance benefits in accordance with this law.
E. NATURALIZATION
32. In Australia, the procedure for application for naturalization has been simplified, thus benefiting, inter alia, the numerous refugee applicants for naturalization.
33. In Belgium, a draft law is before Parliament to facilitate the naturalization of certain categories of aliens, including refugees, particularly young people.
34. In Italy, a new nationality law is under consideration which, if adopted, will facilitate the naturalization of certain groups of refugees in that country.
35. In the Netherlands, the naturalization of aliens normally requires ten to fifteen years' residence in that country. The Netherlands authorities are considering accepting five years' residence in the case of refugees as a condition for naturalization, provided that the applicant's assimilation within the country appears to be satisfactory. Moreover, applicants certified as coming within the mandate of UNHCR will be eligible for naturalization free of charge, if their economic situation is such as to constitute an impediment to naturalization.
F. MOVEMENT OF REFUGEES
Facilitation of travel
36. The European Agreement on the Abolition of Visas for Refugees, concluded under the auspices of the Council of Europe in co-operation with the High Commissioner's Office, entered into force on 4 September 1960, having been ratified by three countries. Since that time, further States have ratified and the following seven countries are now parties to that Agreement: Belgium, Denmark, France, Luxembourg, Netherlands, Norway and Sweden.
37. As from 1 July 1960, refugees and stateless persons who have been resident in Denmark, Finland, Norway or Sweden for at least one year are permitted to travel to the other countries of this group without requiring a visa.
38. Negotiations are taking place between various European countries for the conclusion of bilateral agreements to exempt refugees resident in those countries from the requirement of a visa for temporary travel.
39. The Government of Israel now issues the refugee travel document provided for by article 28 of the 1951 Convention relating to the Status of Refugees. Certain other Governments which have recently ratified the Convention are making arrangements for the issue of these documents in their countries.
ANNEX III Refugees presumed to be within the mandate of UNHCR transported by the Intergovernmental Committee for European Migration (1 January-31 December 1960)
Table I AREAS OF EMIGRATION
a A total of 13,299 Hungarian refugees moved to other European countries in 1956 has been deducted from the cumulative total of movements from Austria, since such cases were moved in following years from the countries of second asylum concerned to other destinations for permanent resettlement.
b A total of 618 Hungarian refugees from Yugoslavia moved to Italy in 1957 for processing has been deducted form the cumulative total, as these cases have been moved in following years to other destinations for permanent resettlement.
Table II COUNTRIES OF IMMIGRATION
ANNEX IV Over-all analysis of the UNREF and UNHCR programmes as at 31 December 1960
CONSOLIDATED NUMBER OF ACTUAL BENEFICIARIES a BY COUNTRY OR AREA AND STAGE OF SETTLEMENT
a Not including beneficiaries of supplementary aid and language training projects only; also not including refugees in Germany who, uring the second half of 1960, received services under legal assistance projects only.
b Refugees considered firmly settled who at one time benefited under UNHCR projects, but whose firm establishment is not a detect consequence thereof; further refugees benefiting at one time under UNHCR projects, in respect of whom assistance was discontinued prior to “firm settlement”.
ANNEX V Break-down of total income for 1960 by programme (Expressed in $US)
a For a complete summary of contributions paid, pledged or promised to UNHCR, reference is made to document A/AC.96/115,”Note on Status of contributions to UNHCR FOR 2960 AND 1961”, submitted by the High Commissioner to the fifth session of the Executive Committee of the High Commissioner’s Programme.
APPENDIX Report on the fifth session of the Executive Committee of the High Commissioner’s Programme Geneva, 25-31 May 1961[7]a
SECTION I Introduction
Opening of the session
1. The Executive Committee of the High Commissioner's Programme held its fifth session from 25 to 31 May 1961, at the Palais des Nations, Geneva. The High Commissioner opened the session in the absence of the Chairman, Vice-Chairman and Rapporteur in office.
2. The following officers of the committee were elected by acclamation: Chairman: Mr. K. Salvensen, Norway; Vice-Chairman: Mr. E. Arango, Colombia; Rapporteur: Mr. W. A. Higgie, Australia.
3. The members of the Executive Committee were represented as follows:
4. The Governments of Cambodia and Portugal were represented by an observer, as was the Sovereign Order of Malta.
5. The International Labour Organisation, the Council of Europe, the Intergovernmental Committee for European Migration and the League of Arab States were represented also by observers.
6. On behalf of the Committee, the Chairman welcomed the newly-elected High Commissioner, Mr.Felix Schnyder, who had taken up his functions at the beginning of the year.
Adoption of the agenda
7. The Committee adopted the following agenda:
(1) Election of officers
(2) Adoption of the agenda
(3) Introductory statement by the High Commissioner
(4) Progress report on UNHCR regular annual programmes and on the former UNREF programme as of 31 December 1960
(5) Progress report on programme for new Hungarian refugees
(6) Assistance to refugees from Algeria in Morocco and Tunisia-report on the implementation of General assembly resolutions 1286 (XIII), 1389 (XIV) and 1500 (XV)
(7) Provisional financial statements for the year 1960, and other financial matters
(8) Status of governmental and private contributions to UNHCR for 1960 and 1961
(9) Assistance to refugees in the special cases category
(10) Far Eastern Operation
(11) UNHCR regular programme for 1961 (new and revised projects)
(a) Material assistance
(b) Legal assistance
(c) priorities
(12) Housing of non-settled refugees in certain European counties
(13) World Refugee Year
(14) Other refugee problems
(15) Allocations for the UNHCR regular programme for 1962
(16) Resettlement
(17) Financing of transport of refugees
(18) Arrangements for the future work of the Executive Committee of the High Commissioner's Programme.
Introductory statement by the High Commissioner and other general statements
8. The High Commissioner made a statement, reproduced in full in annex I to this report, in which he summed up the main problems confronting his office and the tasks lying ahead. Members of the Committee stressed the importance which they attached to the views which the High Commissioner had submitted for their consideration.
9. The Committee decided that it that it would revert to the suggestions contained in the statement of the High Commissioner on the course of its debate.
10. In the course of the discussion the representative of the Holy see made a statement in which he reiterated the deep interest of the Holy See in the cause of refugees and reaffirmed its support of the work of UNHCR. He stressed that the larger proportion of contributions made on the occasion of World Refugee year had originated from non-governmental sources. He paid a particular tribute to the Stamp Plan and was pleased to announce that, in addition to $160,000 contributed in kind to UNHCR within the framework of the Plan, the Holy See had just made available to the High Commissioner an amount of $300,000, representing the total proceeds of stamps issued by the Postal Administration of the Vatican City State on the occasion of World Refugee Year.
11. Of this amount, $50,000 was intended for UNHCR and United Nations Relief and Works Agency for Palestine Refugees in the Near East, $100,000 for assistance to refugees from Algeria in Morocco and Tunisia, $50,000 to Palestine refugees, $50,000 to Viet-Nam refugees in the Republic of Viet-Nam and $50,000 for Chinese refugees in Hong Kong.
12. The Committee also heard a statement by Dr. Peter Paul Nahm, Secretary of State of the Ministry for Refugees, Expellees and War Victims, of the Federal Republic of Germany, who emphasized his Government's concern for the foreign refugees on its territory and pledged its continued co-operation with the High Commissioner in his humanitarian task.
13. The representative of Switzerland announced that the Federal Council had issued a decree, on 26 May 1961, under which all refugee doctors, dentists, pharmacists and veterinary surgeons (as well as refugee students in these fields) who had been admitted to Switzerland with a view to permanent residence prior to 24 June 1960 would be allowed to take the Swiss State examinations and subsequently to exercise their profession in Switzerland on a basis of equality with Swiss members of the medical professions. The present measure was designed to extend to other refugees the privileges granted to Hungarian refugees under a similar decree issued on 24 June 1960.
SECTION II Progress report on UNHCR regular annual programmes and on the former UNREF programme as of 31 December 1960
14. The Committee considered the progress report on UNHCR programmes for 1959 and 1960 and on the former UNREF programme (A/AC.96/110), and a note on the progress made in camp clearance during the second half of 1960 (A/AC.96/111).
15. In introducing the report the representative of the High Commissioner informed the Committee that over $6 million had now been committed for the Camp Clearance Scheme, the financing of which was now fully assured. With regard to the tasks still lying ahead, there remained, as at 1 January 1961, some 60,000 non-settled European refugees for whom provision had not so far been made. The Australian representative expressed interest in this figure. He sought and was promised clarification from the High Commissioner as to the method used for its compilation.
16. Satisfaction was expressed at the progress being made with the Camp Clearance Scheme and at the fact that its financing was completely assured.
17. In reply to a question by the representative of the Netherlands, the High Commissioner informed the Committee that the construction of housing for refugees was still being hampered in some countries because of difficulties in obtaining suitable building sites situated near employment centres, and by the shortage of manpower and building materials. It was expected that greater progress in housing construction would be made during the first six months of 1961.
18. The representative of Turkey informed the Committee, with regard to the intergration of refugees in his country, that a draft Bill for the ratification of the 1951 Convention relating to the Status of Refugees was now before Parliament.
19. With regard to the implementation of the UNHCR programme in Greece, the representative of Greece informed the Committee that rapid progress was being made in the clearance of camps. There were now only four camps left in his country. As for housing and establishment assistance, a draft Bill was shortly to be submitted to Parliament which would authorize the competent Ministry to conclude with the refugees the agreements referred to in paragraphs 237 and 238 of document A/AC.96/110. The representative of the High Commissioner stressed the importance of these agreements being concluded as soon as possible so that the refugees concerned could obtain legal title to the apartments or shops and workshops provided for under the programmes and be able to assume the normal obligations of householders and tenants.
20. In the course of the discussion, further inquiries were made into the progress achieved in various areas. The details of these inquiries and of the replies thereto maybe found in the summary record of the 42nd meeting.
21. The Executive Committee took note of the progress achieved and of the reports submitted to it in documents A/AC.96/110 and A/AC.96/111.
SECTION III Progress report on programme for new Hungarian refugees
22. The Committee considered the progress report on the programme for new Hungarian refugees as at 31 December 1960 and final report on the fund for new Hungarian refugees (A/AC.96/112).
23. The Chairman drew the particular attention of the Committee to section III of the report which contained proposals concerning final measures for the provision of residual needs of the refugees concerned, and which pointed out that it was proposed in future to include these refugees in the regular programme of UNHCR where necessary.
24. The Executive Committee took note of the progress achieved in providing permanent solutions for new Hungarian refugees. It authorized the High Commissioner to close his accounts for the Fund for assistance to these refugees and to use future refunds of unspent balances, cancellations and other adjustments on existing projects as non-specified income for the UNHCR regular programmes, it being understood that Hungarian refugees should benefit under these programmes on the same terms as other refugees.
25. The Committee also noted that reimbursements of UNHCR loans under projects for new Hungarian refugees would continue to be credited to the Emergency Fund established under General Assembly resolution 1166 (XII).
SECTION IV Assistance to refugees from Algeria in Morocco and Tunisia-report on the implementation of General Assembly resolutions 1286 (XIII),1389 (XIV) and 1500 (XV)
26. The Committee considered documents A/AC.96/113 and A/AC.96/113/Add. 1 in which the High Commissioner reported on the progress achieved in the joint operation of the League of Red Cross Societies and his Office for assistance to refugees from Algeria in Morocco and Tunisia.
27. Introducing the item, the High Commissioner emphasized that funds immediately available for that programme were sufficient only to guarantee its continuation through June 1961. He had therefore launched an appeal for contributions to the members of the Executive Committee.
28. Mr. Ray Schaeffer (speaking on behalf of Mr. Henrik Beer, Secretary-General of the League of Red Cross Societies) stated that on 18 May 1961 the Chairman of the Board of Governors and the Secretary-General of the League had decided that the League would continue the joint operation until October, when the question would be considered again at a meeting of the Board of Governors. An understanding had also been reached between the League and the High Commissioner to avoid any risk of the arrangements for the operation being jeopardized.
29. The League was addressing an appeal to its member societies for further contributions to enable it to continue the joint operation, with the understanding that Governments would be approached also for increased contributions.
30. The representative of Tunisia expressed his country's appreciation to Governments, the Office of the High Commissioner and the League of Red Cross and Red Crescent Societies and to other organizations for their contributions to the assistance programme. According to the statistical data available to his Government, the number of refugees now in Tunisia was 171,000. It was essential that assistance to these refugees, which was already placing a heavy burden on the Tunisian budget, should be continued, particularly as regards food, medical supplies and clothing and blankets for the coming winter.
31. Several representative stressed the importance which their Governments attached to the assistance programme for these refugees. They recalled that either their Government or voluntary organizations had made important contributions in cash or kind to the programme and that further donations were being considered.
32. A number of representatives announced their Governments' affirmative response to the High Commissioner's appeal for funds made on 28 February 1961. In this connexion, the representative of Switzerland announced that his Government had just made an additional contribution of 100,000 Swiss francs and would consider the possibility of making a further contribution if required. The representative of the United States informed the Committee that the United States Government, which had already made important financial contributions to the programme, would continue to supply, inter alia, surplus food and material for shelters. He stressed the desirability of the services of the voluntary agencies being used to a greater extent in connexion with the programme.
33. The representative of the Holy See had already at an earlier stage in the debate announced a contribution of $100,000, as part of the contribution it had made from the proceeds of the Stamp Plan.
34. The representative of the Netherlands announced that he Netherlands Government had decided to contribute 100,000 guilders ($27,624) in response to the appeal of the High Commissioner.
35. The representative of Turkey stated that his Government had decided to send thirty tons of sugar as well as medicaments to refugees from Algeria in Tunisia through the intermediary of the Turkish Red Crescent Society. His Government hoped to be able to make available further contributions in kind.
36. The Committee also heard from the representative of the Federal republic of Germany that a further donation would be forthcoming from his country after parliamentary approval had been obtained.
37. The representative of Italy stated that the national Red Cross Society in his country would make a contribution in kind.
38. The representative of Yugoslavia stressed the need for vocational training for them more rapidly to resume a normal existence.
39. The Committee also heard a statement from the representative of the League of Arab States and from the representative of the American Friends Service Committee, a summary of which may be found in the summary record of the 44th meeting.
40. The High Commissioner expressed his appreciation of the humanitarian spirit in which the problem was being considered. He recorded his gratitude to the Governments which had already contributed or which had announced new contributions and to those of Morocco and Tunisia which were bearing a heavy burden. It was essential that further donations be received. These could best be channelled either through his Office or through the League of Red Cross and Red Crescent Societies. This would enable his Office to continue the programme and would facilitate the necessary planning. In reply to a question by the representative of the United Kingdom, the High Commissioner confirmed that UNICEF was prepared to continue assistance to the programme but might not be able to make blankets available for the refugees as before.
41. The Executive Committee took note of the progress achieved in the joint operation of the Office of the High Commissioner and of the League of Red Cross Societies for assistance to refugees from Algeria in Morocco and Tunisia and agreed that it was essential for the programme to be continued.
42. It recorded its gratitude its gratitude to the League of Red Cross Societies for assistance to continue the joint operation.
43. The Committee expressed its appreciation to all Governments and organizations for their contributions and voiced the hope that the appeal made by the High Commissioner would meet with further response so that the necessary contributions in cash and kind to ensure the continuation of the programme could be obtained.
44. The High Commissioner, at the 44th meeting, renewed the appeal which he had made in February 1961 for contributions towards the 1961 budget of the programme for assistance to the refugees from Algeria in Morocco and Tunisia.
45. The representative of the United Kingdom stated, at the closing meeting of the session, that her delegation realized that unless additional funds were made available, the relief programme for refugees from Algeria would come to an end at the end of June 1961. The United kingdom Government was therefore prepared to contribute, subject to reasonable limits, 10 per cent of all cash donations made by member Governments of the Executive Committee in direct response to the appeal.
46. The Chairman, on behalf of the members of the Committee and of the High Commissioner, expressed deep appreciation for the announcement which had been made.
SECTION V UNHCR regular programmes
A. Assistance to refugees in the special cases category
47. The Committee considered the report on the mental health of refugees and in particular of special cases in Austria, Germany, Greece and Italy (A/AC.96/116 and Add. 1).
48. In introducing the subject, the Mental Health Adviser pointed out that of the number of 1,200 special cases in Germany, 400 had now been assisted in overcoming their problems. Careful attention would need to be given to the remaining 800 cases to ensure that they were able to resume a normal life.
49. In Italy, the problems of handicapped refugees requiring special assistance could best be solved by arranging for their placement in a community with sheltered workshops. The cost of establishing and maintaining such a community, however, was proving to be very high. The implementation of this type of project would be facilitated if additional assistance towards its financing could be provided by the central Italian authorities or from sources in other countries.
50. The Mental Health Adviser also drew special attention to the psychological problems which arose in the case of certain refugees for whom camp life represented a certain security. Once having left the camp, these refugees needed special assistance which might best be given to them through the social welfare authorities of the country of final settlement.
51. The representatives who spoke on the subject agreed on the importance of the work being done by the Mental Health Adviser and by the teams of special counsellors, particularly as programmes were reaching the stage where solutions had to be found for refugees whose firm settlement presented special problems.
52. In reply to a question by the representative of the United Kingdom, the Mental Health Adviser stated that there was indeed a high proportion of schizophrenics among the special cases. They could be assisted through intensive care provided they had not suffered for too long a time from the complaint. Placing them in sheltered workshops would in most cases greatly contribute to their recovery.
53. The representative of Italy assured the Committee that his Government would continue to co-operate in the work being done by the Mental Health Adviser. His Government considered, however, that the cost of caring for special cases should be considered an international responsibility.
54. The Executive Committee took note of the progress achieved in assisting the special cases, and expressed its agreement with the recommendations put forward by the Mental Health Adviser in the documents considered.
B. Far Eastern Operation
55. The Committee considered the report submitted by the High Commissioner (A/AC.96/117) concerning the main developments of the operation and future plans. Introducing the report, the representative of the High Commissioner emphasized the helpful attitude of the Hong Kong Government which was facilitating the entry of refugees to Hong Kong pending receipt of a visa for their final destination.
56. The Committee took note with satisfaction of the progress being made in the Far eastern Operation which it considered should continue to receive the highest priority.
57. Expressions of appreciation by representatives at the work being performed by the United Kingdom authorities in Hong Kong were endorsed by the Committee.
C. UNHCR regular programme for 1961
New and revised projects
58. The Committee considered documents A/AC.96/120 and Add. 1 in which the High Commissioner submitted to it for approval new and revised projects within the UNHCR regular programme for 1961.
59. The representative of Canada asked whether project VAR/Z/61/AUL to provide a contribution of $40,000 towards the cost of establishing a reception centre in Australia would result in an increased flow of refugees to that country. He also wondered whether such a project should be accorded a higher priority than projects in other countries. The representative of the United States asked whether such a project should not be undertaken by the Intergovernmental Committee for European Migration.
60. The High Commissioner explained that this project was designed to assist refugees who did not qualify for immigration to Australia either under normal governmental schemes or under special schemes for the handicapped. Refugees in this intermediate category often had difficulty in obtaining the individual sponsorships while they were still living in Europe. The reception centre proposed under the project would provide temporary accommodation and facilities for refugees who would thus be able to immigrate to Australia without definite individual sponsorships.
61. The representative of Australia pointed out that his Government provided considerable assistance towards the initial accommodation of refugee and other migrants. Some thirty-five migrant centres under Commonwealth Government control, with a capacity of approximately 35,000 persons, facilitated the placement in employment of migrants and assisted them to bridge the gap between their date of arrival and the time when they could find private accommodation. The Government could not, however, provide these facilities for all migrants. In certain instances, persons or organizations who wished to sponsor settlers for Australia under full fare arrangements experienced difficulty in obtaining the necessary accommodation. The proposal now being considered was designed to counteract this situation. The proposed project would undoubtedly increase the flow of migrants to Australia.
62. The representative of Canada requested that future projects of a similar nature be considered in the light of the particular circumstances prevailing.
63. With regard to the proposed country clearance plan for Italy contained in document A/AC.96/120/Add. 1, the representative of Italy stated that his Government agreed with the plan and that a positive decision as to its financial participation was expected in the near future.
64. Introducing the legal assistance projects, the representative of the High Commissioner drew attention to a note submitted by the International Committee of the Red Cross (A/AC.96/123) which gave a description of the need for legal assistance to refugees and examples of results achieved. He stated that the High Commissioner wished to pay tribute to the voluntary agencies for the socio-legal assistance they were giving to the refugees.
65. The Committee heard from a statement by the representative of the Federal Republic of Germany that legal assistance in that country was contributing to wards the integration of refugees and that the continuation of the legal assistance programme in Germany was welcomed by his Government.
66. The Executive Committee took note of document A/AC.96/120 and its addendum. It expressed general agreement with the country clearance plan for Italy as outlined in paragraphs 3-7 of the addendum and approved the specific projects submitted in paragraphs 7-34 of the document and in paragraphs 8-15 of its addendum.
Priorities for the UNHCR regular programme for 1961
67. The Committee also considered the priorities submitted to it in document A/AC.96/119 which follow the same principles as those adopted by the Committee at its fourth session.
68. The Executive Committee authorized the High Commissioner to implement projects up to the total target of $6 million as funds became available. The Committee further agreed that the priorities which it had adopted in paragraph 122(2) of the report on its fourth session be applied to the whole of the $6 million programme for 1961. It would be the responsibility of the High Commissioner to ensure that no project with a low priority was implemented until the financing of all projects with a higher priority which were ready for implementation was assured. As in the past, projects for which specifically earmarked contributions were received would be implemented immediately.
D. Housing of non-settled refugees in certain European countries
69. The Committee considered the report on housing for refugees living outside camps in Austria, France, Germany (Federal Republic of), Greece and Italy, submitted to the High Commissioner by Mr.Jens L. Seip, together with the introductory note presented by the High Commissioner (A/AC.96/128).
70. Mr. Seip explained that he had suggested assistance whereby refugees could obtain housing loans at favourable rates of interest and at long term. He emphasized that even social (i. e., subsidized, low-cost) housing in the countries concerned would be too expensive for many of the refugees and that assistance through a guarantee fund would not suffice to solve the problem since the burden of repaying short-term loans would be heavy for the refugees. Special measures would therefore be necessary to enable them to make the required down-payments. He suggested that a fund or funds established from which loans could be granted for the purpose of providing the down-payment necessary to enable the refugees to obtain a dwelling. Such loans would be for a longer term and frequently at lower interest rates than could be provided through a guarantee fund.
71. The problem was most serious in the Federal Republic of Germany and in France. In Greece and in Italy it might be solved within the framework of UNHCR regular programmes.
72. The High Commissioner pointed out that, generally speaking, only handicapped refugees could benefit from UNHCR housing projects. Even if non-settled refugees had access to the most favourable social housing schemes in the country of residence, a considerable number of them would be unable to obtain a dwelling owing to their limited income. He felt that it would be appropriate to give the Governments concerned such technical assistance as they might wish to receive from his Office in this regard and possibly to assist them in providing such guarantees as might facilitate the granting of housing loans to refugees.
73. In the course of the discussion, several representatives outlined the arrangements made for refugee housing in their country. It was evident from the statements that, in principle, refugees generally were placed on an equal footing with nationals so far as the acquisition of low-cost dwellings was concerned. They were at a disadvantage however in that, inter alia, they did not always meet the legal criteria for the acquisition of social housing, and in that they often had no family of relatives from whom they could receive financial help towards the initial down-payment often required to obtain a dwelling.
74. The representative of France stated that in his country refugees could benefit from housing subsidies under the same conditions as nationals. These housing subsidies, however, were granted only to families who had managed to obtain modern dwellings corresponding to certain standards. Refugees living in sub-standard dwellings did not benefit therefore from housing subsidies and at the same time lacked the initial capital to obtain adequate dwellings. The problem therefore was to provide the refugee with sufficient capital for use as a down-payment to acquire or rent a new dwelling. In order to meet the special difficulties arising in the case of refugees, the French delegation suggested that a loan fund be established to which the French Government would make a matching contribution equal to the amount contributed by UNHCR. The fund might be established under revolving loan arrangements.
75. The representative of the Federal Republic of Germany emphasized that in his country homeless foreigners had the same legal rights as nationals in the acquisition of housing. A large proportion of subsidized dwellings in Germany were allocated to persons who had lost their home on the territory of the Federal Republic of Germany as a result of war damage. Homeless foreigners did not fulfil this condition. The representative of Germany gave an account of the participation of his Government in the provision of housing for refugees and stated that he hoped that by the middle of 1963 the housing problem of refugees qualifying for assistance under UNHCR programmes in Germany would be solved. He welcomed however the proposal that discussions take place between the High Commissioner's Office and the competent German authorities on the priority to be given to foreign refugees in the acquisition of social housing.
76. The representative of Italy pointed out that resettlement was the main solution for the problem of non-settled refugees in Italy. The provision of employment was the most important prerequisite for refugees wishing to remain there permanently.
77. In outlining the situation in his country the representative of Austria stressed that housing standards differed from one country to another. In Austria, for example, the situation of refugees should be related to the standards of the Austrian population generally. As in other countries, the main difficulty for refugees in Austria was to obtain the funds required to make the necessary down-payment for a dwelling. He suggested that the problem should be further discussed with the Office of the High Commissioner.
78. The representative of the Holy See stressed the great importance that was attached by the Holy See to social conditions, including housing. He thought that a strict formula could not be applied and that appropriate arrangements should be worked out for each country concerned.
79. The representative of Norway explained the functioning of a special revolving fund which had been established in his country to assist refugees to acquire housing. He supported the suggestion that the establishment of such loan funds in Austria, France and Germany should be further considered.
80. Several other representatives expressed their Governments' interest in the question of housing for refugees. They agreed that refugees should be granted the same facilities as nationals and that from the psychological point of view it would be preferable to grant them loans rather than subsidies.
81. The representative of the United Kingdom stated that this type of financing should really devolve upon host Governments.
82. Mr. Seip said that he was well aware of the difficulties likely to be encountered by Governments which attempted to place refugees in a position of advantage as compared with the national population in the acquisition of housing. He hoped that the idea of a loan fund to financially assist refugees to acquire housing under the best market conditions might provide a solution to the problem.
83. The Executive Committee took note of the report on the housing of refugees and agreed that the High Commissioner should continue the study of this problem and submit further suggestions to it at a subsequent session.
E. Allocations for the UNCHR regular programme for 1962
84. The Committee considered programme allocations for 1962 submitted by the High Commissioner (A/AC.96/124) in the amount of $5 million, including $4.3 million for material assistance, $120,000 for legal assistance and $580,000 for administrative expenses. In introducing the item the representative of the High Commissioner pointed out that the allocations were based on the amount of funds that could reasonably be expected for the 1962 programme. The proposed programme was generally focused on assistance to "old" refugees in the handicapped categories; it also included limited amounts for assistance to new refugees through resettlement. He drew the attention of the Committee to the important question of supporting contributions.
85. During the discussion of the long-term considerations on which the proposed 1962 programme had been based, the representative of the Netherlands questioned the possibility that, as stated in paragraph 5 (b) of the document, financial provision for the settlement of "old" refugees still remaining in Europe could be completed within the next two or three years. She emphasized that while priority had been given to the refugees in camps, resolution 1166 (XII) of the General Assembly stipulated that sight should not be lost "of the need to continue to seek solutions for the problems of refugees outside camps".
86. The representative of the High Commissioner recalled in this regard that in accordance with the decisions taken by the Execution Committee at its third session, priority within the group of non-settled refugees living outside camps was to be given to the handicapped. In reply to further questions the representative of the High Commissioner stated that most of the non-settled handicapped refugees had been registered because concrete possibilities were in sight to solve their problems. During the ensuing discussion several delegations considered that a registration of all non-settled refugees would be valuable since it would give a complete picture of the size of the problem.
87. The Committee then considered the question of supporting contributions. Some representatives questioned the extent to which the percentage of supporting contributions made in the past from within countries of residence of refugees were actually related to the per capita income of the countries concerned. The representative of Aus