2010 Regional Operations Profile - Southern Africa

Working environment

Zimbabwe remains the exception in the otherwise stable political environment of Southern Africa. Hopes of improvement were raised by the creation of a Unity Government in February 2009, but this coalition remains fragile. Overall, the global economic downturn has made it more difficult for refugees in Southern Africa to become self-reliant. It has also increased competition and given rise to tensions within and among different communities, while undermining support for local integration as a durable solution. Nonetheless, the potential for developing local integration as a durable solution in Southern Africa exists, and the establishment of a legal framework for local integration is under study.

Strategy

UNHCR's focus in Southern Africa will be on helping governments to uphold asylum and enhance their protection capacities, including by updating existing laws and improving refugee status determination (RSD) and registration procedures. Mixed-migration flows are a particular challenge. In 2010, UNHCR will seek new ways to ensure protection for refugees and asylum-seekers within a broader framework of effective migration management.

Countering rising xenophobia will be important in order to improve the asylum environment in Southern Africa. UNHCR will join forces with governments, NGOs and other civil-society actors and community-based organizations to make the public more tolerant of foreign migrants and aware of the plight of refugees and asylum-seekers.

The use of resettlement will be strengthened in the Southern African region in response to protection needs and the situation of vulnerable refugees. In 2010, the office plans to submit more than 5,200 people for resettlement, which is an increase of 64 per cent compared to 2009.

Constraints

Governments in the region face challenges in building fair, effective and sustainable national asylum procedures. The southward movement of refugees and asylum-seekers from the Horn of Africa within mixed migratory flows places severe strains on national asylum systems. Indeed, the phenomenon poses the risk of undermining public support for asylum, or of leading to more restrictive practices, such as encampment and the introduction of the concept of country of first asylum.

Operations

The programmes in Angola, South Africa and Zambia are presented in separate country chapters. The following is a brief summary of operations in the remaining countries covered by the UNHCR Regional Office in Pretoria, South Africa.

There are some 3,400 refugees and asylum-seekers in Botswana, originating mostly from Angola, Namibia, Somalia and Zimbabwe, with the majority living in Dukwi camp. The Government's Refugee Advisory Committee is now applying more strict criteria when deciding on RSD applications from asylum-seekers originating outside the immediate region.

In 2010, some 300 refugees are expected to find durable solutions through voluntary repatriation, mostly to Namibia and Zimbabwe, and another 200 through resettlement. Petitions filed by virtually all of the approximately 500 Angolan refugees in the country asking for local integration are awaiting a decision by the Government. In 2011, the three durable solutions will continue to be pursued simultaneously for the remaining people of concern.

A small number of refugees and asylum-seekers in the Indian Ocean island States of Comoros, Madagascar, Mauritius and Seychelles will receive material assistance from UNDP, under a memorandum of understanding between UNHCR and UNDP, as well as legal support through UNHCR monitoring visits. UNHCR continues to pursue durable solutions for those people of concern.

UNHCR phased out its presence in Lesotho in 1997 but continues to provide protection assistance by undertaking missions from South Africa when needed. Lesotho currently hosts some 60 refugees of various nationalities and facilitates their local integration.

Malawi hosts some 12,000 refugees and asylum-seekers, mostly from Burundi, the Democratic Republic of the Congo (DRC) and Rwanda, of which some 10,000 live in Dzaleka refugee camp. Thousands of people also pass through the country in mixed migratory flows from the Horn of Africa.

In 2010, UNHCR will continue to help the Government build its RSD capacity, advocate for the lifting of reservations to the 1951 Refugee Convention, and assist the Government to review the present Refugee Act, in order to increase refugees' chances for local integration.

The programme focus for 2010 and 2011 will be on the repatriation of people from Burundi and Rwanda and resettlement in third countries for vulnerable refugees. There are also plans for a pilot project for the repatriation of rejected asylum-seekers, who presently have few options following the final rejection of their claims.

The population of concern in Mozambique in early 2009 was some 7,600 (3,150 refugees and 4,450 asylum-seekers), the majority of whom are from the DRC, followed by Burundi, Rwanda and other countries in Africa. Over 60 per cent are residents of Marratane refugee camp in Nampula.

UNHCR continues to assist the Government to amend its refugee legislation to improve the RSD and appeals process. It has increased protection monitoring and capacity-building efforts along Mozambique's northern border, with a view to documenting patterns of movement and assisting local officials to strengthen their protection response.

Situations of statelessness will be addressed for some farm workers from Zimbabwe with historical links to Mozambique, as well as for undocumented Mozambicans in the neighbouring countries.

While development of a legal framework for local integration remains under study, Mozambique has made additional agricultural land available near the Marratane camp in Nampula for both refugees and local residents, allowing refugees both freedom of movement and the right to work. Durable solutions through repatriation, in particular to the DRC, Burundi and Rwanda, will also be sought where possible.

There are over 8,000 refugees and asylum-seekers in Namibia, of whom almost 6,000 are from Angola while the rest are from Burundi, the DRC and Rwanda. UNHCR will pursue voluntary repatriation for Angolan refugees in Namibia and promote local integration for others. A new survey will be conducted, which will allow UNHCR to further refine its operational strategy and plan for these activities, which are likely to continue into 2011. The Government has identified local integration as the best solution for some long-staying Angolan refugees, and UNHCR has offered assistance in developing a policy and legal framework.

There is no UNHCR presence in Swaziland, but some education, health, self-reliance and protection assistance is being provided through implementing partners to more than 1,300 people of concern (760 refugees and 540 asylum-seekers, mostly from the DRC, Rwanda and Somalia). As their level of self-reliance is increasing, the phasing out of UNHCR's assistance is being considered.

Until 2009, UNHCR in Zimbabwe focused on providing protection and assistance to refugees. The Office has gradually launched a new programme focusing on returnees and IDPs. At the end of 2008, there were some 4,000 people of concern (3,470 refugees and 530 asylum-seekers) of whom approximately 2,800 resided in Tongogara refugee camp, located close to the Mozambican border. Most are from Burundi, the DRC and Rwanda. In the first half of 2009, the camp population increased to more than 3,500.

UNHCR aims to maintain standards in the prevailing difficult socio-economic conditions in Zimbabwe, while also pursuing durable solutions through repatriation and resettlement where possible. A significant number of Zimbabweans have been displaced internally as a result of social unrest and violence. In mid-2009, the UN Emergency Relief Coordinator launched a protection cluster in the country, with UNHCR as the designated lead agency.

The Office plans to assist 40,000 IDPs in 2010 and another 40,000 in 2011 through programmes that provide legal advice and counselling; emergency livelihoods interventions and reconciliation support at the field level; and increased sensitization of the local authorities.

UNHCR plans to assist up to 60,000 Zimbabweans in 2010 and some 80,000 in 2011 to return and reintegrate from South Africa. But revitalization of the economy and restoration of the social infrastructure will be essential if Zimbabwean refugees and asylum-seekers are to be encouraged to consider returning home. In 2010, UNHCR and other key stakeholders will also look into developing strategies and responses to statelessness in Zimbabwe.

Financial information

In 2007, UNHCR's budget declined significantly in line with the diminishing repatration operation to Angola. In 2008, the requirements increased due to the emergency in Zimbabwe and the consequences of the xenophobic violence in South Africa. The pilot global needs assessment project in Zambia led to another increase in 2009. In 2010, the budget reflects significant increases in most countries as a result of the comprehensive needs assessments. Part of the increase addresses the heightened needs of refugees and asylum-seekers in South Africa following the xenophobic violence. The increased budget also includes the resumption of Angolan repatriation.

Source: UNHCR Global Appeal 2010-2011