2010 UNHCR country operations profile - Pakistan

Working environment

The context

The humanitarian situation changed dramatically in Pakistan in the first half of 2009, with approximately 2 million people uprooted by the emergency in the North-West Frontier Province (NWFP) and the Federally-Administered Tribal Areas (FATA). The speed and magnitude of the crisis was unprecedented, prompting the Government of Pakistan and the humanitarian community to expand the existing humanitarian operation plan. Within months of the emergency, the Government initiated a return strategy, shifting the emphasis from providing immediate humanitarian assistance to supporting return, early recovery and reconstruction efforts.

In addition to assisting some 2 million people who have fled their homes, Pakistan continues to host some 1.7 million registered refugees, one of the largest populations of its kind in the world. Almost all are from Afghanistan, and live in refugee villages and urban areas. A very small number of refugees and asylum-seekers, primarily from Somalia, Iraq and Iran, also live in the country.

Since March 2002, approximately 3.5 million Afghans have repatriated from Pakistan with UNHCR's assistance. More than 270,000 Afghan refugees returned home in 2008, and in the first half of 2009 some 50,000 Afghans repatriated. The reduced numbers are largely due to the profile of the remaining Afghans and the deteriorating security situation, as well as uncertainty around the elections in Afghanistan. The Government of Pakistan's commitment to the extension of the Proof of Registration (PoR) card for Afghans until 2012 will enable Afghans to remain living in Pakistan until return becomes a more viable option.

Security imperatives have also changed the way UNHCR and the humanitarian community operate in Pakistan. In 2010 UNHCR will continuously review the operating environment and adjust its programmes accordingly.

The needs

UNHCR will facilitate voluntary repatriation in 2010 for all Afghans with a valid PoR card. It is estimated that some 150,000 Afghan refugees will repatriate, taking into account the absorption capacity in Afghanistan.

Under the Registration Information Project for Afghan Citizens (RIPAC), three initiatives were considered for registered Afghans in 2009 and these will be pursued in 2010. The first is the Smart Card for Afghan Citizens project which will allow refugees to have a formal identity document. The second is the conducting of community and household surveys, aimed at identifying short- and long-term protection needs and solutions for different groups, with a focus on resettlement. Based on the outcomes of the surveys, the third initiative - the Special Assistance Fund (SAF) - will target in-country assistance to identified individuals and groups.

RIPAC will also ensure that all registered Afghans under the age of 18 are issued with birth certificates. It is expected that some 1 million Afghan children will receive these documents under the project.

The Refugee-Affected and -Hosting Areas (RAHA) initiative was officially launched by the Government with the support of UNHCR and UNDP in 2009 in the context of the UN Delivering as One programme. This five-year development programme, which aims to address social, economic and environmental factors, will be implemented initially in Baluchistan and the NWFP. Its aim is to promote the peaceful co-existence of Afghan refugees and the local communities that have hosted them for more than three decades.

UNHCR will continue to assist people affected by the emergency in 2009 by supporting the efforts of the Government and local NGOs in such key areas as transportation, protection monitoring (through social and legal referral centres), the provision of non-food items and temporary shelter. As some people of concern will not be able to return home in the near future, UNHCR will continue to help them through its role as cluster lead for emergency shelter, protection, and camp coordination and camp management. As the security situation is likely to remain precarious in 2010 in some areas of NWFP, Waziristan and Baluchistan, emergency preparedness and contingency planning for new displacement will be an important component of UNHCR's work.

Main objectives

Favourable protection environment

• Advocate for the inclusion of refugee-affected and -hosting areas, return areas and Afghan populations in the national development agenda, development programmes supported by other UN agencies, and the UN Delivering as One initiative.

Fair protection processes

• Help the Government to manage the Afghan refugee population by implementing the Registration Information Project for Afghan Citizens (RIPAC), with particular emphasis on reducing the vulnerability of Afghans through the issuance of identification documents by the Government.

Basic needs and services

• In response to the emergency situation, continue to provide humanitarian assistance, such as shelter materials and non-food items, to people of concern; establish camps and assist in camp management; support host communities; and protect the most vulnerable populations.

Durable solutions

• Provide international protection and solutions to refugees and asylum-seekers.

• Ensure that that the returns of Pakistanis affected by the emergency in the NWFP and the Federally Administered Tribal Areas (FATA) are voluntary and sustainable and support the Government's efforts to provide the necessary humanitarian assistance to returnees and host communities.

Logistics and operations support

• Ensure the security of all staff.

Key targets for 2010

• Some 150,000 Afghans repatriate voluntarily from Pakistan.

• Under the RIPAC project, Smart cards are issued to Afghans, replacing the PoR cards, and individuals and groups will be identified for assistance as a result of the household surveys.

• Up to 30 projects are implemented under the RAHA initiative.

• UNHCR will continue to provide humanitarian assistance to people of concern through registration, the provision of non-food items and emergency shelter.

• UNHCR will assist some 800,000 individuals affected by the humanitarian situation with registration, shelter, non-food items, protection support through legal and social referral centres, transportation and temporary shelter in areas of return although the numbers may change due to the evolving situation.

• More effective safety measures enhance staff security.

Strategy and activities

As part of its overall protection strategy in Pakistan, UNHCR will continue to advocate for the Government's accession to the 1951 Refugee Convention and the subsequent development of a national legislative framework so that refugees and asylum-seekers benefit from a strengthened protection environment.

Given that the PoR card validity is expected to be extended to the end of 2012 and the security situation is likely to remain volatile in both Afghanistan and Pakistan, the number of people opting for voluntary repatriation will be in line with the Afghan National Development Strategy in 2010.

UNHCR will also strengthen its community-based humanitarian assistance to Afghans in camps by expanding local legal and social NGO networks and advocating for the integration of services for refugees into national programmes.

Under the Cluster approach, UNHCR will continue to provide shelter, material assistance and protection to people affected by the emergency. It will also provide transportation, material assistance and temporary shelter to groups with specific protection needs, and undertake protection monitoring through legal and social centres. UNHCR's support for those families not ready to return will continue. The Office will also consolidate camps, establish temporary accommodation closer to areas of return, and prepare for movements from Waziristan in FATA, where registration has taken place since May 2009 and is likely to continue given the developments unfolding in the area.

Constraints

In 2009, UNHCR faced the tragic loss of three staff members who were working in Pakistan. The precarious security situation in parts of NWFP and Baluchistan is a major concern, and the Office will face the difficult task of balancing the imperatives of staff security and delivering humanitarian aid to people of concern.

The lack of infrastructure and livelihood opportunities in Afghanistan may continue to hinder returns.

Organization and implementation

Coordination

UNHCR works primarily with the Government of Pakistan through the Ministry of States and Frontier Regions (SAFRON) as well as various other ministries and provincial authorities. Both implementing and operational partners make a significant contribution to UNHCR activities, including in the management of Afghan refugee villages and the provision of basic health, education, water and sanitation and community services. Partners also work in the areas of repatriation, registration and de-registration of refugees and IDPs, protection, migration and camp management, as well as emergency response operations. As a pilot country for the UN Delivering as One programme, UNHCR works in close collaboration with other UN agencies to address common issues.

Financial information

The budget for UNHCR operations in Pakistan, particularly for supplementary programmes, has varied over the past few years to enable the Office to respond more effectively to emergencies, such as the earthquake in 2005-2006 and floods in NWFP in August 2008, as well as the current Pakistan Humanitarian Response Plan.

In 2009, the supplementary budget increased significantly in response to the massive humanitarian emergency in NWFP and FATA, and it is likely to remain at a similar level in 2010. There will also be an increase in funding for community-based rural development activities that support the co-existence of Afghans and their local hosts in Pakistan under the RAHA programme. UNHCR is committed to continuing its work with the Government and other partners for the protection of all people of concern in Pakistan.

Source: UNHCR Global Appeal 2010-2011