Update on Regional Developments in Central Asia, Southwest Asia, North Africa and the Middle East

EC/48/SC/CRP.3

UPDATE ON REGIONAL DEVELOPMENTS IN CENTRAL ASIA, SOUTHWEST ASIA, NORTH AFRICA AND THE MIDDLE EAST

I. INTRODUCTION

1. This document consists of five parts. Part II gives a Regional Overview, Part III provides information on Regional Special Programmes, Part IV describes the CASWANAME consultative process and Part V contains the individual Country Reviews. Budgetary and post information are provided in the annexes.

II. REGIONAL OVERVIEW

2. During 1997, the Central Asia, Southwest Asia, North Africa and the Middle East region (CASWANAME) was characterized by continuing volatility in Afghanistan and northern Iraq on the one hand, and progress towards resolving long-standing refugee situations in Western Sahara and Tajikistan on the other. The most important developments in the key areas of the region are described below.

A. Southwest Asia

3. During 1997, the situation in Afghanistan unfortunately did not improve. The absence of a political settlement, continued fighting between factions, related population displacements and violations of basic human rights, especially of those of women and girls, prolonged the human tragedy which the Afghan population has endured for the past seventeen years.

4. Since May 1997, the fighting in the northern part of Afghanistan has caused serious disruptions in the area and forced the United Nations agencies to evacuate from Mazar-i-Sharif, thus suspending their operations in the region. The Tajik refugees residing in Sakhi Camp were also victims of the fighting between the Afghan factions and their voluntary repatriation was delayed due to the lack of transport and security. Despite this, and following the peace agreement signed in Moscow on 27 June 1997 between the Tajik Government and the United Tajik Opposition, UNHCR managed to assist 10,200 Tajik refugees to repatriate from Afghanistan by mid-November 1997.

5. In Afghanistan, UNHCR initiated several projects to enhance the reintegration of groups of returnees. This new approach to assistance also involved other United Nations agencies and non-governmental organizations (NGOs) in their relevant fields of expertise. After the declaration of an amnesty by the Government of the Islamic State of Afghanistan and the Taliban Administration, UNHCR held several workshops with the local authorities to implement this amnesty and to address the issue of human rights.

6. In the Islamic Republic of Iran, the number of returnees to Afghanistan has been very low, totalling only 2,145 as of 30 November 1997. In response to this situation, UNHCR and the Bureau for Aliens and Foreign Immigrants Affairs (BAFIA) of the Ministry of Interior, the Government counterpart of UNHCR, have decided to undertake measures to try to create conditions more conducive to voluntary return. During the same period, the number of Iraqi Kurd refugees who have returned to Iraq has significantly increased as compared to 1996. A total of 4,341 persons have been assisted, and more refugees have approached UNHCR for voluntary repatriation. The shortfall of funds under the 1997 General Programmes, however, created a reduction of activities in the field of income-generation, postponed the improvement of water systems and shelters in refugee camps, and did not permit the much needed increase of assistance in the delivery of health services to the refugees through the Medical Referral Units.

7. In Pakistan, the number of returnees to Afghanistan has been consistent (80,521 as at 30 November 1997) with the level of returns in 1996. Refugees have been increasingly interested in benefiting from the special assistance provided to returning groups, raising hopes that there will be substantial returns in 1998. Like in the Islamic Republic of Iran, the shortage of funds under the 1997 General Programmes obliged UNHCR to reduce some care and maintenance activities in Pakistan, such as education, reproductive health and income-generation in the refugee villages.

B. Central Asian Countries

8. Since the opening of UNHCR offices in the five Central Asian countries, significant progress has been made in the region. Both Tajikistan and Kyrgyzstan have acceded to the 1951 Refugee Convention and its 1967 Protocol. Close coordination and collaboration have been established with the new Governments and with other agencies, such as the International Organization for Migration (IOM), the International Committee of the Red Cross (ICRC) and the International Federation of Red Cross and Red Crescent Societies (IFRC), in matters concerned with placing issues related to resolving and mitigating refugee migration and forced population movements on national agendas.

9. During 1997, UNHCR achieved continued progress in implementing its capacity-building and prevention objectives, consistent with UNHCR's regional strategy and the CIS Conference's Programme of Action. Of particular note in the region was the decision of the Government of Turkmenistan to adopt its own refugee law and pass legislation enabling it to accede to the 1951 Refugee Convention and its 1967 Protocol. Also significant was the establishment of the Bishkek Migration Management Centre in Kyrgyzstan under the auspices of the Governments of Kyrgyzstan, Kazakstan and Uzbekistan. In addition, during the High Commissioner's visit to all five countries in the region in May 1997, each country in Central Asia reaffirmed its commitment to establishing and implementing the required legal and administrative norms and standards for protecting and assisting refugees, and other victims of forced population movements.

10. In 1998 and 1999, UNHCR will continue to assist the Governments and NGO bodies in the region to establish and strengthen the necessary policy, legislative and administrative frameworks and capacities to effectively manage issues related to forced population movements. In addition, the new post of Regional Policy Officer for Children will ensure that the needs of children amongst affected populations in the region will be clearly identified and addressed.

C. North Africa

11. During 1997, the refugee situation in North Africa remained stable, with no new emergency situations. The overall security situation in Algeria, however, continued to impose restrictions on the movement of United Nations staff, but the implementation of UNHCR refugee programmes was not affected by the security conditions. In mid-1997, all United Nations agencies moved to new common office premises in Algiers.

12. The repatriation of refugees to Mali from Algeria continued at a slower pace; during 1997, some 2,000 Malian refugees returned to their country of origin under UNHCR auspices. The repatriation of refugees to Mali from Mauritania, however, was successfully completed by end-June 1997, with approximately 40,000 persons returning in 1997 within the framework of the UNHCR voluntary repatriation programme.

13. The efforts of Mr. James Baker III, the Personal Envoy of the United Nations Secretary-General for Western Sahara, resulted in agreements between Morocco and Polisario in 1997, and the adoption of Security Council resolution 1133 (1997) on 20 October 1997. This positive development will allow for the implementation of the United Nations Settlement Plan for Western Sahara. UNHCR's role is well defined in the Settlement Plan and preparatory work has already been initiated towards its implementation and the organization of a voluntary repatriation movement in August 1998, as mentioned in the timetable of the Secretary-General's comprehensive report on Western Sahara, submitted to the Security Council on 13 November 1997.

14. The 200 Palestinians stranded at the border between the Libyan Arab Jamahiriya and Egypt were allowed to return to the Libyan Arab Jamahiriya, and assurances were given by the Libyan authorities that they would be reintegrated in their previous places of residence. Despite logistics difficulties due to sanctions, the voluntary repatriation of refugees from the Horn of Africa in the Libyan Arab Jamahiriya continued at a steady pace during 1997.

15. In Yemen, the overall situation of refugees in the country has substantially improved as a result of the nation-wide registration and documentation of refugees conducted by UNHCR in collaboration with government agencies. In 1997, UNHCR succeeded in assisting some 755 refugees (700 Somalis and 55 Ethiopians) to voluntarily repatriate to their home countries. The influx of refugees, however, continued throughout the year with an average number of 250 persons arriving per month, mostly from Somalia.

16. Based on the findings of an independent study and an internal evaluation, UNHCR, in consultation with the donor Government, the United Nations Secretariat and relevant authorities, has decided to conclude its participation in the Bicommunal Programme in Cyprus at the end of 1997.

D. Middle East

17. The general situation in the Middle East during 1997 was marked by continuing instability and complex humanitarian problems. In northern Iraq, the Atroush camp was closed and the Turkish refugees of Kurdish origin received alternative assistance in Ain Sufni (6,866 persons) and 19 other locations in northern Iraq. Some 1,000 have repatriated to Turkey. During 1997, inter-factional Kurdish fighting was also complicated by Turkish military incursions into northern Iraq. This situation led to population movements inside and outside the region.

18. As noted above, the group of Palestinians who had been stranded since September 1995 at Salloum on the Egyptian-Libyan Arab Jamahiriya border were allowed to return and reintegrate in their former places of residence in the Libyan Arab Jamahiriya.

19. During 1997, UNHCR intensified its efforts to seek and implement durable solutions for refugees in the Middle East region. These efforts included repatriation and resettlement. UNHCR also sought to enhance refugee protection and welfare in their countries of asylum.

20. Budget constraints under the 1997 General Programmes led to a reduction in programmes in favour of refugees in the Middle East, in particular with respect to budgets related to care and maintenance programmes.

III. REGIONAL SPECIAL PROGRAMMES

A. Repatriation to Afghanistan

21. The initial target figures for Afghan repatriation during 1997 were set at 250,000 persons from Pakistan and 100,000 persons from the Islamic Republic of Iran, with a budget of $ 27.5 million. Due to a lower rate of return than expected, the figures were subsequently reduced to 100,000 and 25,000 persons respectively; the budget was decreased to $ 19.9 million accordingly.

22. Between 1 January and 30 November 1997, 80,521 Afghans repatriated from Pakistan. With the exception of a small group who returned to Badakshan Province in northern Afghanistan, all the returnees went back to their areas of origin in the part of Afghanistan presently controlled by the Taliban. The refugees in Pakistan have started showing an increasing interest in group repatriation, giving them the opportunity to benefit from transportation provided by UNHCR, enhanced protection and safety during the return trip and a better chance of reintegration in the villages of return. United Nations agencies and NGOs have closely cooperated with UNHCR in the implementation of viable and durable projects in the areas of return.

23. During the same period, 2,145 Afghan refugees returned from the Islamic Republic of Iran, mainly to north-western Afghanistan. Repatriation to northern Afghanistan through Turkmenistan envisaged earlier did not materialize. The instability and the fighting between factions which took place most of the year in northern Afghanistan were the main reasons for the absence of candidates for voluntary repatriation.

24. In Afghanistan, UNHCR continued its reintegration programmes for returnees through projects aimed at improving the provision of shelter, health, drinking water, sanitation, education, irrigation, income-generation, road repairs and community services in the receiving communities. Other United Nations agencies, NGOs and local technical departments implemented these activities while UNHCR regularly monitored the welfare and the rights of the returnees. Several workshops have been organized with the local authorities to promote respect for human rights and for the amnesty declared by the authorities.

B. Repatriation to Iraq

25. For 1997, the initial target of assistance for Iraqi returnees to northern Iraq from Turkey, the Syrian Arab Republic and the Islamic Republic of Iran was 10,000 persons. Assistance was targeted at persons who left Iraq as a result of the 1991 war in the Persian Gulf. However, the repatriation operation was periodically interrupted due to the deteriorating security situation caused by Kurdish inter-factional fighting in northern Iraq. In addition to the 4,341 Iraqi Kurds who repatriated from the Islamic Republic of Iran to northern Iraq under UNHCR auspices, UNHCR in Iraq also assisted some 4,000 spontaneous returnees.

26. UNHCR's returnee project provided a shelter package and assistance in the form of either livestock, carpentry tools or a farming set, while the World Food Programme (WFP) provided refugees with a two-month food ration upon their return.

C. Repatriation to Western Sahara

27. Following consultations with the Office of the Personal Envoy of the Secretary-General and with the Acting Special Representative of the Secretary-General for Western Sahara, UNHCR fielded a mission to the region in the month of August 1997 to review and update technical aspects of the UNHCR Repatriation Plan under the United Nations Settlement Plan, to ascertain the willingness of the refugees to repatriate voluntarily and to gather the essential information on their final destination within the Western Sahara Territory. Meetings were held with local authorities and the Sahrawi community that helped to update the repatriation plan initially prepared in 1995. UNHCR received full cooperation from the Algerian, Moroccan and Mauritanian authorities and the Polisario in this regard.

28. Security Council resolution 1133 (1997) was adopted on 20 October 1997, thereby extending the mandate of the United Nations Mission for the Referendum in Western Sahara (MINURSO) for a further six months until 20 April 1998 and allowing MINURSO to resume its identification work. The Secretary-General submitted a comprehensive report to the Security Council on 13 November 1997, which included a detailed plan, timetable and the financial implications for the fulfilment of the United Nations mission in Western Sahara.

29. UNHCR hopes that the above settlement will result in a durable solution for the refugees who have lived in exile for over 22 years. UNHCR's role is well described in the United Nations Settlement Plan, according to which UNHCR will repatriate refugees and others who are entitled to vote in the Referendum and their immediate family. Under UNHCR's mandate, any residual caseload remaining in Tindouf will be screened individually by UNHCR to identify, in consultation with the Government, appropriate solutions.

30. The implementation of the Settlement Plan is linked to the completion of the work of the MINURSO Identification Commission (IDC) which is to identify and prepare a list of eligible voters to participate in the referendum. The work of MINURSO resumed on 3 December 1997 and is expected to be completed on 31 May 1998.

31. The implementation of the UNHCR voluntary repatriation programme will be in accordance with the normal practice and principles of the Office. According to UNHCR's plan, the repatriation would begin by 2 August 1998 and be completed by 15 November 1998, to allow for the Referendum to take place by 7 December 1998. At least 15 weeks would be required for UNHCR to complete the repatriation of the refugees with their families, from both Algeria and Mauritania. The voluntary repatriation can only begin when certain key elements of the United Nations Settlement Plan are in place, such as the work of the IDC and the issuance of the final voters list; the reduction and confinement of troops; neutralization of paramilitary units in the existing police forces; arrangement for maintenance of law and order during the transitional period; designation of crossing points and provision of security at those crossing points and at the transit centres by MINURSO; the demining of repatriation routes and sites; etc. Confidence-building and full cooperation of the parties will also be required to ensure smooth implementation of the plan.

32. A figure of 120,000 persons (105,000 in Algeria, 10,000 in Mauritania and 5,000 others) is contained in the UNHCR repatriation plan as an initial planning assumption. This figure was adopted by UNHCR technical teams which visited the region in February 1995 and August 1997 to assess the number of persons who need to be repatriated under the United Nations Settlement Plan. About 90 per cent of these 120,000 potential returnees would be repatriated by air, and the remainder by road, to the transit centres which will be located at or near the returnees' intended places of return and as close as possible to voting centres. The return from Mauritania would be mostly by road and would be determined after the work of IDC and UNHCR's registration are completed in that area. It should be noted that these are assumptions for planning purposes which may have to be readjusted on the basis of the final voters list and each potential voter's willingness to return to the Territory, as would be ascertained by UNHCR during the registration exercise.

33. A total budget of $ 50 million, as was originally foreseen in 1996, will be required for the implementation of the UNHCR repatriation programme under the United Nations Settlement Plan, of which an estimated $ 32 million would be for transport and logistics alone. An additional amount would be required for the UNHCR rehabilitation and reintegration programme in 1999; UNHCR will revert later after a further assessment of needs.

34. To carry out activities for the voluntary repatriation programme, UNHCR will require a large increase in the number of staff in the area in 1998, with the opening of additional field offices in the region.

D. Tajikistan

35. In Tajikistan, despite some serious security incidents in the country, significant progress in the Inter-Tajik peace talks took place at the end of 1996 and continued in the first months of 1997. Under the auspices of the Special Representative of the United Nations Secretary-General for Tajikistan, this process culminated in the signing, in Moscow on 27 June 1997, of the General Agreement on the Establishment of Peace and National Accord in Tajikistan between the Government of Tajikistan and the United Tajik Opposition (UTO). This Agreement included a specific Protocol on Refugee Related Issues, which was signed on 13 January 1997.

36. With the signing of the General Peace Agreement, a political framework for national reconciliation was established in Tajikistan and, subsequently, UNHCR was able to recommence the voluntary repatriation of Tajik refugees from northern Afghanistan in July 1997. By mid-November 1997, some 10,200 Tajiks had returned home safely, and their repatriation from northern Afghanistan was completed. With the return of Tajiks from other countries in Central Asia and the Commonwealth of Independent States, expected in 1998, UNHCR's programme focus in Tajikistan in 1998 and into 1999 will primarily be on the reintegration and rehabilitation of Tajik returnees in their communities of return. UNHCR is fully committed to the process of peace and reconciliation in Tajikistan and the planned activities are expected to help sustain the momentum of the peace process and contribute to stabilizing the country for future development and post-conflict reconstruction activities.

IV. CASWAME CONSULTATIONS

37. The opening round of the CASWAME regional consultations on population displacements was held in Amman, Jordan, on 12 and 13 March 1997. The meeting was co-sponsored by the Government of Jordan, and delegations from 13 States from Central Asia, Southwest Asia and the Middle East attended the meeting.

38. Despite political differences between certain countries, all the participants recognized the serious nature of population displacements in the region and the need to find durable solutions for them within an integrated regional framework. Statements made at the meeting were unanimously in support of this UNHCR initiative. They also stressed the need to have a regional mechanism for substantive dialogue among concerned countries, in which UNHCR could play a constructive and catalytic role to advise, guide, mediate and disseminate information through the establishment of a permanent secretariat at UNHCR Headquarters to oversee the CASWAME process. In conclusion, specific proposals were put forth to strengthen technical cooperation among the participating countries in order to develop a comprehensive regional approach to dealing with involuntary population displacements.

39. Subsequent to the regional consultations in March, focal points for the CASWAME process were nominated by all the concerned Governments to ensure future follow-up and consultation on a regular basis. UNHCR, with the close cooperation of the involved Governments, has also undertaken a number of initiatives to follow-up on the recommendations which were adopted during the opening round of this process.

40. As part of the effort to strengthen the existing regional research centres on refugee and migration issues, UNHCR provided a grant to enhance the capabilities of the Documentation Centre at Yarmouk University in Jordan to conduct research pertaining to population displacements. A similar commitment has been made for the expansion of the facilities at the Regional Migration and Management Centre in Bishkek, Kyrgyzstan, in 1998.

41. In September 1997, UNHCR organized an Emergency Management Training Workshop in Ankara, Turkey, for CASWAME focal points and government officials in the region. The training was combined with a preparatory session to discuss the date and proposed agenda for the forthcoming CASWAME meeting in Ashghabat, Turkmenistan.

42. Based on the outcome of these discussions and recent bilateral contacts with government interlocutors, it was suggested that the next round of consultations should be scheduled in early 1998, after Ramadan. With regard to the proposed agenda, the Governments proposed that the plenary meeting of the Ashghabat consultations should address specific issues, such as the prospects for repatriation and reintegration of Afghan and Tajik refugees, and the establishment of an international fund to assist involuntarily displaced peoples in the region. UNHCR is currently preparing relevant reports and feasibility studies. Invitations for the concerned Governments to attend the Ashghabat meeting will be sent once the exact dates have been determined in consultation with the host Government.

V. COUNTRY REVIEWS

1. Afghanistan

(a) Beneficiaries

43. As at 1 January 1997, UNHCR was assisting some 7,300 Tajik refugees in Sakhi Camp, east of Mazar-i-Sharif. Thousands of other Tajiks scattered in the Kunduz and Takhar provinces of Afghanistan received ad hoc assistance from UNHCR.

44. Following the peace agreement signed on 27 June 1997 in Moscow between the Tajik Government and the United Tajik Opposition, UNHCR repatriated 10,200 Tajik refugees between July and November 1997. While a few hundred remaining Tajiks in scattered locations may still come forward and request repatriation assistance, all residents of Sakhi Camp have either returned to Tajikistan or moved elsewhere.

45. Between 1 January and 30 November 1997, a total of 82,666 Afghan refugees were repatriated from neighbouring countries (80,521 from Pakistan and 2,145 from the Islamic Republic of Iran).

(b) Recent development and objectives

46. In response to the lower rates of return from the Islamic Republic of Iran and Pakistan during the past two years, UNHCR has embarked on a two-pronged strategy to reactivate the repatriation process and make returns more sustainable. First, the repatriation assistance package is to be given to the returnees upon departure from the Islamic Republic of Iran and Pakistan, complemented by quick impact projects (QIPs) in the relevant areas of return. Second, UNHCR is identifying groups of refugees who are interested in returning, but who cannot, because of problems in their areas of origin. The situations in the areas of return are assessed and a multi-sectoral programme is being prepared with the participation of key United Nations technical agencies (Food and Agriculture Organization (FAO), United Nations Operations Project Services (UNOPS), World Health Organization (WHO)). The implementation of these programmes is made conditional upon the return of the identified groups and their participation in carrying out related work. In this approach, UNHCR ensures that all the returnees receive mine-awareness courses before their arrival in Afghanistan and that their place of return is checked by the United Nations Office for Coordination of Humanitarian Assistance in Afghanistan (UNOCHA) demining teams prior to their arrival. UNHCR gives priority to shelter assistance, followed by credit and agricultural support, which are believed to have the strongest impact in terms of creating incentives for a sustainable return.

47. Through its presence in several locations in Afghanistan, UNHCR monitored the welfare and the rights of the returnees. For 1998, the target figure for repatriation from Pakistan is 100,000 returnees. It is expected that assisted repatriation will increase in 1998, because it provides returnees with a better opportunity for sustainable reintegration.

48. UNHCR has successfully established a credit project for more than 500 women in Kabul. Through loans intended to create productive activities, the beneficiaries, who are widows and returnees in charge of families, have been able to improve their daily lives. The UNHCR female local staff person in charge of this project was arrested for a few days in early October 1997, but was later released. After a few months of implementation, the UNHCR-sponsored project of the Grameen Bank in Kandahar was cancelled in May 1997 without any official reason being provided by the provincial Shura (council of elders), despite its prior written authorization. It is believed that the provincial Shura feared that, through this project, the beneficiaries would have become empowered and might have raised questions about the local Taliban administration. A Group Guaranteed Lending Scheme implemented in northern Afghanistan by Save the Children Fund (SCF) (US), which provides credit to more than 3,000 women for various productive activities, is functioning well.

49. From the Islamic Republic of Iran, the rate of return to Afghanistan has been low. In November 1997, UNHCR and the Bureau for Aliens and Foreign Immigrants Affairs (BAFIA) agreed to examine measures to reactivate the voluntary repatriation to Afghanistan. The target figure for 1998 is 20,000 returnees.

(c) Implementing partners/arrangements

50. UNHCR projects in Afghanistan are implemented by local or international NGOs or through agreements with other United Nations agencies (for example, FAO, UNOPS, United Nations Volunteers (UNV)). The UNHCR Special Appeal is incorporated into the United Nations Consolidated Appeal for Assistance to Afghanistan. UNHCR works in close collaboration with UNOCHA, especially with respect to demining. UNOCHA gives mine-awareness training to refugees before their departure and checks for the absence of mines or unexploded ordnance in areas of return.

(d) Budget

51. The lower rates of return in 1997, as compared with the planned figures, led to the downward revision of the budget for the entire repatriation operation from $ 27.5 million to $ 19.9 million. For 1998, the budget for repatriation and reintegration of a total of 120,000 Afghans is some $ 21 million. Activities in Afghanistan itself are currently budgeted at $ 12 million for 1998.

(e) Post situation

52. With the successful completion of the repatriation of Tajik refugees from northern parts of Afghanistan, project staffing levels in sub-office Mazar-i-Sharif have been substantially reduced. The staffing situation in other regions is under review in order to make appropriate adjustments based on the expected return from the Islamic Republic of Iran and Pakistan.

(f) Implementation of policy priorities (women, children, environment)

53. During 1997, UNHCR placed significant emphasis on the monitoring of the rights and welfare of returnees. Several seminars were organized with authorities to discuss the amnesty, the rights of returnees and human rights in general, including the rights of women and girls. One People-Oriented Planning (POP) workshop was held for humanitarian agency staff in Afghanistan. Monitoring of the border crossing points and interviews with returnees have been stepped up to ensure the voluntary character of repatriation.

(g) Oversight reports

54. In 1997, no UNHCR evaluation or inspection missions took place in Afghanistan. External auditors at Headquarters, however, inspected the financial management of several repatriation projects of previous years. Issues, such as late signature of documents or incomplete documentation, were examined and appropriate corrective measures are being taken.

2. Algeria

(a) Beneficiaries

55. As at 1 January 1997, Algeria hosted a refugee population of some 194,080 persons, including an estimated 165,000 refugees from Western Sahara located in the region of Tindouf, in the south-west of Algeria. Some 15,000 refugees from Mali and 10,000 refugees from the Niger are in the southern part of Algeria, and 4,000 Palestinians and some 80 persons of various nationalities live in urban areas, mainly Algiers. Of the total, some 90,000 refugees were assisted, including 80,000 Western Saharans considered to be vulnerable cases.

56. At the beginning of 1997, the estimated population of refugees from Mali was 15,000, of whom some 5,000 were living in two camps at Tinzaoutin and Bordj Badj Mokhtar. Nine organized voluntary repatriations took place, thus decreasing the camp population by some 2,000. Refugees from the Niger were estimated to number around 10,000, of which some 2,500 were living in two camps at In Guezzam and In Aflahlah. All but 122 of these refugees have agreed to return once their return sites in the Niger are in a suitable state of rehabilitation. With the signing of a peace agreement between two dissident fronts in December 1997, it is hoped that the entire camp population will return in 1998. It should be noted that the refugees from both Mali and the Niger are nomadic, and thus it is difficult to determine the exact number of refugees living outside the camps. To encourage voluntary repatriation, a campaign was initiated whereby Malians were invited to register for voluntary repatriation before 30 June 1997. A similar campaign is planned for refugees from the Niger living in Algeria. During 1997, only those refugees from the Niger and Mali who were living in camps were assisted under a care and maintenance project which is due to terminate on 31 December 1997 for the Malian refugees and on 30 June 1998 for refugees from the Niger.

(b) Recent developments and objectives

57. During 1997, water supply was a problem in the refugee camps in Tindouf. Following an assessment mission by UNHCR's Programme and Technical Support Section (PTSS), Oxfam was identified to assist UNHCR in the improvement of the water supply to the camps. Following a food assessment mission in 1997, the food situation in the camps was also identified as a matter of concern. Although WFP has indicated that assistance will be targeted only to the most vulnerable refugees because food was also being delivered from other sources, it gave assurances that, under its mandated coordination role, it will review the needs in 1998. The care and maintenance programme for the Sahrawi refugees will continue into 1998, with a gradual phase-out as the refugees repatriate.

58. Repatriation of refugees to the Niger will depend upon progress at the return sites in the Niger, especially with regard to projects relating to water. Over 60 per cent of the refugees have indicated their willingness to return to a site called Infen, which has no existing water source. Work to complete the 700 metre deep borehole could take as long as six months. It is believed that refugees will be able to return to other sites prior to this date and that, once Infen is ready, the remainder will repatriate. It is planned to complete the repatriation by mid-1998, until which time the care and maintenance programme will continue.

59. Assistance to refugees from Mali will terminate by the end of December 1997. Some repatriation operations may continue into January 1998. Following discussions by the Mali/Algeria/UNHCR Tripartite Commission, those refugees who remain unwilling to return will be screened on an individual basis to determine their status under UNHCR's mandate.

60. During 1998, UNHCR will continue to assist approximately 80 urban refugees, most of whom are students from the Great Lakes region of Africa. During 1997, UNHCR was able to organize voluntary repatriation for some of this caseload and hopes to continue to promote voluntary repatriation throughout 1998. Resettlement will only be considered for a very limited number of exceptional cases on a humanitarian basis.

(c) Implementing partners/arrangements

61. The Croissant-Rouge algérien (CRA) works in close cooperation with UNHCR in implementing its care and maintenance programmes for the Sahrawi refugees in Tindouf and for refugees from Mali and the Niger in Tamanrasset. These activities include the transport and distribution of food and non-food items, and health care. The NGO Enfants réfugiés du monde is UNHCR's implementing partner providing educational support to the Sahrawi refugees, especially at the nursery level. In December 1997, Oxfam signed a letter of intent with UNHCR to begin urgent activities in the water sector in the camps around Tindouf. It is anticipated that they will also be fully involved in implementing activities in water and other sectors related to the repatriation.

(d) Budget

62. The revised 1998 care and maintenance budget for the Tindouf programme will be lower than the initial budget, reflecting the gradual decline in the camp population subsequent to repatriation. Adequate funds are allocated to cover the completion of programmes in the south for refugees from Mali and the Niger.

(e) Post situation

63. The post of Senior Field Officer in Tindouf was filled in February 1997 and the field office was strengthened by the creation of two general service posts for 1998.

(f) Implementation of policy priorities (women, children, environment)

64. The care and maintenance programme for the Sahrawis targets vulnerable refugees who are mainly women and children. UNHCR encourages knitting, sewing and gardening by providing tools and materials. For refugees from Mali and the Niger, income-generation activities have not been formally established, as their imminent return is anticipated. It should be noted that women are responsible for most of the educational activities in the camps.

(g) Oversight reports

65. No reports were initiated during the reporting period.

3. Other countries in North Africa (Libyan Arab Jamahiriya, Morocco and Tunisia)

(a) Beneficiaries

66. As at 1 January 1997, some 7,700 persons were considered of concern to UNHCR in the Libyan Arab Jamahiriya and were provided with UNHCR protection and/or assistance. The refugee population included 2,180 Somalis, 799 Eritreans, 320 Sudanese, 52 Iraqis, 4,140 Palestinians and 177 persons of various nationalities.

67. In Morocco, some 50 refugees were assisted by UNHCR. The overall refugee caseload originates from Africa and the Middle East, and includes a few destitute elderly Europeans who were integrated in Morocco.

68. In Tunisia, UNHCR provided assistance and protection to almost 200 refugees of various nationalities.

(b) Recent development and objectives

69. The situation of Palestinian refugees in the Libyan Arab Jamahiriya remained unstable. However, some 200 of those who were stranded on the Libyan Arab Jamahiriya border with Egypt since September 1995 were allowed to return to the Libyan Arab Jamahiriya and reintegrate in their previous places of residence.

70. Despite the logistics constraints resulting from the air embargo on the Libyan Arab Jamahiriya, UNHCR repatriated 122 Eritrean refugees to Eritrea and 523 Somalis to locations considered as safe areas in northern Somalia. All the repatriations were conducted via Tunisia.

71. During 1998 and 1999, UNHCR will continue providing protection and assistance to refugees and asylum-seekers in the Libyan Arab Jamahiriya, Morocco and Tunisia. Care and maintenance programmes will focus on vulnerable groups.

72. A regional workshop on statelessness in the Middle East and North Africa was organized in Casablanca, Morocco, by CASWANAME in cooperation with the Division of International Protection. The objectives of the workshop were to update field staff knowledge of international instruments related to statelessness and to look at the possibility of setting up a comprehensive approach and strategy on statelessness, allowing future activities in the region to focus on prevention and the reduction of statelessness.

(c) Implementing partners/arrangements

73. In Tunisia, the Tunisian Red Crescent assists UNHCR in the implementation of a care and maintenance project which provides medical, financial and educational assistance to urban refugees.

74. The Islamic Educational, Scientific and Cultural Organization (ISESCO) assisted UNHCR in Morocco in providing scholarships to Palestinian students at the university level.

(d) Budget

75. There are no major changes between the initial and revised 1997 and proposed 1998 budgets for the Libyan Arab Jamahiriya, Morocco and Tunisia.

(e) Post situation

76. The post of Senior Regional Legal Officer was redeployed from Tunisia to Egypt as of 1 January 1998.

(f) Implementation of policy priorities (women, children, environment)

77. Programme activities in the Libyan Arab Jamahiriya, Morocco and Tunisia are oriented towards assistance to individual vulnerable cases consisting mainly of women and children.

(g) Oversight reports

78. No reports were initiated during the reporting period.

4. Cyprus

(a) Beneficiaries

79. As at 1 January 1997, the number of internally displaced persons assisted by UNHCR remained at 265,000. Some 70 urban refugees and asylum-seekers, mostly of eastern European and Middle Eastern origin, were also provided with protection and assistance.

(b) Recent developments and objectives

80. Based on the findings of an independent study and on its own internal evaluation, UNHCR has decided to conclude its participation in the Bicommunal Programme at the end of 1997. The programme is expected to be handed over to a development-orientated United Nations agency, which would begin its operations in early 1998. UNHCR will continue to exercise its mandate functions in Cyprus for the foreseeable future.

81. The pending national refugee legislation in Cyprus is nearing its final stage of internal review and is expected to become law in mid-1998.

82. During 1997, the Office continued to implement bicommunal projects in close cooperation with the UNFICYP peace-keeping forces and the donor community. Significant progress in the implementation of these projects was achieved through non-traditional NGO implementing agencies.

(c) Implementing partners/arrangements

83. The Cyprus Red Cross Society offices in each major community of the island were the main implementing partners. Each of these offices perform an essential intermediary function with the various technical implementing agencies.

(d) Budget

84. The revised 1997 budget for the Bicommunal Programme is $ 8.9 million. More detailed budgetary information is provided in Chapter III (Europe) of document A/AC.96/884/Add.1.

(e) Post situation

85. Due to the conclusion of the Bicommunal Programme, posts associated with that programme are due to be discontinued as at 30 June 1998. After that date, posts required for the continued implementation of the mandate functions of the Office would be funded from the Annual Programme.

(f) Implementation of policy priorities (women, children, environment)

86. Bicommunal women's associations were encouraged to develop projects and ideas towards enhancing bicommunal activities, with village-oriented cottage industries advancing through the preparatory stages. The Office continued to support a children's centre for the disabled and handicapped. Extensive environmental impact studies were conducted in the fields of forestry, pesticides, sewerage and abattoir construction by an external consulting firm.

(g) Oversight reports

87. An internal audit of the office in Cyprus was conducted in June 1997. The relevant report has not yet been received by UNHCR.

5. Egypt

(a) Beneficiaries

88. As at 1 January 1997, UNHCR assisted 6,017 refugees out of a total of 6,035 persons. As at 30 November 1997, UNHCR assisted an estimated 4,000 refugees and 178 elderly stateless persons out of a total recognized caseload of 6,325 persons. All of the refugees live in Cairo and Alexandria. The main countries of origin include Somalia (55 per cent), Sudan (25 per cent), Yemen (10 per cent), stateless persons mainly of Armenian origin (3 per cent) and some 15 other nations (7 per cent). It is estimated that some 50 per cent of the refugee population is female and 5 per cent is under five years of age. During 1997, a total of 27 refugees repatriated with UNHCR assistance to Somalia (24 persons), Rwanda (two persons) and Ethiopia (one person). A total of 165 refugees departed for resettlement during the year.

(b) Recent developments and objectives

89. The issue of the 200 Palestinians who had been stranded at the border area at Salloum between Egypt and the Libyan Arab Jamahiriya was resolved in April 1997, with the return of the Palestinians to the Libyan Arab Jamahiriya under arrangements agreed upon with the Libyan authorities.

90. The UNHCR Regional Office in Cairo recognized some 415 persons of various nationalities as refugees during the year. Resettlement will be pursued for vulnerable persons who have no prospect for voluntary repatriation or local integration.

91. UNHCR will assist eligible refugees who choose to voluntarily repatriate to their countries of origin. The refugee statistics maintained by the Regional Office in Cairo will be updated and developed to provide a comprehensive refugee database, including a demographic and skills profile for all refugees. This database could be used as a basis for planning protection, assistance and self-reliance activities.

(c) Implementing partners/arrangements

92. Caritas will continue to be the main implementing partner for UNHCR in Egypt for needs assessment, social counselling, disbursement of financial assistance, as well as medical and education assistance, and vocational training. The Family Planning Association will continue to provide refugee women with basic health education and family planning courses. The Refugee Ministry of St. Andrew's Church will continue to be responsible for language and computer training for refugees.

(d) Budget

93. The 1997 and 1998 budgets for care and maintenance assistance for refugees in Egypt were slightly reduced due to General Programmes funding constraints. These reductions will make it increasingly difficult to accommodate any new activities aimed at diversifying the assistance and encouraging more self-sufficiency of the refugees.

(e) Post situation

94. Two new posts have been created as of 1 January 1998. The post of Senior Assistant for Refugee Women will assist the Senior Regional Coordinator for Refugee Women to coordinate and follow-up on issues regarding refugee women in the region. The Regional Finance Officer will coordinate financial activities for the Middle East region. The post of Senior Regional Legal Advisor has been redeployed from Tunis, Tunisia, to Cairo, Egypt, in order to provide support to regional protection and refugee law promotion activities. One national officer post was discontinued.

(f) Implementation of policy priorities (women, children, environment)

95. In November 1997, a POP workshop was convened by the Regional Office in Cairo and was attended by implementing partners, NGOs and the Social Fund for Development. Special emphasis was placed upon the needs of refugee women and children.

96. Specific activities focusing on reproductive health, vocational training and income-generation for refugee women have been undertaken during 1997.

97. The Senior Regional Advisor for Refugee Women has continued her activities in the Middle East region in an effort to promote gender awareness to ensure that the needs of refugee women are being addressed. Dissemination of the protection guidelines on refugee women among groups dealing with refugee issues and the building of a network for advocacy and promotion of refugee women's rights will continue in 1998.

(g) Oversight reports

98. The Regional Office in Cairo is gradually implementing the recommendations contained in the 1996 Inspection and Evaluation Service report regarding the Middle East. Special emphasis is placed on the need for setting up and implementing concerted regional policies in various areas of UNHCR's activities. Efforts to ensure greater coordination, coherence and consistency are being made. In this context, a regional workshop on self-reliance for refugees was held in October 1997.

6. Islamic Republic of Iran

(a) Beneficiaries

99. As at 1 January 1997, the Islamic Republic of Iran hosted an estimated 1,400,000 Afghan and 580,000 Iraqi refugees, as reported by the Government, of whom some 21,800 Afghans and 64,400 Iraqis are accommodated in 32 refugee camps administered by the Government. The remaining refugees are scattered throughout several provinces and urban centres.

100. Based on available demographic statistics regarding assisted Afghan returnees, it can be estimated that some 52 per cent of the Afghan refugee population is under the age of 15, and about 20 per cent are adult women. With regard to Iraqi refugees, children under 18 comprise some 40 per cent of the population and 20 per cent are adult women (data based on camp statistics).

(b) Recent developments and objectives

101. The withdrawal of government subsidies for health and education, coupled with growing inflation and restricted access to the job market, made living conditions difficult for refugees residing outside the camps. Hence, in 1997, UNHCR contributed to a number of specific measures to minimize the adverse impact of these factors. Under the health sector, UNHCR continued its activities through the Medical Referral Units (MRU) scheme in major urban centres to directly assist those refugees in need. A total of 7,731 refugees benefited from the MRU programme from 1 January to 30 November 1997. UNHCR also provided support in the education sector to supplement the efforts of the Government to ensure that primary and secondary education is given to all Iraqi and Afghan refugee children outside the camps.

102. UNHCR continued to facilitate the voluntary repatriation of Iraqi Kurds in 1997. Between January and November 1997, a total of 4,341 Iraqi Kurds repatriated with UNHCR assistance to northern Iraq.

103. The continuing instability in Afghanistan was an impediment to a large-scale return of refugees from the Islamic Republic of Iran. Indeed, a drastic decline in the numbers of returnees has been observed since 1996 and, between January and November 1997, only 2,145 Afghan refugees returned from the Islamic Republic of Iran with UNHCR assistance.

104. A Bilateral Repatriation Committee meeting took place in Tehran in November 1997 between UNHCR and the Government of the Islamic Republic of Iran to reinvigorate the repatriation of Afghan refugees from the Islamic Republic of Iran. The following measures were agreed: the identification of potential repatriants interested in returning to Afghanistan; fact finding missions by refugee leaders to main areas of origin; increasing the assistance package; and modalities for return. The situation of the remaining refugees in the Islamic Republic of Iran was also discussed and the meeting recommended "the holding of an ad hoc seminar of experts, under the joint auspices of relevant authorities and UNHCR, to review the socio-economic legal aspects related to identification of appropriate policies".¹

105. UNHCR persisted in its efforts to ensure that all those in need of protection in the Islamic Republic of Iran receive appropriate documentation, as well as continued protection in the country. In addition, UNHCR encouraged the Government to establish a functioning refugee determination procedure for newly arriving asylum-seekers.

(c) Implementing partners/arrangements

106. Most of the projects are implemented by BAFIA, while some specific services are being provided by the Ministry of Health and the Ministry of Education and Training. IOM is responsible for the transport inside the Islamic Republic of Iran of refugees returning to Afghanistan and Iraq. UNHCR continues its attempts to further enhance the involvement of both local and international NGOs in the assistance provided to refugees.

(d) Budget

107. The shortage of funds under General Programmes has obliged UNHCR to reduce some activities in both 1997 and 1998 in the income-generation, shelter and water sectors, and has not permitted a positive response to increasing needs in the health sector.

(e) Post situation

108. In view of the decreasing rate of repatriation of Afghan refugees and the increase in activities aimed at providing basic programme support to the Iraqi refugees, including project implementation, monitoring and evaluation, a total of five new local posts will be proposed for creation against the already agreed discontinuation of seven posts as of 1 March 1998.

(f) Implementation of policy priorities (women, children, environment)

109. During 1997, UNHCR continued to implement its assistance activities for refugee women in the Islamic Republic of Iran which include, inter alia, income-generating assistance, family planning and health care training, literacy courses and community-based activities in the camps. For children, special emphasis is placed on primary education, libraries, health care and immunization, as well as sports facilities in the camps. During 1998, UNHCR will continue to seek competent NGOs to implement projects to benefit refugee families headed by single women both in and outside the camps.

(g) Oversight reports

110. An inspection mission to the Islamic Republic of Iran was carried out in April 1997 by the Inspection and Evaluation Service, with a particular focus on Iraqi refugees. Accordingly, sub-offices dealing with refugees from Iraq were visited, as was the Office of the UNHCR Chief of Mission. One of the major conclusions and recommendations emerging from the mission was that UNHCR should strengthen its coordination with government authorities at the highest level to ensure observance of the basic standards of treatment of asylum-seekers and refugees. It was also felt that broadening the circle of partners, both governmental and non-governmental, would help to improve the overall quality of the programme in the Islamic Republic of Iran.

111. Furthermore, a strategy was called for to collect basic demographic data in order to reconcile official government figures with the Office's estimates. Finally, it was recommended that the draft Memorandum of Understanding with the Government on repatriation to northern Iraq of Iraqi refugees in the Islamic Republic of Iran should be finalized.

112. A multi-disciplinary mission (DHRM/PTSS/CASWANAME Bureau) was conducted in August 1997 to evaluate the health project, the general implementation of the country programme and the staffing situation. Recommendations included the following: increased MRU services should be provided to the refugees; more children should be included in the education programme; the refugee population should be surveyed and documented; priority, in terms of staffing and funding, should be given to the repatriation of Iraqi refugees; the issue of the repatriation of Afghans should be revitalized; the Grameen Bank should be invited to examine the feasibility of credit projects and to identify new partners; and staff should be redeployed from offices in the east (dealing with the Afghan repatriation) to offices in the west (Iraqi repatriation). Those recommendations not directly linked to a requirement for additional funding are being implemented.

7. Iraq

(a) Beneficiaries

113. As at 1 January 1997, the total refugee population in Iraq was estimated at some 110,000 persons. This population included 34,247 Iranians of various ethnic origins, 11,117 Turkish Kurdish refugees, 62,635 Palestinians and 1,258 persons of other nationalities. The male/female ratio for Iranian and Turkish refugees is almost equal. The number of children under the age of five years among Iranian refugees is approximately 20 per cent and among Turkish refugees approximately 22 per cent. Between January and the end of November 1997, some 600 Turkish Kurdish refugees were assisted by UNHCR to repatriate to their country of origin. An additional 500 persons are known to have spontaneously repatriated. During the same period, some 8,300 Iraqi Kurds were assisted to repatriate from the Islamic Republic of Iran and were provided with a reintegration package, while another 1,400 Iranian refugees were resettled from Iraq.

(b) Recent developments and objectives

114. By early March 1997, the majority of Turkish refugees of Kurdish origin (6,865 persons) from the former Atroush camp chose to spontaneously settle at a location called Ain Sufni on the border between the Government controlled area and the rest of northern Iraq. Some 5,000 other persons sought shelter in 19 local settlements and were provided with a shelter package by UNHCR. The total Turkish Kurdish refugee population registered with UNHCR at the end of November 1997 was 10,828 persons. Over 1000 persons are known to have repatriated. Efforts will continue to be made to persuade the refugees at Ain Sufni to relocate to local settlements, while maintaining basic care and maintenance assistance for those who decide to remain. Country of origin information will be regularly provided to the refugees, and those opting to voluntarily repatriate will be assisted.

115. Efforts will continue within the CASWAME process to pursue the possibility of voluntary repatriation for the Iranian refugee population in Al Tash camp. In the meantime, basic care and maintenance assistance will be provided in Al Tash, while resettlement to third countries will also be pursued.

116. Protection concerns continue for the estimated 3,700 Iranian Kurdish refugees in northern Iraq. UNHCR will provide protection and material assistance as well as resettlement, if needed, to this caseload.

(c) Implementing partners/arrangements

117. During 1997, the UNHCR programme for returnees, mostly from the Islamic Republic of Iran, was implemented by the NGO "4Rs" (Relief, Response, Resettlement and Rehabilitation). Provision of the care and maintenance assistance to Iranian refugees at Al-Tash camp is undertaken directly by UNHCR. The Government of Iraq provides staff under the health, education and water sectors. During 1997, UNHCR's programme for Turkish Kurdish refugees was implemented by 4Rs, Peace Wind Japan, and the Kurdistan Reconstruction Organization (a local NGO). Other assistance was provided directly by UNHCR. A small number of Palestinians and other refugees are provided with periodic assistance by UNHCR in the form of education supplies, food and cash. UNHCR has coordinated with the Mines Advisory Group, an NGO working in northern Iraq, on issues of land mines in areas in which returning refugees have received assistance.

(d) Budget

118. The 1997 and initial 1998 budgets for the care and maintenance of Turkish refugees in northern Iraq were reduced due to General Programmes funding constraints. Funding shortages also forced UNHCR to reduce the resettlement budget of the Office of the Chief of Mission in Baghdad from a proposed planning number of 2,000 persons to only 300 persons. As resettlement is an important component of UNHCR's programmes in Iraq, efforts will be made in order to make up any shortfalls.

(e) Post situation

119. One post of Telecommunications Assistant was created for 1998 in order to manage the telecommunications facilities at the Office of the Chief of Mission in Baghdad.

(f) Implementation of policy priorities (women, children, environment)

120. A Ceramic Training Project for Iranian refugee women was successfully implemented in Al Tash camp. In addition, a carpet weaving, sewing and knitting project, which also targeted refugee women, continued to be implemented in the camp.

121. Two schools were built in Al Tash, as a result of which all refugee children now have access to primary education.

(g) Oversight reports

122. A UNHCR inspection mission to Iraq was undertaken in April and May 1997, in conjunction with the Division of International Protection. Three field offices in northern Iraq (Erbil, Dohuk and Sulaymaniyah), as well as the Office of the Chief of Mission in Baghdad were visited. Furthermore, to provide complementary information on the situation in neighbouring countries pertinent to the analysis of UNHCR's operations in Iraq, inspection teams were also sent to the Islamic Republic of Iran, Turkey and Greece during the same period. An intensive review was conducted during the course of the mission to Iraq, covering a wide range of management issues, including UNHCR's role and quality of representation, management of operations (protection, programme and durable solutions), as well as staffing and administrative matters. Particular attention was paid to reviewing the events leading up to the closure of Atroush camp in late 1996, as well as to the current situation of the caseload concerned.

123. A number of operational weaknesses were identified, notably the serious under-staffing in northern Iraq. A shortage of experienced staff at the field level had severely limited the Office's ability to monitor and respond promptly to developments, particularly in the case of the former refugee camp at Atroush. Logistical difficulties in moving between Baghdad and the field offices in northern Iraq, and between field offices at times of deteriorating security, had further complicated the situation. Detailed recommendations were made for the reinforcement of UNHCR's presence to enable it to respond effectively to the demands of this emergency-prone area. These recommendations are being actively followed. In addition to the ex-Atroush caseload, the review also examined the situation of other refugee and returnee caseloads in the country, including the urban caseload in Baghdad, and made a comprehensive range of caseload-specific recommendations to assist the Office in its efforts to achieve viable solutions for those concerned.

8. Jordan

(a) Beneficiaries

124. As at 1 January 1997, UNHCR assisted a caseload of 868 urban refugees comprising 654 Iraqis, 93 from Chechnya (Russian Federation), 93 Bosnians, 15 Sudanese, eight Somalis and five persons from other countries. 51 per cent of the refugee population was female while 8 per cent was under five years of age.

125. Between 1 January and the end of November 1997, 964 refugees departed from Jordan either through voluntary repatriation, resettlement or family reunification. During the same period, 911 persons were recognized as refugees.

(b) Recent developments and objectives

126. On 30 July 1997, a Cooperation Agreement was signed between the Government of Jordan and UNHCR which will greatly enhance UNHCR's ability to carry out its activities. UNHCR will continue to assist persons in need during their stay in Jordan. The provision of financial assistance to refugees was streamlined in 1997 and will be provided only after a thorough individual needs assessment is conducted. UNHCR also provided refugee assistance in areas of vocational and language training, health care and social counselling.

(c) Implementing partners/arrangements

127. A focal point within the Ministry of Interior continues to facilitate and follow-up on issues of concern between UNHCR and the Government of Jordan. The Jordanian Red Crescent Society (JRCS) is UNHCR's main implementing partner and provides material, financial and other assistance to needy refugees.

(d) Budget

128. Due to current budget constraints, there are no significant changes in the assistance programme to refugees in Jordan for 1998, as compared to 1997.

(e) Post situation

129. No post changes occurred in 1997 or are foreseen for 1998.

(f) Implementation of policy priorities (women, children, environment)

130. UNHCR has arranged for free access to public education for all refugee children in Jordan. Refugee women participate in UNHCR-sponsored vocational and language training programmes. In an effort to enhance access for female refugees to offices of the JRCS, a children's area was created next to the refugee waiting room.

(g) Oversight reports

131. In July 1997, the United Nations internal auditors undertook a mission to Jordan. The results of this mission are still being awaited.

9. Kazakstan

(a) Beneficiaries

132. While the legal and administrative mechanisms for registering asylum-seekers and determining their refugee status have not yet been formally established by the Kazak Government, there are, according to Government estimates, some 14,000 refugees/asylum-seekers in the country, of whom some 2,000 are from Afghanistan, 6,000 from Tajikistan and 6,000 from Chechnya (Russian Federation). At the end of 1997, some 1,000 individuals were registered with UNHCR as asylum-seekers, the majority of whom were from Afghanistan.

(b) Recent developments and objectives

133. Despite the need for establishing the necessary policy, legislative and administrative framework to effectively manage issues related to refugees and forced population movements, progress has been limited, primarily due to the competing priorities of on-going governmental restructuring and reform and acute social and economic problems. During 1998, UNHCR will focus its activities on promoting and facilitating accession to the 1951 Refugee Convention by the Government of Kazakstan; the establishment of structures to deal with refugees and asylum-seekers; and the creation of a refugee registration system which includes a database, documentation, and refugee status determination procedures. Technical and financial support to the Kazak State University is planned, in order to establish courses on refugee law, as well as to sponsor research and studies on population movements in the region.

(c) Implementing partners/arrangements

134. The Migration Department of the Ministry of Labour and Social Protection is the central government department currently responsible for issues related to refugees and forced population movements. It will continue to receive UNHCR technical, legal management and training support to strengthen its capacity to carry out its responsibilities.

135. The Kazak Red Crescent and Red Cross Society (KRC) provides health care and emergency assistance for needy people of concern to UNHCR, particularly single women, female-headed households and the elderly.

(d) Budget

136. The budget proposed for 1998 remains at the same level of the reduced 1997 General Programmes budget. Under Special Programmes, a small amount is expected to be allocated from the NGO Fund under the CIS Programme of Action to promote adoption of appropriate NGO legislation in the country and to assist national NGOs improve their programme management and implementation skills in the area of refugee and refugee related work.

(e) Post situation

137. A local post of Protection Assistant has been created as of 1 January 1998. While UNHCR continues to focus its activities on capacity and institution-building in Kazakstan, this post will allow for more attention to be given to claims for refugee status by asylum-seekers.

(f) Implementation of policy priorities (women, children, environment)

138. A Regional Policy Officer for Children, to be based in Tajikistan and covering all the Central Asia Republics, is expected to begin working in early 1998. This Officer will establish policy priorities for refugee children and women in the region. Regarding ecologically induced migration, an issue of concern to the Kazakstan Government, UNHCR will continue its catalytic role of bringing this problem to the attention of other bilateral and multilateral agencies with the resources and expertise to address it effectively.

(g) Oversight reports

139. No audit reports were initiated in 1997 or are planned in 1998. An evaluation of UNHCR's capacity and institution-building activities in several geographic locations, including the Central Asian countries, however, is under consideration for 1998.

10. Kuwait

(a) Beneficiaries

140. As at 1 January 1997, UNHCR assisted 3,831 persons in Kuwait. On 1 December 1997, the total number of persons of concern to UNHCR was estimated at some 25,000 persons. Of this total number, 3,801 persons were registered with UNHCR and benefited from UNHCR protection and assistance activities. The assisted population included 1,626 Iraqis, 1,978 Palestinians, as well as Somalis and Afghans. It is estimated that 756 of the assisted persons are female and 142 are under the age of five years. An additional 220 Bedouns and other stateless persons were registered with Office of the Chief of Mission in Kuwait.

(b) Recent developments and objectives

141. The Cooperation Agreement between the Government of Kuwait and UNHCR, which entered into force on 21 September 1996 after ratification and completion of constitutional procedures, has significantly contributed to consolidating UNHCR's protection role. Through on going contacts with the local authorities, UNHCR will continue its efforts to regularize the status of Iraqis, Palestinians and Bedouns who have been living in Kuwait. In order to ensure respect for the principle of non-refoulement, UNHCR established, with the United Nations Iraq-Kuwait Observation Mission (UNIKOM), a procedure for the identification of potential asylum-seekers who cross the demilitarized zone between Iraq and Kuwait. UNHCR will continue to pay special attention to some 120,000 Bedouns by extending its good offices and counselling on behalf of individual cases. UNHCR is providing financial, health, educational and vocational training assistance to some 700 persons. This assistance is supplemented by Zakat House, a local NGO, which provides financial assistance to some 1,200 persons.

(c) Implementing partners/arrangements

142. The 1997 care and maintenance programme was implemented directly by UNHCR. It is expected, however, that a sub-agreement will be concluded with Zakat House to implement the 1998 programme.

(d) Budget

143. There are no significant changes in the 1997 and 1998 budgets for the assistance programme for refugees in Kuwait.

(e) Post situation

144. The post of Protection Officer, which was established to ensure regular and speedy intervention on behalf of asylum-seekers and to follow-up on other matters related to the protection of refugees and persons of concern, was filled in August 1997. A post of Programme Assistant was created and will be filled in January 1998.

(f) Implementation of policy priorities (women, children, environment)

145. UNHCR Kuwait continues to promote equal access to education for male and female children. The Office has intervened to ensure access to education for 70 Palestinian and 88 Iraqi children in private schools. UNHCR meets school costs for refugees in need, and assistance is provided for refugee students at primary, secondary and vocational schools. Care and maintenance activities are focused on vulnerable groups of refugee women. This assistance has included monthly allowances, health care, education and vocational training.

(g) Oversight reports

146. No reports were initiated during the reporting period.

11. Kyrgyzstan

(a) Beneficiaries

147. As of mid-1997, the Kyrgyz Government had registered and recognized as refugees a total of 15,510 persons, 15,388 of whom were from Tajikistan while the remainder were from Afghanistan, Chechnya (Russian Federation), Georgia, and Azerbaijan. In August and September 1997, a total of 22 Tajiks repatriated with UNHCR assistance. Some 200 refugees from Tajikistan (ethnic Kyrgyz) acquired Kyrgyz citizenship in 1997.

(b) Recent developments and objectives

148. The Kyrgyz Republic acceded to the 1951 Convention and its 1967 Protocol in October 1996. In this context, UNHCR provided assistance in 1997 to the Kyrgyz authorities in strengthening their refugee status determination procedures, further developing national legislation on refugees and migration, and supporting the Migration Department in developing its institutional capacity and maintenance of offices in various locations in Kyrgyzstan.

149. In March 1997, UNHCR, together with IOM, assisted the Kyrgyz Government in establishing the Bishkek Migration Management Centre (BMMC). Since then, the BMMC has become a regional institution with the participation of the Governments of Kazakstan, Tajikistan and Uzbekistan. The BMMC has already conducted a series of seminars and workshops for government officials and NGOs focusing on refugee and forced population movement issues such as legal drafting, international and refugee law, and refugee status determination.

150. The tolerance education project, initiated by UNHCR in mid-1996, has produced five story books and a teacher's guide on ethnic tolerance, two teacher's guides and various other teacher training materials, conducted workshops for representatives of most of the primary schools in the country and distributed the books to the schools. The project is fully supported by the Ministry of Education. Since May 1997, the project has been implemented by the local office of a NGO, Counterpart International, and the tolerance education programme is now part of the country's primary school curriculum.

151. Over 80 per cent of the Tajik refugees in the country are of ethnic Kyrgyz origin, and the Government has indicated a positive attitude towards possible local integration in Kyrgyzstan as a durable solution for the group. It is expected that some 2,000 to 3,000 Tajik refugees may wish to voluntarily repatriate to Tajikistan. A draft tripartite agreement on this voluntary repatriation is being circulated between the Governments of Kyrgyzstan and Tajikistan, with the advice and support of UNHCR.

(c) Implementing partners/arrangements

152. The Bishkek Migration Management Centre organizes a variety of national and regional training courses, workshops, studies, research and exchange programmes designed to improve and strengthen legal and administrative structures for effectively managing population movements.

153. The Kyrgyz Red Crescent Society provides medical assistance to needy refugees and asylum-seekers. Mobile medical centres in Bishkek and Osh are subsidized by the project and assist in strengthening local medical capacity and health education programmes.

154. Counterpart International provides technical and financial support to two NGO centres in Kalabalta and Jalalabad, and for the creation of another one in Batkent. The centres are also involved in supporting a number of small projects for repairing schools and supplying water in the areas where there are refugees. Counterpart International also supports the implementation of the tolerance education project which UNHCR initiated.

155. The American Bar Association (ABA) provides technical and financial support to the strengthening of court structures, with a particular focus on the development of a second instance asylum procedure. It also assists the legal library centres in Bishkek and Osh.

156. The Adventist Development and Relief Agency (ADRA) will provide selected refugee families with income-generation opportunities through an agricultural project (greenhouses).

(d) Budget

157. The small increase in the budget for 1998 over the revised 1997 allocation primarily reflects new activities to be implemented by ABA and ADRA. Under Special Programmes, a small amount is expected to be allocated from the NGO Fund under the CIS Programme of Action.

(e) Post situation

158. Four new local posts were created during 1997 for the Liaison Office in Bishkek: an Assistant Programme Officer (national); a Protection Assistant to better address claims for refugee status by asylum-seekers; a Public Information Assistant to meet a growing interest amongst the public, journalists and government officials in issues related to refugees, forced population movements as well as humanitarian activities in general; and a Senior Secretary. One post of Senior Field Clerk was discontinued as at 31 March 1997.

(f) Implementation of policy priorities (women, children, environment)

159. UNHCR Kyrgyzstan has increased its focus on the needs of refugee women by implementing activities to strengthen networking between women NGOs, including nascent women organizations in refugee communities, by involving refugee women closely in health education and family planning, and by implementing a workshop on organizational leadership for women NGOs. While particular attention has been paid to special needs of refugee women and children in programme implementation in Kyrgyzstan, specific policy priorities for children will be formulated by a Regional Policy Officer for Children for Central Asia who is expected to begin working in early 1998.

160. A study by the Minamata Institute of Japan on an issue of possible mercury contamination in one of the refugee camps concluded that there was no threat to the health of the refugees if they continued to live at the site.

(g) Oversight reports

161. No audit reports were initiated in 1997 or are planned in 1998. However, an evaluation of UNHCR's capacity and institution-building activities in several geographic locations, including the Central Asian countries, is under consideration for 1998.

12. Lebanon

(a) Beneficiaries

162. As at 1 January 1997, UNHCR assisted 1,858 persons out of 2,408 refugees. In November 1997, the refugee caseload was 2,996 persons. The main countries of origin were Iraq (1,848 persons), Afghanistan (550 persons), Sudan (270 persons) and Somalia (151 persons). There are also 177 persons of other nationalities. It is estimated that 28 per cent of the refugee population is female. One Eritrean refugee was repatriated with UNHCR assistance, while 101 cases were resettled.

(b) Recent developments and objectives

163. During 1998, UNHCR will continue to ensure the protection and assistance of mandate refugees.

(c) Implementing partners/arrangements

164. UNHCR's assistance and resettlement projects are implemented by the Middle East Council of Churches (MECC).

(d) Budget

165. There are no significant changes in the 1997 and 1998 budgets for Lebanon.

(e) Post situation

166. No post changes occurred in 1997 or are foreseen for 1998.

(f) Implementation of policy priorities (women, children, environment)

167. Refugee women are encouraged to attend vocational training courses. UNHCR and MECC are also promoting income-generation projects for women. Eighteen refugee women are attending English language courses.

168. Some 80 per cent of refugee children are enrolled in local schools. UNHCR covers approximately 75 per cent of the school fees. During the summer of 1997, 44 refugee children between the ages of seven and twelve participated in a summer camp.

(g) Oversight reports

169. No reports were initiated during the reporting period.

13. Pakistan

(a) Beneficiaries

170. There are some 1,200,000 Afghan refugees in the registered refugee villages in North West Frontier Province, Baluchistan and Punjab. An unestimated number of Afghans also reside in urban areas such as Peshawar, Quetta, Karachi and Islamabad. Only refugees in registered villages have access to services provided under the assistance programme. About 24 per cent of the population are adult males, 27 per cent adult females and 24 per cent are children under five years old. From 1 January to 30 November 1997, a total of 80,521 Afghan refugees repatriated to Afghanistan.

171. At the end of November 1997, there were 2,702 refugees from various other countries registered by UNHCR, including 1,088 from Iraq, 848 from Somalia and 691 from the Islamic Republic of Iran. Some 22 per cent are adult males, 32 per cent are adult females and 6 per cent are children under five years old. From 1 January to 30 November 1997, 321 non-Afghans were resettled in third countries. Another group of 322 refugees has been accepted for resettlement and is awaiting departure. UNHCR assisted 13 Somalis in their voluntary repatriation to Somalia.

172. From 1 January to 30 November 1997, a total of 80,521 Afghan refugees repatriated to their country of origin. UNHCR assisted 85 per cent of these returning refugees, as well as 13 persons who have returned to Somalia.

(b) Recent developments

173. While the main form of repatriation of Afghan refugees remains the return of individual families assisted with a cash grant and WFP wheat, there has been an increasing interest among the Afghan refugees to repatriate in groups to the same areas. In addition to the repatriation package, the UNHCR office in Pakistan provided transportation to these groups. Through coordination with the UNHCR office in Afghanistan and cooperation with agencies (demining, UNOPS, FAO) and NGOs, the problems of the communities in Afghanistan receiving groups of returnees (presence of land mines, destruction of access roads, poor condition of irrigation systems, lack of farming lands, absence of shelters and social services) have been addressed in a more efficient way and the areas of return have benefited from more meaningful rehabilitation and reintegration projects. Preparations and discussions are underway for the possible return of several thousand families in the spring of 1998 under this scheme.

174. During the first months of 1997, new arrivals were still coming into Pakistan and requesting UNHCR assistance. The cumulative number of new arrivals from September 1996 to March 1997 is estimated at 50,000 persons. However, only some 15,000 persons approached UNHCR for assistance in the refugee villages.

175. Isolated incidents of rejections at the border or on the way to Peshawar have been reported. So far, these incidents do not constitute a trend and do not seem to target any ethnic group (as originally feared for Afghans of Hazara and Tajik ethnic origins).

(c) Objectives for 1998 and 1999

176. Voluntary repatriation for refugees from Afghanistan will continue to be the main priority. While the standard package of assistance will be maintained for individual returns, increased emphasis will be placed on group repatriation which will provide better targeted assistance inside Afghanistan.

177. Pending repatriation, and in order to contribute to their eventual reintegration in Afghanistan, community-based provision of education, health and water supply will continue. Within the limited resources, new primary schools will be opened for girls and literacy education will be provided to adult women.

178. Activities benefiting women, such as training, income-generation (supported by group guaranteed lending) and reproductive health services, will be enhanced to respond to the increasing demand.

179. As a follow-up on the Machel Study on the impact of armed conflict on children, a pilot training course for adolescents will be tested. The education for peace components in the primary education curriculum will be expanded.

180. Durable solutions for non-Afghan refugees, such as resettlement and voluntary repatriation, will continue to be explored and enhanced through contacts with resettlement countries.

181. The assistance activities will support self-reliance by encouraging refugee involvement in vocational training and income-generation activities.

(d) Implementing partners/arrangements

182. The main implementing partner for the assistance to Afghan refugees will continue to be the Government of Pakistan through the Commissionerates for Afghan refugees. Other major partners are the German Technical Cooperation (GTZ/COPE), Save the Children Fund and the International Rescue Committee (IRC).

183. The Ockenden Venture has been given new responsibilities for the management of the schools previously funded and administered by IRC. Seven national and Afghan NGOs also participate in the programme. For the non-Afghan group, the SAVERA Counselling Service will continue to be the main implementing partner.

(e) Budget

184. The potential shortage of funds under both the 1997 and 1998 General Programmes has obliged UNHCR to reduce some activities in areas such as income-generation, education and reproductive health. The reduced donor support to NGOs, providing core activities benefiting refugees, represents an additional financial burden for the UNHCR programme in Pakistan.

(f) Post situation

185. UNHCR foresees no major change in the number of staff or the staffing structure. There are a number of posts based in the Branch Office in Islamabad that provide support to UNHCR offices in the Central Asian and Middle East regions. If some regional functions need to be created or expanded, the existing staff, particularly in the field of financial services and the management of human resources, could be redeployed for these requirements.

(g) Implementation of policy priorities (women, children, environment)

186. Assistance activities benefiting Afghan refugees are focused on enhanced access and participation of women and girls in education and health services.

187. During 1997, the Reproductive Health (RH) Manual was introduced and discussed among all implementing partners. As a result, the existing RH services have been reviewed and a plan of action devised to improve the services. At the end of 1997, the health staff in all provinces had undergone awareness and technical training to improve RH services. Likewise, following requests by refugee communities, labour rooms have been established in selected locations. These rooms were partially funded by refugee contributions; the running costs will be met by UNHCR for one year.

188. The education programme gives priority to the enrolment and attendance of girls in primary schools. The increase in demand is clearly shown by statistics: the number of girls enrolled in 1997 has doubled as compared to 1996. For 1998, the minimum target for new enrolments (due to funding constraints) has been set at 5,000 additional girls.

189. Non-formal education groups for female adults will continue, as will the group guaranteed lending scheme implemented by SCF in Baluchistan.

190. The plan of action for the follow-up of the Machel Study includes the pilot vocational training scheme for adolescents and the enhancement of the education-for-peace components in the curriculum for all grades in primary schools. Awareness sessions on the Convention of the Rights of the Child, that will include all implementing partners, have also been planned for 1998.

(h) Oversight reports

191. No reports were initiated during the reporting period.

14. Saudi Arabia

(a) Beneficiaries

192. As at 1 January 1997, there were 9,702 Iraqi and 150 Afghan refugees in Rafha camp in the northern part of Saudi Arabia. During 1997, UNHCR was able to provide a durable solution, in terms of resettlement, for 4,135 Iraqi refugees. As of 30 November 1997, the number of assisted refugees at Rafha was 5,931 persons (including 139 Afghans). Twelve per cent of the total population is female above the age of 16 whereas 6.5 per cent of the population is female under five years of age. During 1997, eight persons voluntarily repatriated to Iraq. UNHCR monitored the repatriation process to ensure its voluntary nature. UNHCR also continued monitoring the condition of Iraqi refugees held for civil crimes in Rafha camp and town prisons.

(b) Recent developments and objectives

193. During 1997, the resettlement of Iraqi refugees in Rafha Camp continued to be UNHCR's main activity in Saudi Arabia. UNHCR has launched an extensive public information/awareness campaign with the aim of publicizing UNHCR's humanitarian mandate in the region.

(c) Implementing partners/arrangements

194. The Government of Saudi Arabia fully funds and implements the care and maintenance programme for refugees in Rafha camp. The International Islamic Relief Organization (IIRO) maintains an office in Rafha for the maintenance of refugee statistical data and to assist in the monitoring of refugee movements and the issuance of identification cards. The IIRO headquarters in Jeddah coordinates with UNHCR on policy issues and matters related to PARinAC training.

(d) Post situation

195. No post changes occurred in 1997 or are foreseen for 1998.

(e) Implementation of policy priorities (women, children, environment)

196. Both male and female refugee children attend schools in Rafha camp which are run by the government authorities. During family visits at the camp, the UNHCR Community Social Service Counsellor assesses the problems of female refugees and children and implements the necessary follow-up measures.

(f) Oversight reports

197. No reports were initiated during the reporting period.

15. Syrian Arab Republic

(a) Beneficiaries

198. As at the end of November 1997, there were 3,963 assisted and 2,219 non-assisted refugees in the Syrian Arab Republic. At the El Hol camp, there are 1,403 assisted refugees, while another 2,219 refugees, who are living nearby the camp in Hasseke, are registered but are not assisted. Ninety-eight per cent of the refugees at El Hol are Iraqi. Approximately 40 per cent of the refugees are female and 16 per cent are under the age of five. In addition, there is a group consisting of an estimated 20,000 Iraqi nationals in the Syrian Arab Republic who are neither registered nor assisted by UNHCR but which may include a large proportion of refugees.

199. There is an urban caseload of 2,560 assisted refugees in Damascus. The main countries of origin include Iraq (1,123 persons), Yemen (680 persons) and Somalia (579 persons). Approximately 50 per cent of the urban refugees are female.

(b) Recent developments and objectives

200. UNHCR continues to provide international protection and assistance to Iraqi Kurdish refugees living in El Hol camp and to urban cases in need. Resettlement from the Syrian Arab Republic has continued in 1997 and it is expected that 500 refugees will have departed the Syrian Arab Republic for resettlement during the year.

(c) Implementing partners/arrangements

201. The Governorate of Hasake is UNHCR's implementing partner at the El Hol refugee camp. Assistance for urban refugees is implemented by the Syrian Red Crescent and includes a monthly subsistence allowance, medical assistance, and education and vocational training. The Syrian Women's Association provides a kindergarten for small children and vocational training for refugee women.

(d) Budget

202. Due to the increased number of urban refugees in the Syrian Arab Republic, the Office of the Chargé de Mission (OCM) Damascus has submitted a budget for 1998 which is higher than the revised 1997 budget. During 1998, an upward revision of the annual programme allocation may therefore be required.

(e) Post situation

203. A post of Field Assistant was discontinued effective 31 December 1997.

(f) Implementation of policy priorities (women, children, environment)

204. The activities in the sewing and knitting workshop for refugee women in the El Hol camp have been expanded during 1997. Refugee women are producing sweaters and school uniforms for the camp population. The camp management has organized Arabic literacy courses for refugee women. With regard to the environment, some 90,000 seedlings and small trees planted by refugees in and around El Hol, are thriving.

(g) Oversight reports

205. No reports were initiated during the reporting period.

16. Tajikistan

(a) Beneficiaries

206. Of the 3,800 asylum-seekers, mostly from Afghanistan, who were registered with the Government's Central Refugee Department as of October 1997, 1,900 have been recognized as refugees.

207. Between July and November 1997, some 10,200 additional Tajik refugees returned home safely from northern Afghanistan, completing the Tajik repatriation from northern Afghanistan which began in 1993. During this period, a total of 42,000 Tajik refugees returned from Afghanistan to their homes with UNHCR assistance.

(b) Recent developments and objectives

208. Under its General Programmes, UNHCR continues its efforts in preventive and capacity-building activities with the Tajik Government and local NGOs to further enhance their ability to protect and assist refugees and asylum-seekers. Care and maintenance assistance is provided to needy refugees and asylum-seekers, especially vulnerable groups.

209. In August 1997, UNHCR issued a Special Appeal seeking a total of $ 9.68 million for the voluntary repatriation and reintegration of 25,000 Tajik refugees in 1997 and 1998. After completing the voluntary repatriation of Tajik refugees in northern Afghanistan in 1997, UNHCR is further assessing the number of other Tajik refugees who may return in 1998 from neighbouring countries such as Turkmenistan, Kyrgyzstan and Pakistan, as well as other countries in the Commonwealth of Independent States. UNHCR will also undertake specific reintegration programmes for the returnees, usually in the form of QIPs, in the sectors of water, health, shelter, education, income-generation and legal assistance. The largest of the reintegration activities concerns the reconstruction of homes destroyed during the civil war in the returnee areas.

210. A Donor Conference on International Support to Peace and Reconciliation in Tajikistan, which was held in Vienna, Austria, in late November 1997 seeking $ 65 million (including $ 9.68 million for UNHCR), received strong support from the international community. The security situation, however, remains the most serious obstacle to programme implementation. In February 1997, several United Nations staff members, including four from UNHCR, were taken hostage, and most humanitarian and development aid programme activities were suspended for a few months. In late November 1997, two French aid workers were taken hostage, one of whom was killed two weeks later. Once again, these events had a negative impact on assistance activities in the country.

(c) Implementing partners/arrangements

211. The Central Refugee Department of the Ministry of Labour and Social Protection is responsible for all matters related to refugees, returnees, internally displaced persons, migrants and other population movements.

212. Refugee Children and Vulnerable Citizens (RCVC) provides care and maintenance assistance to vulnerable refugees and asylum-seekers. In particular, some 30 unaccompanied Afghan refugee children receive educational, social and material support from RCVC. With local expertise, RCVC will also conduct rapid needs assessments for QIPs for Tajik returnees.

213. Shelter Now International produces roofing tiles, while Save the Children (USA) and Caritas (Switzerland) procure and transport construction materials and organize the reconstruction of destroyed houses. Other activities for returnee reintegration will be implemented by agencies yet to be identified.

214. From July 1996 to December 1997, Save the Children (USA) implemented the group guaranteed loan scheme which was based on the Grameen Bank model, providing short-term loans to over 150 groups of Tajik returnee women (some 3,000 persons) and helping them to start small-scale businesses.

(d) Budget

215. The General Programmes budget proposed for 1998 remains at the same level as the reduced 1997 budget. Under the Special Programme, due to the delay in 1997 in implementing the reintegration programmes for Tajik returnees, most of the reintegration activities will be implemented during 1998. Early in 1998, the requirements for the Special Programme will be revised on the basis of the estimated number of Tajik returnees from Central Asia and other countries as well as the type of QIPs needed in returnee communities.

(e) Post situation

216. As the programme priority in Tajikistan has shifted from capacity-building to repatriation and reintegration of Tajik returnees during 1997, the posts of Field Officer (Protection), Assistant Programme Officer and Regional Policy Officer for Children were created (two posts in 1997 and one in 1998). A Training Assistant post was discontinued at the end of 1997. UNHCR is also seeking two Junior Professional Officer posts of Field Officer and Policy Officer.

(f) Implementation of policy priorities (women, children, environment)

217. While particular attention is already paid to special needs of refugee women and children, especially unaccompanied Afghan refugee children and female-headed households, new policy priorities for children will be formulated by a Regional Policy Officer for Children who will be based in Dushanbe beginning in early 1998.

(g) Oversight reports

218. It is expected that Tajikistan will be included in the work plan of the United Nations internal auditors in 1998.

17. Turkmenistan

(a) Beneficiaries

219. According to a survey conducted in October and November 1997 by a team comprising Government, UNHCR, IFRC and IOM staff, there were some 11,000 Tajiks in Turkmenistan. Of them, 9,000 were found to be of ethnic Turkmen origin and were well integrated in the country. There may, however, be even more Tajiks in the country as the survey covered only those in the main urban centres. A small number (less than 200) of Iranians, ethnic Armenians from Azerbaijan, Georgians, Iraqis, and others have sought asylum in Turkmenistan.

220. An influx of some 8,000 to 10,000 Afghans into south-eastern Turkmenistan occurred in late June and early July 1997 due to fighting in adjacent areas in Afghanistan. The group returned voluntarily after two weeks when their home area became safe again.

(b) Recent developments and objectives

221. Consistent with UNHCR's regional strategy for Central Asia, the UNHCR Liaison Office in Ashgabat assists the Government in developing and strengthening the legal and administrative framework required to effectively manage refugee and other population movements.

222. In this regard, UNHCR has provided technical support, office equipment and furniture for the establishment and running of the Institute for Democracy and Human Rights, which is the focal point for implementing a variety of research activities, training courses, workshops and exchange programmes designed to improve skills and strengthen the structures involved in managing population movements. An Information and Research Centre on Humanitarian Law, also supported by UNHCR, is attached to the State Turkmen University. UNHCR's assistance was sought and provided in drafting five laws covering refugees, emigration, national minorities, migrants and immigration. In June 1997, the legislation on refugees was adopted by the Parliament, and the Government is currently in the process of acceding to the 1951 Convention and its 1967 Protocol.

223. UNHCR continues to work closely with the Operational Unit of the Ministry of Foreign Affairs assisting the Government in further developing and strengthening its institutional capacity to better manage population movements. Activities planned for 1998 include seminars on international and refugee law, refugee status determination procedures, interviewing techniques and technical assistance for legislation of the four remaining draft laws. Border guards, police and military will also benefit from these training activities.

224. Preparation is under way for voluntary repatriation of some 2,000 to 2,500 Tajiks. Some Afghan refugees in the Islamic Republic of Iran may also need UNHCR assistance in their return to Afghanistan through Turkmen territory.

(c) Implementing partners/arrangements

225. The Ministry of Foreign Affairs' Operational Unit is responsible for issues related to refugees and migration and for coordinating activities and the flow of information between relevant government departments on these issues.

226. The Institute for Democracy and Human Rights organizes training courses, workshops, exchange programmes, studies and research on subjects such as democracy, human rights, humanitarian law, refugees and migration.

(d) Budget

227. The General Programmes budget proposed for 1998 remains at the same level as the reduced 1997 budget. Under Special Programmes, a small amount is expected to be allocated from the NGO Fund under the CIS Programme of Action.

(e) Post situation

228. No post changes occurred in 1997 or are foreseen for 1998.

(f) Implementation of policy priorities (women, children, environment)

229. Policy priorities for children will be formulated by a newly-appointed Regional Policy Officer for Children in early 1998.

(g) Oversight reports

230. No audit reports were initiated in 1997 or are planned for 1998. However, an evaluation of UNHCR capacity and institution-building activities in several geographic locations, including the Central Asian countries, is under consideration for 1998.

18. United Arab Emirates

(a) Beneficiaries

231. As at 1 January 1997, there were 484 refugees in the United Arab Emirates. In

August 1997, UNHCR assisted some 507 refugees originating mainly from Somalia, Uganda, and Iraq. There is also a small group of stateless Zanzibaris who came to the United Arab Emirates between 1964 and 1974.

(b) Recent developments and objectives

232. UNHCR continues to provide international protection as well as material assistance to refugees in need. In June 1997, Ugandan refugees residing in Dubai were granted United Arab Emirates passports valid for two years. They subsequently enrolled their children in public schools and are no longer considered in need of educational assistance from UNHCR.

(c) Implementing partners/arrangements

233. UNHCR is working in close cooperation with local NGOs who are providing most of the assistance to refugees. Cases eligible for UNHCR assistance are referred by UNHCR to local NGOs. In Abu Dhabi, they are referred to the Sheikh Zayed Foundation and the Red Crescent Society, in Dubai to the Sheikh Mohamed Foundation and Dubai Charity, in Sharjah to Charity International, and in Ajman to Human Appeal. Education assistance for children of stateless Zanzibaris is provided by the Ministry of Education.

(d) Budget

234. There are no significant changes in the budget of the assistance programme to refugees in the United Arab Emirates for 1998 as compared to 1997.

(e) Oversight reports

235. No reports were initiated during the reporting period.

19. Uzbekistan

(a) Beneficiaries

236. Uzbekistan has yet to establish the legislative and administrative structures necessary to register, protect and assist refugees and asylum-seekers. Nevertheless, in accordance with its mandate, UNHCR protects and assists those who are in need, especially vulnerable groups. As of October 1997, there were 3,195 asylum-seekers registered with UNHCR in Uzbekistan, the majority of whom were from Afghanistan. Of these persons, 952 have been granted UNHCR mandate refugee status.

(b) Recent developments and objectives

237. UNHCR's activities continued to focus on capacity-building and prevention activities, consistent with UNHCR's regional strategy for Central Asia. Specifically, a Centre for Studies on Human Rights and Humanitarian Law within the Tashkent Law Institute was opened in late 1996 after receiving technical and operational support from UNHCR. The Centre now offers courses on international humanitarian and refugee law. Attached to the Institute is a library which contains books, journals and documents, including those of the United Nations. The Centre and UNHCR continue to conduct seminars and workshops for government officials, academics and the media on subjects such as human rights, constitutional law, refugee law, democracy and individual protection under criminal procedures. A draft law on migration is currently under consideration by the Government.

238. As the logistical and communications hub of the region, UNHCR offices in Uzbekistan, and the Field Office in Termez in particular, provide logistical support to UNHCR activities in Central Asia and neighbouring countries. Crucially needed supplies and staff movements for UNHCR operations in Afghanistan and Tajikistan were facilitated by the office in Termez. Uzbekistan played an important role in successfully completing, in November 1997, the voluntary repatriation of Tajik refugees from northern Afghanistan. The refugees from Sakhi camp transited safely through Uzbekistan to repatriate to Tajikistan. Tajik refugees coming home from Turkmenistan and other States in 1998 may also need to transit through Uzbekistan.

(c) Implementing partners/arrangements

239. The Centre for Studies on Human Rights and Humanitarian Law offers courses on international humanitarian and refugee law, organizes training, seminars and workshops, and conducts legal research and studies.

240. During 1998, Mercy Corps International will provide training and micro-credits to some 100 refugees for their self-employment and job creation.

241. As part of UNHCR's regional objective, technical and limited financial support will continue to be provided, in cooperation with Counterpart Consortium, to national NGOs for the improvement of their programme management capacity and implementation skills. While efforts to develop national NGOs continue, programmes providing legal, educational and material assistance to needy refugees and asylum-seekers in the country, in particular some 27 Afghan orphans, are directly implemented by UNHCR.

242. UNHCR is also providing technical support to the Institute for Monitoring of Acting Legislation under the Uzbekistan Parliament to draft refugee and related migration laws as well as to conduct seminars and workshops on refugees and forced population movement issues. In 1998, UNHCR will also assist the Uzbekistan Academy of Police to implement a project on judicial reform and the protection of human rights, including support for research, seminars and workshops and the production of public information material.

243. UNHCR will collaborate with UNESCO in implementing a project to introduce ethnic tolerance into the educational curriculum for primary and secondary students.

(d) Budget

244. The budget proposed for 1998 remains at the same level as that of the reduced 1997 budget. Under Special Programmes, a small amount is expected to be allocated from the NGO Fund under the CIS Programme of Action.

(e) Post situation

245. The posts of Regional Telecommunications Technician, Assistant Programme Officer, Finance Assistant, Administrative Assistant and Senior Secretary were created as of 1 January 1998 in order to reinforce regional support to UNHCR programmes in all the five Central Asian countries. The posts of Senior Logistics Clerk and Senior Personnel Clerk were discontinued as at the end of March 1997.

(f) Implementation of policy priorities (women, children, environment)

246. Special attention is being paid to the needs of the Afghan orphans who arrived in the former Soviet Union in the late 1980s for education. More specific policy priorities will be formulated by a Regional Policy Officer for Children, who is expected to assume functions in early 1998.

(g) Oversight reports

247. It is expected that Uzbekistan will be included in the work plan of the United Nations internal auditors in 1998.

20. Yemen

(a) Beneficiaries

248. As at 1 January 1997, Yemen hosted an estimated 53,495 refugees and other persons of concern to UNHCR. Apart from some 5,821 Somalis accommodated in the Al-Gahin temporary camp who received full assistance from UNHCR, there were some 25,000 refugees who were not assisted by UNHCR; 15,500 Somalis of Yemeni origin; 2,500 Eritrean refugees scattered on the coast of the Red Sea, and 1,077 Ethiopian and 6,000 Palestinians and other Arab refugees.

(b) Recent developments and objectives

249. No major protection problems affected the various refugees and asylum-seekers in Yemen in 1997. Even the previous tension between the Eritrean refugees and the local population due to the dispute between Eritrea and Yemen over Hunaish Island has almost totally disappeared. The clear public commitment of both countries to accept the outcome of the international arbitration has contributed greatly to easing this tension.

250. As the result of the nation-wide registration and documentation of refugees in Yemen, conducted by UNHCR in collaboration with the appropriate government agencies, the protection situation of refugees in the country has substantially improved throughout the year.

251. During 1997, UNHCR succeeded in assisting 55 Ethiopian and 700 Somali refugees to voluntarily repatriate to their home countries.

252. Currently, some 8,000 refugees are assisted in the Al-Gahin camp. The implementation of plans to relocate them to a new camp has been deferred until 1998. As recommended by the UNHCR technical mission which assessed the suitability of Kharaz as a site for a refugee camp in 1997, UNHCR is finalizing arrangements with the Government for rendering the site perennially accessible. These arrangements must be agreed before the rehabilitation or reconstruction work is undertaken to convert it into a refugee settlement. In the meantime, refugees will remain at the Al-Ghahin camp. UNHCR's major objective in 1998, however, remains to organize and/or facilitate the voluntary repatriation of Somali refugees, if conditions in their country of origin so allow.

253. During 1997, the assistance programmes for both Ethiopian and Somali refugees were reviewed and more emphasis was placed on indirect assistance to urban refugees in order to promote self-sufficiency. In addition to voluntary repatriation, these programmes will be pursued throughout 1998 and 1999.

(c) Implementing partners/arrangements

254. During 1997, UNHCR was assisted by Partners for Development (PAD) and Rädda Barnen in the implementation of the care and maintenance programme for Somali refugees. PAD was responsible for camp management, health coordination and social and basic legal counselling services. Rädda Barnen assisted in the education sector by running school projects in the Al-Ghahin camp and in Al Basateen. Similarly, the agency also continued its activities to assist children with disabilities, and a Mother and Child project. International Cooperation for Development (ICD) implemented a health project for urban refugees in Sana'a. In July 1997, PAD and UNHCR commenced indirect assistance to urban refugees in Sana'a and Aden to support the efforts of the refugees to become self-reliant. The project included vocational training, adult literacy courses, employment advice and child care support services.

255. The Islamic Educational Scientific and Cultural Organization (ISESCO) implements primary education activities for Somali refugee children and provides technical and material assistance to the educational institutions for handicapped refugees.

(d) Budget

256. Due to funding constraints, the allocations for care and maintenance under the 1997 and

1998 General Programmes have been slightly decreased.

(e) Post situation

257. During 1997, the post of National Officer (External Relations/Programme) in Branch Office Sana'a was discontinued. The post of Associate Administrative Officer was converted into an Associate Programme Officer post.

(f) Implementation of policy priorities (women, children, environment)

258. Following the mission to Yemen by the Senior Regional Advisor for Refugee Women, the office reviewed its assistance programmes to better highlight gender issues and respond to special needs of women in areas of sanitation and employment. In the urban areas, PAD joined ICD to monitor and provide assistance for the welfare of women and children refugees. In Al-Ghahin camp, Rädda Barnen continued its activities in the areas of education and community-based rehabilitation for children.

(g) Oversight reports

259. No reports were initiated during the reporting period.

(Note: Tabular annexes not included in this online version. See your nearest UN Depository Library.)

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1 Conclusion of Bilateral Repatriation Committee, 11 November 1997