Hosted by the Migration Policy Institute

The release of the 2003 World Refugee Survey brought together key analysts to present and discuss trends in forced migration and policy over the past year. Major trends included the continued restrictions for refugee resettlement and asylum-seekers since September 11th.

Kathleen Newland, Co-Director, Migration Policy Institute

Kathleen Newland opened this event by describing the content of this year's survey as both compelling and challenging. Its focus on security and continued border restrictions, which are either new in their development or only now apparent, provides a somber background to examine current refugee issues. The analysts from the US Committee for Refugees who contributed to this publication, including Jana Mason, Joel Frushone, Ahmed Jabri, Michelle Berg, Michael Scott and Alison Seiler, were introduced along with the panel that would present an overview, statistical highlights and regional highlights of this 2003 Survey.

Lavinia Limón, Executive Director, Immigration and Refugee Services of America (IRSA) and the U.S. Committee for Refugees (USCR)

Ms. Limón provided an overview of the report by presenting two primary themes. First, the world in 2002 is less safe for refugees, and secondly US leadership in refugee protection has waned in the two years since 9/11. Issues of domestic security have continued to affect the US refugee resettlement program profoundly. Previously the US led the world by admitting up to 70,000 refugees annually. This allowed many Americans to come into direct contact with refugees and thereby to gain an understanding of refugee issues, and also provided new opportunities for refugees themselves. In 2002, however, the number of refugees admitted to the US dropped drastically to just over 27,000, the lowest number admitted in 36 years. This trend appears to be continuing into 2003, with this year's US resettlement program expected to accept fewer than 30,000 refugees.

Ms. Limón discussed the effects of these trends. Changed policies this year left 40,000 refugees waiting for resettlement despite their previous approval by INS, as the newly introduced nationality-based "security advisory opinions" (SAOs) were processed. Additional restrictions placed on the resettlement program have not identified individuals who would be considered a security threat (indeed no refugee has been rejected from resettlement based on an unsatisfactory SAO), yet these new restrictions keep refugees in prolonged states of limbo. Another outcome is that the UNHCR may become less willing to refer refugees to the US for resettlement when the US program is so unpredictable. Restrictions have also taken a human toll. Those who have been approved and are awaiting resettlement are placed at high risk of violent crimes. Another future consequence of the above trends is that other countries may be likely to follow the example that the US is currently setting.

Ms. Limón also mentioned events that have had positive impacts upon refugees in the past year. Examples include the US overthrow of the Taliban, which resulted in the return of nearly 1.8 million Afghan refugees, and the return of 900,000 Angolan refugees following the death of rebel leader Joseph Savimbi and the ensuing cease-fire.

In closing, Ms. Limón said that as we struggle through this post 9/11 time and witness continued discrimination against various groups-drawing on recent new reports on Haitian refugees as an example-we can see that the war on terror is actually harmful to the victims of terror.

Hiram A. Ruiz, Director of Communication, Immigration and Refugee Services of America (IRSA) and U.S. Committee for Refugees (USCR)

Mr. Ruiz presented the statistical highlights of this year's Survey by first explaining that two new kinds of data were added to improve the accessibility of the publication. The total number of people "uprooted", which combines internally displaced people and refugee numbers, is displayed under key statistics and in other tables. Also, a map displaying refugee hot spots identifies areas where significant developments for refugees occurred during the year.

Mr. Ruiz explained that there were 13 million refugees and asylum-seekers at the end of 2002. The decline in refugee numbers from 2001 to 2002 is partially explained by the repatriation of Afghan refugees and also changes made in the way USCR has decided to count Palestinian refugees; that is, based on the convention definition and therefore protection need (eliminating from USCRs statistics the thousands of Palestinian refugees with Jordanian citizenship).

Mr. Ruiz provided a basic outline of the world refugee situation:

• 26 countries currently host more then 100,000 refugees
• Iran is the number-one host of refugees, yet receives the least in international aid
• 34.8 million were uprooted, of which 4.8 were newly uprooted in 2002
• Afghan and Palestinian refugees compose more than 50% of the world's refugees
• 102,000 involuntary repatriations took place during 2002

Merrill Smith, Editor of the World Refugee Survey 2003

Mr. Smith opened his discussion by clearly stating that the theme of the World Refugee Survey 2003 was the irony that a war on terrorism increased the suffering among victims of terror. The exacerbations of conflict in Palestinian territory, increased restrictions on asylum-seekers in industrialized nations, and the use of the "war on terror" by other countries to crack down on dissent were examples given to illustrate this point.

Mr. Smith acknowledged the state's duty to protect its citizens, but also emphasized its obligation to uphold human rights. Recent action against terrorism decreased the numbers of refugees able to attain a durable solution through resettlement, and increased refoulement and overt attacks of refugees in Northern Uganda, Liberia, Northeast Congo, Sudan and Rwanda. The most disturbing example is that of the North Korean refugees in China-who were forcibly returned to their country.

Questions and Answers

Q: Richard Smyser asked how many of the 1.8 million returned Afghans were now IDPs.

A: Michael Scott (USCR analyst) stated that the majority of Afghans have returned to Kabul, rather than to their homes. This has placed stress upon the services in the city already degraded by conflict. An estimated 700,000 of repatriated Afghans currently reside in abandoned buildings or in other temporary settlements in Kabul and surrounding areas. There has been a gap in aid for economic development and integration programs outside of Kabul. Security will need to be improved throughout Afghanistan to improve this situation.

Q: Joel Charney of Refugees International requested further exploration of the consequences of redefining Palestinian refugees, specifically whether this would allow cuts in funding to UNRWA or even its demise, as UNHCR may be expected to take on further responsibility.

A: Merrill Smith stated that the report speaks of protection gaps, and in no way describes an excess of support for this group. Therefore, either UNRWA or UNHCR needs to increase its mandate. There was no recommendation for decreased protection with this definition change.

Q: Nichole Widdersheim of the IRC asked about security as it relates to resettlement. Investment in security precautions in refugee work may be a waste of resources, as so far no refugee applicants for resettlement have been found to be associated with terrorism. What recommendations could be made to provide more effective protection in this process and should the onus to find this solution be on those currently working with refugees?

A: Merrill Smith stated that some policies clearly are unsuccessful and should be avoided. In particular, isolation and restriction are considered unsuccessful because further security risks are created. Individual scrutiny is essential. A: Lavinia Limón added that there is less connection between terrorism and refugees than there is between terrorists and students. Ms. Limón speculated, that although it may be an optimistic view, the current bureaucratic restrictionism could shift back to a more moderate approach.

A: Michelle Berg noted that numbers of refugees admitted for resettlement has remained relatively constant in countries outside the US, including parts of Western Europe and Canada.

A: Kathleen Newland noted that PRM has commissioned David Martin of the University of Virginia to examine resettlement practices, which will present useful recommendations on these matters.

Q: Margaret McKelvey of the State Department asked about the use of this Survey as an advocacy tool.

A: Lavinia Limón responded by stating that the Survey had been sent to all embassies, and was presented to the UN on the previous day.

A: Hiram Ruiz pointed out that one major restriction in distribution was the cost of mailing the survey. Support for translation of the Survey into other languages could also assist in its distribution.

Q: Ms. Newland also asked the analysts to discuss the recent European- particularly UK- focus on "regional protection zones", and the increasingly negative view of asylum-seekers.

A: Michelle Berg spoke of the UK plan that is now referred to as 'protection in the region'. This plan would establish refugee-processing zones outside of Europe for people seeking asylum in Europe; for example, a zone in Albania has been suggested. Grave doubts exist about the quality of protection that could be offered in such sites, and the dangers of human rights abuses, coercive treatment, and trafficking that might cluster around them.

A: Michael Scott explained the revocation of refugee status from Afghan and Iraqi refugees in Iran, to exemplify the dangers of this type of plan.

A: Jana Mason described this type of plan as both costly and problematic, providing the example of Australia's "Pacific Solution".

Q: Jeff Meer of USA for UNHCR what short explanation could best explain to the American public why they should care about refugees.

A: Lavinia Limón said that the United States was a nation founded on the idea of freedom, and committed to defending it for others. This is a core American value.

In closing Lavinia Limón stated that this Survey was dedicated to Carel Sternberg, director of IRC from 1965 to 1985. The survey also pays tribute to fallen refugee workers. Ms. Newland thanked all those in attendance and closed the briefing.