United Nations Addenda to the Report of the United Nations High Commissioner for Refugees, General Assembly Official Records: Eleventh Session Supplement No.11, A A/3123/Rev.1/Add.1 and Add.2) United Nations, New York, 1957

A/3123/Rev.1/Add.1 and Add.2

Addendum 1 Effect of the Short-Fall in Governmental Contributions to the United Nations Refugee Fund

I. INTRODUCTION

General remarks

1. At its third session, the UNREF Executive Committee decided that the General Assembly should be informed at its next session of the state of the UNREF programme and requested the High Commissioner to prepare an addendum to his report to the eleventh session of the General Assembly¹ indicating the effect of the short-fall in governmental contributions on the reduction in the camp population.

2. This decision of the Executive Committee was supported by a number of delegations during the consideration of the report of the High Commissioner by the Economic and Social Council at its twenty-second session.

Scope of the UNREF programme

3. It will be recalled that in his report submitted at the ninth session of the General Assembly² the High Commissioner pointed out that the experience of the past few years had shown that the refugee problem was far from solved. There were at that time some 350,000 refugees who were not completely assimilated, of whom over 100,000 were still living in camps³ in Europe.

4. Furthermore, the High Commissioner stated that if a programme such as was outlined in his report could be followed "there was no doubt that a very considerable contribution to the solution of the refugee problem could be made during the next five years".

5. The programme outlined in the report was designed to accelerate the absorption of a "relatively large proportion of the approximately 350,000 refugees who do not wish to be repatriated and who have not been completely assimilated". Such a programme would be designed in the first place to assist those refugees who are still in the camps and whose tragic situation was described in chapter III of document A/2648.

6. The estimate of 350,000 unassimilated refugees, which was originally submitted to the fourth session of the High Commissioner's Advisory Committee in document A/AC.36/32, was made in January 1954 and was based on data relating to the situation which obtained in the middle of 1953. This estimate was based on:

(a) The number of refugees living in official and unofficial camps;

(b) The following groups amongst the refugees living outside camps:

(i) Difficult cases;

(ii) Physically handicapped refugees who can be enabled to earn their own subsistence;

(iii) Refugees difficult to (re)settle because of their social or economic handicaps;

(iv) Other unemployed refugees;

(v) Other refugees living in sub-standard dwellings;

(vi) Unassimilable refugees who wish and are likely to emigrate in the near future;

(vii) Dependants of refugees in categories (i) to (vi).

7. The estimate of the number of refugees who were not completely assimilated was revised in the light of the progress which had been made in the settlement of refugees and was as follows as at 1 January 1955:

Timing of the UNREF programme

8. When the outline of the UNREF programme was originally submitted in document A/AC.36/32 to the High Commissioner's Advisory Committee at its fourth session in March 1954, it was planned as a five-year programme to be carried out in the period 1954-1958. The Advisory Committee suggested "that the problem of promoting permanent solutions should be examined in greater detail by the Economic and Social Council", and "therefore suggested that the High Commissioner submit the detailed programme through the Economic and Social Council to the General Assembly".

9. This was done and, at its ninth session in the autumn of 1954, the General Assembly considered the High Commissioner's report (A/2648), together with the additional information requested by the Economic and Social Council in document A/2648/Add.2, and adopted, on 21 October 1954, resolution 832 (IX) by which it authorized the High Commissioner to undertake the UNREF programme, at the same time requesting the Advisory Committee to establish the financial target for the new programme.

10. The Advisory Committee, at its fifth session in December 1954, considered the target for the UNREF programme, which was reframed as a four-year programme for the period 1955-1958 (A/AC.36/37), and decided that the total target for governmental contributions to UNREF, to be sought by the Negotiating Committee for Extra-Budgetary Funds, should be $16 million for the four years 1955-1958. At the same time, it proposed to the Economic and Social Council that it should be reconstituted as an Executive Committee.

11. At its first session in May 1955, the newly constituted UNREF Executive Committee, which had been established under Council resolution 565 (XIX), gave its general approval to the UNREF plan of operations for 1955 and authorized for implementation a number of projects.

12. It will be seen from the above that, owing to the procedures required for its establishment, the UNREF programme was cut from a five-year programme, designed to be carried out in the period 1954-1958, to a four-year programme which had in fact to be carried out in three-and-a-half years between the middle of 1955 and the end of 1958.

Targets for governmental contributions

13. The total target for governmental contributions to UNREF was fixed by the Advisory Committee at its fifth session at $16 million. In the light of the various decisions taken by the UNREF Executive Committee concerning the annual targets, this total amount is broken down over the four years of the programme as follows:

14. The governmental contributions to UNREF for the year 1955, which are listed in table I below, amounted to $2,653,697, leaving a short-fall in governmental contributions of $1,546,303. Table I also indicates that, on 1 September 1956, the payments, pledges and promises of governmental contributions to UNREF for 1956 amounted to $2,570,000, which would leave a short-fall of approximately $1,830,000.

15. On the assumption that Governments would contribute to the Fund in each of the years 1957 and 1958 an amount of approximately $2,500,000, as they have pledged for 1956, the short-fall in governmental contributions would amount to $1,900,000 in 1957 and to $500,000 in 1958. The total short-fall in governmental contributions, as compared with the total target of $16 million, would amount, on that assumption, to approximately $5,800,000, or 36.3 per cent, as is shown in the following breakdown:

a approximately.

16. The purpose of the present addendum to the High Commissioner's report is to analyse the effect of this total short-fall on the planned reduction in the number of non-settled refugees which would result from the UNREF programme, and particularly on the planned reduction of the number of refugees living in camps. To be complete, this analysis must deal not only with the direct effects of the UNREF programme, but also with the indirect effects, as well as with effects of other programmes carried out during the period 1955-1958 on behalf of non-settled refugees.

17. In that connexion, it must be emphasized that, when the UNREF programme was prepared and when the four-year target for UNREF was established at $16 million, it was obvious that not every non-settled refugee could benefit directly from such a limited programme, in fact, the UNREF programme was not only meant to provide directly permanent solutions for a limited number of refugees, but was also devised to act as a "prime mover" in the field of permanent solutions. The indirect effects of the programme and the effects of other programmes were, from the outset, regarded as of equal importance with its direct effects.

18. Before the effect of the short-fall can be clearly seen, it is necessary to have a clear idea of the full potential impact on the refugee situation of the UNREF programme.

II. POTENTIAL IMPACT OF THE UNREF PROGRAMME ON THE REFUGEE SITUATION

A. Direct effects of the UNREF programme

19. In estimating the direct effects of the UNREF programme on the refugee situation, account is taken only of the refugees for whom permanent solutions will be provided through the UNREF projects - either through their resettlement outside their present country of residence, or through their integration into the economy of their country of residence - and of the refugees who will benefit from projects for the settlement of difficult cases.

20. Large numbers of refugees who will benefit from the UNREF programme are not taken into account, such as those who benefit temporarily under emergency aid projects and those who benefit from counselling or other services provided under permanent solutions projects, but who cannot be regarded as finally settled. There is no doubt, however, that many of these refugees will receive through the UNREF programme effective help which will often lead to a permanent solution.

21. In estimating in the tables attached to the present document the number of refugees who would be settled through the UNREF programme, an attempt has been made to distinguish between refugees living in camps and who would be enabled through the programme to leave the camps, and non-settled refugees who already live outside camps.

22. In planning and carrying out UNREF projects, emphasis is laid on providing help to refugees living in camps. It will be seen, however, from the various figures given in the present document that a sizeable number of refugees living outside camps have already benefited from UNREF projects and that other refugees from this category are likely to benefit therefrom in the future.

23. A number of UNREF projects which are primarily designed to provide unless they also benefit some non-settled refugees living outside camps. Moreover, the UNREF Executive Committee has included in the UNREF plan of operations various projects designed to provide permanent solutions for refugees in a number of countries where there are no refugee camps, such as China, France and Belgium, and the Near and Middle East.

Number of refugees to benefit from governmental contributions

24. Table IV gives an analyse of the number of 60,770 refugees in camps and outside camps who should benefit from the UNREF projects for permanent solutions or for difficult cases financed from governmental contributions to the Fund, if the target for each year could be reached. This number is broken down as follows:

25. The breakdown over the various countries of the total number of 60,770 refugees to be settled would be as follows:

Numbers of refugees to benefit from non-governmental contributions

26. The above figures relate only to UNREF projects planned within the over-all target of $16 million established for governmental contributions to the Fund. However, one of the purposes of the establishment of UNREF was also to provide an incentive to private efforts on behalf of refugees and to stimulate existing organizations, as well as individuals, either to contribute to the Fund or to collect moneys on its behalf. The most sizeable contribution from private sources so far received was a grant of $947,368 made early in 1955 by the Netherlands Committee for Aid to Refugees. This amount, which represented the major part of the proceeds of a national campaign organized in the Netherlands in 1954-1955, enabled UNREF to finance projects to settle 4,600 refugees in Austria and Greece, including 2,170 refugees in camps and 2,430 refugees outside camps.

27. It is difficult to forecast the size of private contributions which will still be made to the United Nations Refugee Fund. It should be mentioned, however, that the Fund receives occasionally small private contributions, which in 1955 amounted to $11,576, in addition to the grant mentioned in the preceding paragraph, and that fund-raising campaigns will be organized in the autumn of 1956 in the United Kingdom and New Zealand, and possibly in other countries in 1957.

28. It is probably reasonable to add to the number of beneficiaries from UNREF projects financed form governmental contributions some 6,000 refugees who would be settled through projects to be financed form private contributions during the period 1956-1958. Together with the 4,600 refugees benefiting from the grant made by the Netherlands Committee for Aid to Refugees, it is estimated, therefore, that the total number of refugees to benefit from projects financed by private contributions would reach some 10,600 refugees during the whole period 1955-1958.

Supporting contributions

29. In analysing briefly the direct effects of the UNREF programme, mention must be made of the supporting contributions from within the countries of residence. It will be recalled that, in paragraph 5 of resolution 832 (IX), the General Assembly had requested the High Commissioner "to prepare, for presentation to the [UNREF Executive Committee], detailed proposals for projects designed to achieve permanent solutions, including plans for adequate financial or other contributions from sources within the countries of residence;".

30. Considerable attention has been given by the Office of the High Commissioner to this aspect of the programme. Whereas UNREF contributions to projects in the course of implementation included in the plan of operations for 1955 amounted to $2,878,970,⁴ an amount of approximately $5 million is being contributed towards these projects form sources within the countries of residence, bringing the total value of these projects to approximately $8 million. On the basis of calculations which have been made, it is estimated that the total value of supporting contributions towards UNREF projects could amount to some $40 million for the period 1955-1958 provided that the target of $16 million can be reached. This would bring up the total value of UNREF projects to some $56 million.

B. Indirect effects of the UNREF programme

31. In awakening through the UNREF programme interest in permanent solutions for refugees, it was also hoped that the Governments of the countries where large numbers of non-settled refugees still reside would be stimulated in their efforts towards a solution of the refugee problem. The first tangible result of such increased efforts is the fact that these Governments have already made available considerable supporting contributions towards the UNREF projects. In addition, some Governments are initiating or extending national programmes on behalf of non-settled refugees.

32. In the Federal Republic of Germany, an ordinance was passed in June 1956 providing for an internal resettlement programme whereby 5,500 refugees within the mandate of the High Commissioner's Office (out of a total number of 135,000 refugees, expellees and evacuees) would be transferred from unemployment areas to regions where there is a labour shortage. These refugees would be provided with both employment and housing.

33. In Austria, the UNREF programme has served as an example for a permanent solutions programme undertaken by the Federal Government on behalf of naturalized refugees.

34. Another indirect result of the creation of UNREF is the intensification of the efforts of various private organizations to help specific groups of refugees, often in close co-ordination with the UNREF programme.

35. In addition to the resettlement and integration of refugees achieved through the various programmes mentioned below, account must be taken of the fact that individual refugees succeed in integrating themselves in the country of their residence through their own efforts or with the help of friends or relatives. A normal absorption process is developing in the favourable atmosphere created by the UNREF programme which tends to reduce, although slowly, the number of non-settled refugees. This process is speeded up by the UNREF programme inasmuch as many refugees whose problems are not solved through UNREF projects benefit from counselling and other services provided to them under UNREF projects.

Intra-European resettlement schemes

36. The UNREF programme has also stimulated the Governments of European countries of resettlement to take a more active interest in the problem of non-settled refugees, in addition to their direct financial contributions to the Fund. Reference is made in this respect to the Netherlands and Swedish resettlement schemes mentioned in paragraphs 158 to 164 of the High Commissioner's report to the present session of the General Assembly (A/3123/Rev.1). Similar schemes are envisaged at present by the Governments of Belgium and France.

37. During the year 1955, a total number of 973 refugees have been resettled from countries of first asylum to other European countries under such schemes:

a Two Thousand Scheme.

38. It is expected that, during the period 1955-1958, approximately 4,700 refugees will be resettled through intra-European resettlement schemes, according to the following breakdown:

The above numbers do not include the resettlement of refugees who come within the category of difficult cases which, as mentioned in paragraphs 110 and 112 of the High Commissioner's report, has also been facilitated by the Governments already referred to, as well as by other European Governments. However, these figures have been taken into account in estimating the number of refugees likely to be transported by the Inter-governmental Committee for European Migration (ICEM).

C. Effects of other programmes

39. In planning the UNREF programme, it was expected that other inter-governmental and governmental organizations working on behalf of refugees would continue their activities during the lifetime of the Fund, and that the effects of their operations on the refugee situation would be increased through a close co-ordination with the UNREF programme.

Inter-governmental Committee for European Migration

40. The Office of the High Commissioner has continued its co-operation with the Inter-governmental Committee for European Migration (ICEM) which transported in 1955 a total number of 19,919 refugees presumed to come within the mandate of the High Commissioner's office, as compared with 16,224 refugees in 1954.

41. On the basis of figures available for the first half-year, it is expected that ICEM will transport in 1956 a total of 30,730 refugees, including approximately 27,000 refugees from countries where the UNREF programme is in operation and some 3,700 refugees from other countries. The main reason for this sizable increase is the impact of the resettlement operations carried out under the United States Refugee Relief Act of 1953. However, as the Act will not continue after the end of 1956, a severe drop in the figures for the resettlement of refugees is anticipated for 1957 and 1958.

42. According to a detailed forecast elaborated by the High Commissioner's Office in close consultation with ICEM, it is estimated that ICEM will transport during the period 1955-1958 approximately 71,000 refugees, including over 61,000 refugees from countries where the UNREF programme is in operation, and some 10,000 refugees from other countries. The number of over 61,000 refugees mentioned above is likely to include some 24,000 refugees from camps and approximately 37,000 refugees residing outside camps.

United States Escapee Programme

43. Close co-ordination is also maintained by the Office of the High Commissioner with the United States Escapee Programme (USEP). During the year 1955, 5,488 refugees eligible for USEP assistance have been resettled from the countries where the UNREF programme is in operation. These refugees were transported with the assistance of ICEM and are therefore already included in the number of 19,919 quoted in paragraph 40.

44. It is expected that sizable numbers of refugees eligible for USEP assistance will be resettled during the period 1956-1958 and, further, that USEP will finance the integration of those refugees eligible for its assistance who cannot be resettled in other countries. It can therefore be assumed that, by the end of 1958, the 29,088 refugees who were eligible for USEP assistance at 1 January 1955 in the countries where the UNREF programme is in operation will be either resettled or integrated into the economies of their countries of residence.

D. Total potential effect of the UNREF programme and other programmes on the number of non-settled refugees during period 1955-1958

45. On the basis of actual figures for the year 1955 and of a detailed forecast for further years, if the full UNREF programme could be carried out its impact, together with the other programmes on behalf of refugees, would reduce the number of non-settled refugees by approximately 180,000 persons over the period 1955-1958, according to the following breakdown:

a Totals corrected to avoid duplication.

46. The breakdown of the above figures by country of present residence is as follows:

a Effect of projects designed to benefit refugees in different countries.

III. ANALYSIS OF THE EFFECT OF THE SHORT-FALL IN GOVERNMENTAL CONTRIBUTIONS TO UNREF

A. Target for 1955

47 The target for governmental contributions to UNREF was established at $4,200,000 by the Advisory Committee at its fifth session. If the whole of this amount had been contributed, it would have been possible to reduce the number of non-settled refugees through the implementation of permanent solutions projects and of projects for the settlement of difficult cases by 15,445, including 8,820 refugees living in camps, and 6,625 non-settled refugees living outside camps.

48. Governmental contributions to UNREF for 1955 amounted to only $2,653,697, leaving a short-fall of $1,546,303, or 36.8 per cent. Furthermore, the major part of these contributions were not paid into the Fund until late in that year, or until early in 1956. The High Commissioner was therefore, in accordance with the financial rules for voluntary funds adopted by the Executive |Committee, unable to undertake, before the end of the year, firm commitments for a part of the 1955 contributions.

49. The first projects included in the UNREF plan of operations for 1955 were authorized for implementation by the UNREF Executive Committee at its first session in May 1955. Between that time and 31 December 1955, funds from governmental contributions were committed against agreements signed or in the last stage of negotiation, in the amount of $1,920,026.⁵

50. A comparison of the number of refugees (15,445) for whom permanent solutions could have been provided if the financial target for the year 1955 had been met, and the number of refugees (8,885) for whom permanent solutions will be provided with the contributions actually paid into the Fund ($2,653,697), shows that the short-fall in governmental contributions has prevented UNREF from financing solutions for 6,560 refugees, including 3,680 refugees in camps and 2,880 non-settled refugees living outside camps.

B. Target for 1956

51. The UNREF Executive Committee at its first session approved allocations for 1956 amounting to $4,400,000. At its second session, the Executive Committee decided to establish a combined financial target for 1956 of $5,949,533, as explained in paragraph 19 of the High Commissioner's report (A/3213/Rev.1). This decision, however, was taken as a consequence of the short-fall in governmental contributions for 1955 and, to avoid duplication of figures, the following paragraphs are concerned only with the original target of $4,400,000 for 1956.

52. Table I indicates that, on 1 September 1956, the governmental contributions to UNREF paid, pledged, promised or expected for 1956 amounted to $2,570,000, which would leave a short-fall of $1,830,000.

53. Whereas UNREF could finance, if the original financial target for 1956 were reached, permanent solutions for 18,780 refugees, the Fund will be in a position to finance solutions for only 10,400 refugees on the basis of governmental contributions so far paid, pledged, promised or expected. The short-fall in governmental contributions to the original financial target for the year 1956 would therefore result in preventing UNREF from financing solutions for 8,380 refugees, including 3,540 refugees in camps and 4,840 non-settled refugees living outside camps.

C. Analysis of the effect of the probable shortfall in governmental contributions over the period 1955-1958

Direct effects of the short-fall

54. On the assumption that, for each of the years 1957-1958, governmental contributions would amount to approximately $2,500,000, it was estimated that the short-fall in governmental contributions would amount to $1,900,000 in 1957, and to $500,000 in 1958, which would result in a total short-fall in governmental contributions of approximately $5,800,000, or 36.3 per cent.

55. Although the UNREF revised plan of operations (1957) is still in its preliminary stage, and although no detailed plans have so far been approved for 1958, it is still possible to make a forecast of the adverse effects of such a sizable short-fall on the reduction of the numbers of non-settled refugees. Table V indicates that UNREF would be able to finance permanent solutions for only 38,130 refugees, as compared with 60,770 refugees for whom permanent solutions could be found if the target of $16 million were reached.

56. The over-all direct effect of the short-fall in governmental contributions to UNREF would therefore be that some 22,640 refugees would be deprived of permanent solutions:

57. A country-by-country analysis of these figures is included in table V below. The number of refugees who will lose their chance of being firmly settled through the UNREF projects is broken down as follows:

a Effect projects designed to benefit refugees in different countries.

58. In assessing the financial effects of a total short-fall of $5,800,000 in governmental contributions to UNREF, account should also be taken of the fact that supporting contributions from within the countries of residence would be correspondingly reduced. Preliminary calculations show that the total value of supporting contributions are likely to be reduced by $15 million, from $40 million to $25 million, thereby reducing the total value of UNREF projects by $21 million, from $56 million to $35 million.

Indirect effects of the short-fall

59. It has been indicated above that the short-fall in governmental contributions would result in some 22,640 refugees being deprived of permanent solutions through the UNREF programme. It is clearly much more difficult to evaluate the repercussions of a reduced UNREF programme on other international or national programmes undertaken on behalf of refugees. It must be assumed, however, that the indirect effects of UNREF bear relation to the impact which the fund itself can make on the refugee problem, and it must therefore be feared that any reduction in the activity of UNREF will have adverse effects on the other activities which have recently been undertaken on behalf of refugees.

Total effects of the short-fall

60. Calculations have been made to assess the number of refugees who are likely to be firmly settled during the period 1955-1958, on the assumption that governmental contributions to UNREF would leave a short-fall of approximately $5,800,000. In these calculations, account is taken not only of the direct effect of the UNREF programme, but also of the other programmes carried out on behalf of refugees, as well as of the indirect effect of the UNREF programme, and the normal process of absorption. These calculations, which are based on actual data for 1955 and the first part of 1956 and on a detailed forecast for the rest of the period, are given in tables VI and VII below. They show that, during the period covered, it will probably be possible to settle or resettle 149,140 refugees, including 61,940 refugees in camps and 87,200 refugees living out of camps.

61. The comparison of these calculations with the estimated total potential effect of the UNREF programme and of the other programmes analysed in section II of the present document indicates that the total effect of the short-fall would consist in permanent solutions being withheld from 30,860 refugees, including 16,060 refugees in camps and 14,800 non-settled refugees outside camps.

Effect of short-fall on the number of refugees in camps

62. The comparison of the potential effect of the UNREF programme and the anticipated actual effect on the refugees in camps is as follows:

a Totals corrected to avoid duplication.

Effect of the short-fall on non-settled refugees outside camps

63. For non-settled refugees outside camps, the comparison of the total potential effect of UNREF and of the other programmes and of the estimated actual effect is shown on the following page.

a Totals corrected to avoid duplication.

Country analysis

64. The country analysis of the total effect of the short-fall would be as follows:

a Effect of projects designed to benefit refugees in different countries.

IV. PROBABLE NUMBER OF NON-SETTLED REFUGEES WITHIN THE MANDATE OF UNHCR AT THE END OF 1958

Dynamic character of the refugee problem

65. To complete this analysis of the effect of the short-fall in governmental contributions to UNREF, it may be useful to give some indications concerning the probable number of non-settled refugees within the mandate of UNHCR at the end of 1958.

66. It may be seen from a comparison of tables II and VII that, on the assumption that governmental contributions to UNREF would amount to $10,200,000 only, leaving a short-fall of $5,800,000, and on the assumption that the estimates concerning the indirect effects of UNREF and the effects of other programmes prove valid, the number of non-settled refugees would be likely to be reduced, between 1 January 1955 and 31 December 1958, and 292,450 to approximately 143,000, according to the following breakdown:

67. It must be emphasized that the figure of 149,140 refugees to be settled refers to the reduction in the numbers of those refugees who were not settled as of 1 January 1955. The refugee population is, however, not a static population and apart from the factors which tend to reduce the number of non-settled refugees, various factors must be taken into account which tend to increase their number, such as new arrivals of refugees from countries of origin, increases of the number of refugees sur place, and the natural increase of the refugee population (excess of births over deaths).

68. In 1955, the only year of the period considered for which data are at present available, there were 6,140 new arrivals and a natural increase of 2,200.

69. It is difficult to forecast the number of new refugees who will seek asylum during the years 1956, 1957 and 1958. Data available for the first six months of 1956 indicate, however, that the number of new arrivals shows an upward trend. On the other hand, the majority of new refugees come within the scope of the United States Escapee Programme which, if it continues its operations during the remaining period of the UNREF programme, will probably be able to resettle or integrate them.

Estimated number of refugees in camps at the end of 1958

70. The calculations in table VIII below take into account all the movements which may affect the number of refugees in camps during period 1955-1958. This table, which is based on the assumption of a short-fall in governmental contributions to UNREF of $5,800,000, shows that the number of refugees living in camps will tend to increase during the period by an estimated 17,095 persons, largely on account of an expected number of 14,700 new arrivals.

71. The decrease in the camp population within the mandate of UNHCR is estimated at 79,145, mainly as a result of integration in the local economy through UNREF and other programmes (37,655), resettlement (24,285) and naturalization (15,680). The relatively large number of refugees in camps who are likely to be naturalized consists to a great extent of refugees of German ethnic origin residing in camps in Austria, to which reference is made in paragraph 226 of the High Commissioner's report (A/3123/Rev.1.).

72. The results of the various movements affecting the refugees population in camps would be a net decrease of 62,050 refugees, leaving as the end of 1958 an expected camp population of 23,000 refugees for whom it will not be possible to finance permanent solutions projects. Attention may be drawn in this respect to paragraph 62 of the present document where it was shown that one of the effects of the short-fall in governmental contributions to UNREF would be that approximately 16,000 refugees in camps would be deprived of permanent solutions to their problems.

Estimated number of non-settled refugees outside camps at the end of 1958

73. Calculations similar to those in table VIII are given in table IX in respect of non-settled refugees outside camps. It is expected that the non-settled group outside camps will tend to increase during the period considered by 30,490 refugees, largely on account of new arrivals estimated at 14,270, but also because of a natural increase of 5,820 and a number of 7.170 newly registered refugees sur place; the major part of the latter have been identified during 1995 on the mainland of China.

74. On the other hand, the number of non-settled refugees outside camps will tend to decrease by 113,490, mainly due to integration in the local economy through UNREF and other programmes (49,915) resettlement overseas (37,285) and naturalization (21,560). Most of the refugees who will acquire a new nationality are, as in the case of the camp population, refugees of German ethnic origin residing in Austria.

75. The balance of increases and decreases is estimated to result in a net reduction of the number of non-settled refugees outside camps by 83,000, which would leave at the end of 1958 a group of 124,400 non-settled refugees outside camps for whom it will not be possible to finance permanent solutions projects.

Over-all figures

76. The estimated total number of 147,400 refugees who would still be in the non-settled categories at the end of 1958 is broken down as follows:

V. CONCLUSION

77. In the previous sections of the previous document it has been shown that the main effects of the anticipated short-fall in contributions to UNREF will be that:

(a) The number of non-settled refugees who will as a consequence fail to find permanent solutions for their problems is estimated at some 30,000;

(b) There are likely to be at the end of 1958 approximately 147,000 non-settled refugees within the mandate of the UNHCR, including 23,000 refugees still living in camps, for whom it will not be possible to finance permanent solutions.

78. The ratio between the number of non-settled refugees who will still remain in camps at the end of 1958 and the number who live outside camps will depend to a great extent on the emphasis which is given to the UNREF programme during 1957 and 1958.

79. In the this connexion, the UNREF Executive Committee at its third session drew special attention to the necessity of a policy for the systematic closure of camps being initiated, and requested the High Commissioner to consult with the Governments of the countries of residence on the additional measures required to achieve this and, at the same time, to find adequate solutions for the refugees still living in camps.

80. The Governments of the main countries of residence have shown themselves to be in favour of this proposal. If the plans which are being negotiated can be carried out, it is expected that in the Federal Republic of Germany eight camps will be closed during the current year, and seventeen additional camps will be closed during 1957. In Austria nine camps, housing approximately 5,000 refugees, have been selected for closure. In Greece, the Government has stated its intention, with the help of the UNREF programme, of closing all camps and refugee centres before the end of 1957. In Italy, however, it is unlikely, in view of the considerable influx of new refugees, that the small number of existing camps can be reduced in the immediate future.

81. On 1 January 1955, there were 157 refugee camps in Europe housing refugees within the mandate of UNHCR and it is likely that there will be less than 100 at the end of 1958 if the UNREF programme continues at its present rate.

82. It must be emphasized that the reduction of the camp population which has been outlined in the present document will only be achieved if there continues to be in the UNREF programme a concentration on the problems of refugees living in camps, and if the United States Escapee Programme is able to finance permanent solutions by the end of 1958 for all the refugees who are its concern, and particularly for those living in camps in Greece and Italy. Another assumption which must be proved valid is that the figures for the overseas resettlement of refugees which have been given in the present document are proved correct by the end of 1958.

83. If these assumptions prove correct, and the economic conditions which are especially favourable at the present time for the absorption of refugees into the economies of their countries of residence continue, there is every prospect that the number of refugees still living in camps can be reduced to 23,000 by the end of 1958.

84. That there will still be a relatively large number of non-settled refugees at the end of 1958, and that a final solution to the camp problem will not be achieved by that date, is partly due to the short-fall in governmental contributions to the UNREF programme, and partly to the fact that this reduced programme has had to be carried out in three-and-a-half years as compared with the original five years. But, as a contributory cause, it is impossible to ignore the dynamic aspects of the refugee problem which have been outlined in the present document, and in particular the continuing number of new refugees who seek asylum.

(Note: Statistical data tables not included in this online version. See your nearest UN Depository Library.)

Addendum 2 SITUATION OF REFUGEES IN LATIN-AMERICAN COUNTRIES

1. In paragraphs 169 to 171 of the annual report of the United Nations High Commissioner for Refugees to the General Assembly 1 reference is made to the visit which the High Commissioner paid in April and the first part of May 1959 to Argentina, Brazil, Chile, Colombia, the Dominican Republic, Ecuador, Peru Uruguay and Venezuela. The High Commissioner, Accompanied by his representative, was received by the Chiefs of State and Ministers for Foreign Affairs of these countries, who expressed their sincere interest in the refugee problem and a desire to contribute towards the carrying out of the UNREF programme.

2. The High Commissioner also visited the representatives of the Holy See and the leaders of the Catholic Church, which has always shown considerable interest in the promotion of immigration and assistance to refugees in these countries. Renewed assurances of co-operation were received by the High Commissioner in the course of his visit. Close contact had already been established by the High Commissioner's representative in Latin America with the newly created permanent secretariat of the Latin American Catholic hierarchy, which has its seat in Bogota and is particularly concerned with the co-ordination of Catholic activities in the field of immigration and assistance to refugees.

3. The High Commissioner discussed with the officials of the Government visited, with other personalities and with the international and national voluntary agencies concerned, the possibilities of bringing about a broader participation of those countries in the solution of the refugee problem.

4. Press conferences were arranged in the capitals of the countries visited, as well as public lectures and television and radio interviews, by government departments, United Nations Information Centres, United Nations Associations and private bodies. At these conferences the High Commissioner had an opportunity of explaining the UNREF programme and of stating the principal objectives of his visit, namely, to promote the continued admission of refugees and, if possible, an increase in the number of those admitted; to request Governments, as a special contribution towards the UNREF programme, to admit a limited number of refugee families selected from among those still living in camps; to solicit contributions to UNREF; and to obtain additional accessions to the 1951 Convention relating to the Status of Refugees.

5. The authorities of most countries visited were generally in favour of admitting refugees, in particular refugee families coming from camps, and of facilitating the reunion of refugee families with the heads of those families already resettled in America. The authorities fully shared the High Commissioner's interest in securing, through careful selection and adequate reception and placement facilities, the satisfactory resettlement of comparatively small numbers of refugees, rather than the promotion of migration of larger numbers under less favourable conditions. The High Commissioner explained the procedure adopted by the Government of Sweden for the selection of refugee families in camps, and suggested that similar arrangements might be made by Latin American Governments.

6. With regard to the reception and placement of refugees in the various countries visited, the High Commissioner acquainted himself directly with the commendable efforts being made by governmental bodies, international and national voluntary agencies working in Latin America, and national Catholic immigration bodies. He considered that still better results could be obtained if the international and national voluntary agencies had more funds at their disposal for reception and placement activities, as well as for financing or guaranteeing loans for the establishment of refugees in trades, crafts and agriculture. A closer co-ordination between the various agencies and organizations working on behalf of refugees was suggested by the High Commissioner in some of the countries visited, as a means of making their work more effective and facilitating their co-ordination with the governmental immigration authorities.

7. The requests that contributions to UNREF should be considered were sympathetically received and, while several Governments made or confirmed pledges, others offered to consider making contributions in the immediate future.

8. With regard to the 1951 Convention relating to the Status of Refugees, no distinction is made under the legislation in force in Latin American countries between refugees and other immigrants, and all newly admitted aliens enjoy practically the same status and are given the same possibilities as nationals. The High Commissioner, therefore, in suggesting to Governments that they consider acceding to the Convention, stressed that through accession they would not only strengthen the position of refugees in international law, but would also give them the advantage of a uniform travel document provided for by the Convention, which would then replace the different types of aliens' passports that were at present issued in most Latin American countries.

9. As stated in previous reports, several Latin American Governments not parties to the Convention on the Status of Refugees have decided to recognize the validity of travel document issued in accordance with that Convention by the parties thereto. Up to 1 September 1956, the following Latin American Governments had undertaken to recognize such travel documents: Argentina, Brazil, Chile, Colombia, Dominican Republic, Guatemala, Haiti, Honduras, Nicaragua and Venezuela. Cuba has given limited recognition to documents held by refugees in transit.

10. Further details concerning the situation of refugees in each of the countries visited by the High Commissioner are given in the subsequent paragraphs.

Argentina

11. Although the new Government has continued the policy of limiting immigration to the reunion of families with heads of families already established in Argentina and to the admission of skilled workers or persons to be settled away form the large centres, the authorities have expressed their goodwill towards the UNREF programme by giving consideration to the admission of limited numbers of refugee families from camps in Europe. The abrogation in September 1956 of two decrees of 1952, barring new immigrants from establishing themselves within 100 Kilometres of Buenos Aires and other large cities, and prohibiting during their first three years in the country the exercise of any activity other than that declared on their visa applications, will greatly facilitate the admission of refugees, particularly on the family reunion basis. The accession of Argentina to the 1951 Convention is being considered by the Foreign Office. In view of the large number of organizations working on behalf of refugees, the High Commissioner suggested the advisability of a closer co-ordination of their activities. The law of 28 September 1954 on the automatic naturalization of aliens who have resided for a certain period of time in the country and have not declared their intention of maintaining their nationality of origin has been suspended by a recent decree on the grounds that it is incompatible with the Constitution of 1853. Pending the enactment of a new naturalization law, requests for naturalization will be considered in accordance with Law 346 of 1869. From February 1952 to June 1956, 1,030 refugees, transported by the Migration Committee, were admitted to Argentina.

Bolivia

12. The Bolivian Government has reiterated its interest in the admission of refugees to be resettled in agriculture and industry. There are still, however, certain difficulties for the financing of resettlement in agriculture, and for reception and placement arrangements.

Brazil

13. The announced contribution $US 15,000 to UNREF has been paid by Brazil since the visit of the High Commissioner. Furthermore, steps have been taken for the submission to Congress of the bill for ratification of the 1951 Convention, of which Brazil is one of the original signatories. The question of the admission of refugee families from camps in Europe was thoroughly discussed by the High Commissioner with the President of the Institute of Immigration and Colonization, and it is hoped that the Institute will soon instruct its representatives in Europe to visit refugee camps and selected limited numbers of families for resettlement in Brazil. Individual admission of refugees, and particularly of European refugees from China, is temporarily restricted pending consideration by the Institute and the Ministry for Foreign Affairs of their future policy on the subject. From February 1952 to June 1956, 7,350 refugees, transported by the Migration Committee, were admitted to Brazil.

Chile

14. The Chilean authorities announced to the High Commissioner their intention of presenting the 1951 Convention for ratification at the 1956 session of Congress. In view of certain difficulties in the issuing of Chilean "aliens' passports" to certain categories of refugees wishing to leave Chile, the Foreign Office is considering the establishment of a special travel document for refugees, pending the ratification of the 1951 Convention. The Directorate of Immigration which maintains its policy of admitting small numbers of carefully chosen refugees, is examining the possibility of selecting a few refugee families from camps.

15. The High Commissioner was impressed with the installations of the Immigrants' Hostel established by the Government. This hostel is maintained by the Migration Committee and by the Chilean Catholic Institute of Migration, and is administered by the latter. It constitutes an excellent example of co-operation between inter-governmental, governmental and private organizations concerned with the reception and placement of refugees.

16. The High Commissioner was also acquainted with a plan elaborated by the representatives of the Migration Committee and the International Catholic Migration Commission (ICMC) for guaranteeing with comparatively small sums the loans which local banks are ready to give to refugees for their independent establishments, especially as share-croppers in lands around Santiago and other large cities in Chile. It is to be hoped that the various organizations concerned may find the means to offer those guarantees and thus increase the possibilities for refugees to settle in Chile. From February 1952 to June 1956, 1,426 refugees, transported by the Migration Committee, were admitted to Chile.

Colombia

17. On the occasion of the High Commissioner's visit to Bogota, the Colombian Government decided to authorize Colombian consuls in Europe to grant visas to refugees selected from camps by the President of the Colombian Catholic Immigration Committee, who visited Europe last May. An initial group of 142 refugees was thus selected and some of them have already arrived in Colombia. The Colombian Institute of Immigration and Colonization was dissolved by governmental decree at the beginning of 1956, and its functions were entrusted to a National Immigration Committee composed of the Minister for Foreign Affairs, as president, the Manager of the Agrarian Credit Bank and the Chief of Police. The Colombian Catholic Immigration Committee is planning a pilot agricultural settlement for refugees in the vicinity of Bogota. The scheme will be financed by the Agrarian Credit Bank and ICMC.

18. Colombia was the first Latin American country to contribute to UNREF with a sum of $US 10,000, which was remitted by the Colombian delegation to the United Nations to UNHCR in November 1955. From February 1952 to June 1956, refugees, transported by the Migration Committee, were admitted to Colombia.

Cuba

19. A decree enacted in August 1955 on general procedures for the granting of resident status to aliens contains special provisions which facilitate the recognition as residents of aliens who for political reasons have taken refuge or asylum in Cuba. Several refugees coming within the mandate of the High Commissioner have benefited from this new procedure.

Dominican Republic

20. The Dominican Government confirmed, on the occasion of the High Commissioner's visit, its pledged contribution of $US 5,000 to UNREF. The contribution was remitted shortly afterwards.

Ecuador

21. The Ecuadorian authorities confirmed to the High Commissioner their willingness to admit limited numbers of refugees and offered to examine the possibility of making a contribution to UNREF. Subsequently, in his inaugural message to Congress on 1 September 1956, the new President of Ecuador stressed his Government's interest in promoting immigration and generously offered to admit refugees under the protection of the United Nations.

22. During the visit of the High Commissioner, a National Committee of Immigration was created composed of high officials and leader of industry, commerce and agriculture. The Committee intends to study legislation in force and to propose modifications to it with a view to facilitating immigration; it also intends to investigate the labour needs of agriculture and industry. This welcome development will satisfy the need for a national organization for the reception and placement of refugees.

Peru

23. Although Peru has not admitted refugees in the recent past, the High Commissioner found considerable interest in the United Nations programme for refugees in governmental, church and private circles. He was assured that the Government would consider the possibility of a contribution to UNREF. The newly organized Caritas Católica of Peru is actively studying possibilities for the admission and placement of refugees.

Uruguay

24. The Uruguayan Government announced to the High Commissioner its intention of submitting the 1951 Convention to Congress for ratification. It also suggested that it would favourably consider the admission of refugee families from camps. At the present time, immigration is virtually limited to the reunion of families with heads of families already established in Uruguay. A provisional committee for the establishment of a Uruguayan Catholic Commission of Immigration has recently been formed. From February 1952 to June 1956, 112 refugees, transported by the Migration Committee, were admitted to Uruguay.

Venezuela

25. During his visit to Caracas, the High Commissioner was very pleased to learn that a contribution to UNREF would be made by Venezuela in the course of 1956. The possibility of selecting and admitting refugee families from camps within the programme of the National Agrarian Institute or through the Aliens Office was discussed with the heads of those two departments, and the High Commissioner received assurances from both that the question would be given early consideration. The High Commissioner visited the agricultural colony of Turen, which is administered by the National Agrarian Institute, and was much impressed by this unique and vast experiment in land settlement where twenty-five nationalities are represented and a number of refugee families have found new homes. From February 1952 to June 1956, 595 refugees, transported by the Migration Committee, were admitted to Venezuela.

1 Official Records of the General Assembly, Eleventh Session, Supplement No.11 (A/3123/Rev.1)

2 Ibid., Ninth Session, Supplement No.13 (A/2648)

3 Including unofficial camps in Austria.

4 Including administrative expenses.

5 In addition, projects were put into implementation requiring UNREF funds in the value of $958,944 from private contributions, almost entirely from the grant of the Netherlands Committee for Aid to Refugees.